SHEFFIELD CITY COUNCIL Development, Environment and Leisure Directorate
REPORT TO CITY CENTRE SOUTH DATE 20/08/2007 AND EAST PLANNING AND HIGHWAYS AREA BOARD
REPORT OF DIRECTOR OF DEVELOPMENT SERVICES ITEM
SUBJECT APPLICATIONS UNDER VARIOUS ACTS/REGULATIONS
SUMMARY
RECOMMENDATIONS
SEE RECOMMENDATIONS HEREIN
THE BACKGROUND PAPERS ARE IN THE FILES IN RESPECT OF THE PLANNING APPLICATIONS NUMBERED.
FINANCIAL IMPLICATIONS N/A PARAGRAPHS
CLEARED BY
BACKGROUND PAPERS
Lucy Bond 0114 2734556 CONTACT POINT FOR ACCESS Chris Heeley TEL NO: 0114 2736329
AREA(S) AFFECTED
CATEGORY OF REPORT
OPEN
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Application No. Location Page No.
06/00775/FUL Site Of 731 Abbey Lane 6 Sheffield S11 9ND
06/02858/FUL Sheffield Citadel 24 Cross Burgess Street Sheffield S1 2HG
06/02859/LBC Sheffield Citadel 35 Cross Burgess Street Sheffield S1 2HG
06/04054/FUL Sheffield Citadel 37 Cross Burgess Street Sheffield S1 2HG
06/04055/LBC Sheffield Citadel 53 Cross Burgess Street Sheffield S1 2HG
07/00655/CHU 703 Abbeydale Road 59 Sheffield S7 2BE
07/01414/FUL 131 Psalter Lane 65 Sheffield S11 8UX
07/01665/FUL Site Of Hillfoot Mitsubishi 75 101 Scotland Street Sheffield S3 7BX
07/01865/FUL Land At Hastilar Road South, Fishponds Road, 89 Aughton Road And Richmond Road Sheffield
3 07/01872/CHU Hayward House 96 34 Redcar Road Sheffield S10 1EX
07/02074/FUL Land Adjoining Sheffield Road Vulcan Road 103 Meadowhall Way And Site Of Former Staybrite Works Sheffield
07/02073/OUT Sheffield Hallam University 123 Nelson Mandela Building Pond Street Sheffield S1 2BW
07/02158/FUL Young Street And 135 St Marys Gate Sheffield
07/02194/FUL Site Of 201 And 203 Sharrow Lane 147 Sheffield S11 8AN
07/02189/FUL Keyline Builders Merchants 153 515 Queens Road Sheffield S2 4DS
4 5 SHEFFIELD CITY COUNCIL
Report Of The Head Of Planning, Transport And Highways, Development, Environment And Leisure To The City Centre South and East Planning And Highways Area Board Date Of Meeting: 20/08/2007
LIST OF PLANNING APPLICATIONS FOR DECISION OR INFORMATION
*NOTE* Under the heading “Representations” a Brief Summary of Representations received up to a week before the Area Board date is given (later representations will be reported verbally). The main points only are given for ease of reference. The full letters are on the application file, which is available to members and the public and will be at the meeting.
Case Number 06/00775/FUL
Application Type A Full Planning Application
Proposal Erection of 8 apartments in one three-storey block with associated car parking (Amended plans received 31.05.07 and 24.06.07)
Location Site Of 731 Abbey Lane Sheffield S11 9ND
Date Received 28/02/2006
Team SOUTH
Applicant/Agent FJF Construction Ltd
Recommendation Grant Conditionally subject to Legal Agreement
Subject to:
1 The development shall be begun not later than the expiration of three years from the date of this decision.
In order to comply with the requirements of the Town and Country Planning Act.
2 The development shall not be begun until the improvements (which expression shall include traffic control, pedestrian and cycle safety measures) to the highways listed below have either;
i) been carried out; or ii) details have been submitted to and approved by the Local Planning Authority of arrangements which have been entered into which will secure that such improvement works will be carried out before the apartments are brought into use.
Highway Improvements: Ecclesall Road South (provision of right turn facility including pedestrian refuge as shown in principle on drg no FJF/ABY104-D
In the interests of traffic safety and the amenities of the locality.
3 Prior to the improvement works indicated in the preceding condition being carried out, full details of these improvement works shall have been submitted to and approved in writing by the Local Planning Authority.
In the interests of traffic safety and the amenities of the locality.
4 The apartments shall not be used unless all redundant access have been permanently stopped up and reinstated to footway and kerb, and means of vehicular access shall be restricted solely to those access points indicated in the approved plans.
In the interests of traffic safety and the amenities of the locality.
5 Before the development is commenced, details of the means of ingress and egress for vehicles engaged in the construction of the development shall have been submitted to and approved in writing by the Local Planning Authority. Such details shall include the arrangements for restricting the vehicles to the approved ingress and egress points. Ingress and egress for such vehicles shall be obtained only at the approved points.
In the interests of traffic safety and the amenities of the locality.
6 There shall be no gates or barriers erected at the means of access to the site unless otherwise agreed in writing by the Local Planning Authority.
In the interests of traffic safety and the amenities of the locality.
7 At all times that demolition and construction works are being carried out equipment shall be provided to the satisfaction of the Local Planning Authority for the effective cleaning of the wheels and bodies of vehicles leaving the site so as to prevent the depositing of mud and waste on the highway but before the development is commenced full details of such equipment shall have been submitted to and approved by the Local Planning Authority. When the above-mentioned equipment has been provided thereafter such equipment shall be used for the sole purpose intended in all instances and be properly maintained.
In the interests of traffic safety and the amenities of the locality.
7 8 The gradient of shared pedestrian/vehicular access shall not exceed 1:12 unless otherwise agreed in writing by the Local Planning Authority.
In the interests of traffic safety and the amenities of the locality.
9 The apartments shall not be used unless the car parking accommodation for 10 cars as shown on the approved plans has been provided in accordance with those plans and thereafter such car parking accommodation shall be retained for the sole purpose intended.
In the interests of traffic safety and the amenities of the locality.
10 Notwithstanding the details of the approved site layout plan the parking layout is not hereby approved. Prior to the commencement of development a revised layout shall be submitted to and approved in writing by the Local planning Authority. Development shall be carried our in accordance with the approved parking layout.
In the interests of traffic safety and the amenities of the locality.
11 Surface water and foul drainage shall drain to separate systems.
To ensure satisfactory drainage arrangements.
12 No development shall take place until details of the proposed means of disposal of foul and surface water drainage, including details of any balancing works and off-site works, have been submitted to and approved by the Local Planning Authority.
To ensure satisfactory drainage arrangements.
13 Unless otherwise approved in writing by the Local Planning Authority, there shall be no piped discharge of surface water from the development prior to the completion of the approved surface water drainage works and no buildings shall be occupied or bought into use prior to completion of the approved foul drainage works.
To ensure satisfactory drainage arrangements.
14 Before any work on site is commenced, a landscape scheme for the site, including details of hard landscaping at the site, shall have been submitted to and approved by the Local Planning Authority. The scheme shall be carried out in accordance with the approved details within 1 month of the occupation of the development or within an alternative timescale to be first agreed in writing with the Local Planning Authority. When the above- mentioned landscaping has been carried out, thereafter the landscaped areas shall be retained. The landscaped areas shall be cultivated and maintained for 5 years from the date of implementation and any failures within that 5 year period shall be replaced in accordance with the approved details unless otherwise authorised in writing.
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In the interests of the amenities of the locality.
15 No trees, shrubs or hedges existing within the site of the development shall be destroyed or otherwise removed and no tree shall be lopped or topped, without the prior written agreement of the Local Planning Authority, but if notwithstanding this condition any tree, hedge, part of a hedge or shrub is removed or destroyed or damaged to such a degree that in the opinion of the Local Planning Authority its removal is necessary, then a replacement shall be planted of a species and size to be approved by the Local Planning Authority prior to planting. Any such replacement shall be cultivated and maintained for 5 years and any failure within that 5 year period shall be replaced with like species unless otherwise agreed in writing by the Local Planning Authority.
In the interests of the amenities of the locality.
16 Before any work on site is commenced full details of the measures to be taken to protect the existing trees within and/or adjoining the site of the development during construction shall be submitted to and approved in writing by the Local Planning Authority. These measures shall include means of preventing the ground beneath the canopy of such trees and/or hedges from being disturbed or used for storing materials of any kind.
In the interests of the amenities of the locality.
17 The details of the approved North Elevation drawing are not hereby approved. Prior to the commencement of development a revised drawing giving details of a hierarchy to the gable windows shall be submitted to and approved in writing by the Local Planning Authority. The development shall be carried out in accordance with the approved details.
In the interests of the visual amenities of the locality.
18 Before the development is commenced, details of all proposed external materials and finishes, including windows, shall have been submitted to and approved in writing by the Local Planning Authority. Thereafter, the development shall be carried out in accordance with the approved details.
In order to ensure an appropriate quality of development.
19 Before the commencement of development, large scale details, including materials and finishes, at a minimum of 1:20 of the items listed below shall be approved in writing by the Local planning Authority:
Windows Window reveals Heads and Cills Doors
9 Eaves and verges External wall construction Brickwork detailing Julliette Balconies Boundary Treatments Chimneys
Thereafter, the works shall be carried out in accordance with the approved details.
In order to ensure an appropriate quality of development.
20 A sample panel of the proposed masonry shall be erected on the site and shall illustrate the colour, texture, bedding and bonding of masonry and mortar finish to be used. The sample panel shall be approved in writing by the Local planning Authority prior to the commencement of the building works and shall be retained for verification purposes until the completion of such works.
In order to ensure an appropriate quality of development.
21 All the rainwater gutters, downpipes and external plumbing shall be of cast iron or cast aluminium construction and painted black unless otherwise agreed in writing by the Local Planning Authority. Gutters shall be fixed by means of hangers and brackets and no fascia boards shall be used.
In order to ensure an appropriate quality of development.
22 Before the development commences, details of the location, specification and appearance of all new services to the building (including meter boxes, outlets and inlets for gas, electricity, telephones, security systems, cabling, trunking, soil and vent stacks, fresh and foul water supply and runs, heating, air conditioning, ventilation, extract and odour control equipment, pipe runs and internal and external ducting) shall have been approved in writing by the Local Planning Authority.
In order to ensure an appropriate quality of development.
Attention is drawn to the following justifications:
1. The decision to grant planning permission and impose any conditions has been taken having regard to the policies and proposals in the Sheffield Unitary Development Plan set out below, and to all relevant material considerations, including Supplementary Planning Guidance.
H10 - Development in Housing Areas H14 - Conditions on Development in Housing Areas
This informative is intended as a summary of the reasons for grant of planning permission.
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Attention is drawn to the following directives:
1. It is noted that your planning application involves the construction or alteration of an access crossing to a highway maintained at public expense.
This planning permission DOES NOT automatically permit the layout or construction of the access crossing in question, this being a matter which is covered by Section 184 of the Highways Act 1980, and dealt with by:
Assistant Head of Highways Development Services Howden House 1 Union Street Sheffield S1 2SH
For access crossing approval you should contact the Highway Development Control Section of Sheffield City Council on Sheffield (0114) 2736136, quoting your planning permission reference number.
2. As the proposed development abuts the public highway you are advised to contact the Highways Co-ordination Group on Sheffield 2736677, prior to commencing works. The Co-ordinator will be able to advise you of any pre- commencement condition surveys, permits, permissions or licences you may require in order to carry out your works.
3. The development will require the issuing of a formal postal address(s) by the City Council. This will apply even if the development is an infill site. Contact Lynn Fox on Sheffield 2736127 for details. Failure to carry out this process at an early stage may result in statutory undertakers refusing to connect services. The agreed address must be clearly displayed at each individual property before occupation in order to ensure that the postal service can correctly locate each property of delivery purposes.
4. Before the development is commenced, a dilapidation survey of the highways adjoining the site shall be jointly undertaken with the Council and the results of which agreed in writing with the Local Planning Authority. Any deterioration in the condition of the highway attributable to the construction works shall be rectified in accordance with a scheme of work to be agreed with the Local Planning Authority.
11 Site Location
© Crown copyright. All rights reserved. 10018816. 2005
Members will recall that this item was deferred from the 30th July 2007 Agenda in order to allow a Members site visit to take place. The report has been amended to incorporate details of objection letters which were received after finalisation of the previous report. The Planning Assessment section has also been updated to include discussion of the proposal’s impact upon the Green Belt.
LOCATION AND PROPOSAL
The application site is located to the south of the junction of Abbey Lane with Ecclesall Road South. Vehicular and pedestrian access to the site is currently gained from Abbey Lane. The existing bungalow at the site currently serves as a 5 bedroom residential dwelling.
12 The application seeks consent to demolish the existing bungalow and construct a three storey building to provide a total of 8No. x 2 bedroomed flats. The vehicular access to these flats would be via Ecclesall Road South, and ten parking spaces would be provided. The main pedestrian access to the building’s entrance would be via the Ecclesall Road South frontage, whilst a new pedestrian access would be provided from Abbey Lane.
RELEVANT PLANNING HISTORY
95/01125/OUT; Refused, Erection of Dwellinghouse and Garage.
The reasons for refusal essentially related to the proposal being a prominent and obtrusive feature in the street scene, traffic noise and fumes harming the amenities of occupiers and highways concerns relating to on street parking and detriment to traffic safety.
04/04936/CHU; REFUSED 14th March 2005, Use of premises as a children’s nursery.
SUMMARY OF REPRESENTATIONS
Original Submission
Following direct consultation with neighbouring occupiers a total of 35 representations have been received. The comments can be received as follows:
Building is over-development of site, and out of scale with neighbouring buildings. Visually dominant from all approaches. Building out of character with neighbouring building.
Existing bungalow would accord with the neighbourhood.
Neighbouring building (St. Anns) would be over-dominated.
A two-storey building has previously been refused.
The stretch of Ecclesall Road South adjacent to the application site is currently used as parking for the existing houses which do not have their own parking. No other possible parking locations. Amended plans exacerbate these concerns.
Resulting parking on verges, amenity impact and highway safety issue.
Likely on-street parking arising from development. Highway safety concerns relating to accessing / egressing site. Congestion at traffic lights.
Pedestrian safety given existing nature of vicinity.
No evidence of adequate demand for flats in area.
Demand on local services, especially drainage.
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Creation of overlooking and loss of privacy. Loss of privacy of gardens.
Existing street furniture hinders motorists’ vision. Proposed building will further hinder proposed sightlines.
Loss of mature trees.
Application motivated by greed (not a planning consideration).
Lack of amenities for flats.
Loss of views of Ecclesall Woods.
Loss of light to neighbouring properties.
Negative affect on light levels to neighbouring dwellings.
Impact of construction vehicles within vicinity.
Position of proposed bin store is immediately adjacent to boundary with neighbouring property.
Support for the Tree Preservation Order.
Footpath running at Ecclesall Road South would be compromised.
Amended Submission
In response to consultation on the amended plans 83 representations have been received at the time of report preparation. The comments made can be summarised as follows:
Drawings scanned onto internet some time after their receipt at Planning Department giving reduced time to make comments and informed response.
Concern that other correspondence has not appeared on the internet.
Points made about meetings between Officers and Applicant, requesting minutes should be made available. Neighbouring occupiers should be given similar access to Council Officers. Meeting dates requested.
Amended building is even taller than original. Other alterations are nothing to do with neighbour preference.
Existing bungalow is acceptable within site. Motive for replacement is financial. (Not a planning consideration)
Inadequate time for re-consultation.
14 Site previously considered unacceptable for a two storey dwellinghouse.
Over-development of site.
Building will block view of St Anns. Massively dominant and would destroy character.
Loss of parking spaces in the layby.
Proposal would affect use of bus-stop, and would create additional on street parking.
Amended drawings do not feature an amended street scene drawing. Such a drawing is provided within item of correspondence.
Objection states that letters have been received from around 40 addresses (approximately 60 people). Summary of comments is made.
Flats out of character, poor architectural merit, spoiling entrance into Ecclesall Woods and the area around Parkhead Cricket ground.
Flats too large (height and footprint), visually intrusive. Amendments involve an increase in height.
Inadequate levels of parking.
Dangerous in highway safety terms, due to busy/high speed nature currently. This will be exacerbated by proposal.
Concerns for pedestrian safety.
Loss of on-road parking for occupants on opposite side of Ecclesall Road South, due to absence of drives. Will result in parking on verges. Bus access to bus stops will be more difficult. Concerns regarding construction traffic.
Applicant’s financial gain.
Loss of Trees.
Increased pressure on drains. Too much development in the Ecclesall area.
Proposal does not include the type of accommodation required. Family homes should be provided.
Planning Committee should view the site.
Insufficient time for consultation, at a time when many are on holiday and when website is not operating.
15 Site is currently screened by trees. One of the trees which is covered by a TPO is to be removed reducing visual amenity.
Run-off water from the road will have access to the site, apartments would be at flood risk.
More modest applications have been refused in the past.
Flats in area are not selling. Character is area is large single occupancy dwellings.
Site could accommodate 4 to 6 flats.
Approval would set a precedent for the rest of Abbey Lane.
Infiltration of flats at a greenbelt site.
Concern regarding potential occupants.
Impact on privacy in neighbouring gardens. Proposal will be viewable from a large part of the woods.
May be archaeological implications if the site is to be developed.
Query sustainability of proposal.
Loss of views from opposite side of Ecclesall Road South.
Comments upon the Board report, which states that proposal is considered to have an acceptable impact on the street scene. All objections include concerns about this. St. Anns is discreet and often goes unnoticed. This would not be the case with the proposal.
The Report states that the area of St Ann’s garden area which would be overlooked is in close proximity to Abbey Lane, but this area represents the main lawn and is of value. No screening has been shown on plans.
The location of the bin store is actually under the control of the current application, many more bins would be stored as part of proposal than currently.
Parking provisions, although satisfying standards, is in practice wholly inadequate. Standards should be exceeded in this instance. Junction is very busy. Extra on- street parking.
Suggested that site should be developed for 6 flats, with altered roof pitch.
PLANNING ASSESSMENT
Policy Issues
16 The application site is located in a Housing Area, and is therefore subject to the provisions of policy H10 and H14. The land to the east of Abbey Lane is allocated as Green Belt within the Unitary Development Plan. Land set further to the east is identified as an Area of High Landscape Value. Therefore, policies GE4 and GE8 are relevant.
Housing is the preferred use within the housing area, and therefore the proposed development is considered to be acceptable in principle. The provisions of policy H14 states, amongst other things, that (a) new buildings and extensions should be well designed and would be in scale and character with neighbouring buildings, (c) the site would not be over-developed or deprive residents of light, privacy or security or cause serious loss of existing garden space which would harm the character of the neighbourhood, (d) it would provide safe access to the highway network and appropriate off-street parking, (e) it would not suffer from unacceptable air pollution, noise or other nuisance and (g) it would comply with policies for the Built and Green Environment.
The relevant Built and Green Environment policies are BE5 and GE15. BE5 states that good design and the use of good quality materials will be expected in all new buildings, and part (a) states that original architecture will be encouraged, but new buildings should complement the scale form and architectural style of surrounding buildings.
GE4 states that the scale and character of development conspicuous from the Green Belt should be in keeping with the area and, wherever possible, conserve and enhance the landscape and natural environment.
GE8 states that development which is permitted on land which is conspicuous from Areas of High Landscape Value must protect, and wherever appropriate, enhance the appearance and character of the Area of High Landscape Value.
GE15 states that Trees and Woodland will be encouraged and protected by (b) requiring developers to retain mature trees and wherever possible replace any trees which are lost.
Design of Building
The building is three storeys in height, with a hipped roof. The proposed building would be set below the level of Ecclesall Road South by approximately the equivalent of one storey, in line with the existing level of the site. Revisions to the scheme have resulted in the increase in height of the roof. These were pursued through the course of negotiations in order to enable the building to assimilate more accurately to the roof forms and pitches in the locality. These changes also involved the introduction of chimney stacks and the introduction of hierarchy to the window arrangement.
The predominating character in the local vicinity is of two storey detached and semi-detached dwellings within relatively large plots. The dwellings to the west of Ecclesall Road South are mainly semi-detached dwellings, and are elevated above the level of the highway. Dwellings at Abbey Lane are predominantly two storey
17 dwellinghouses, and are varied in their design. The immediately adjoining dwelling, St. Anns, is set away from Abbey Lane and immediately abuts Ecclesall Road South.
The proposed building is separated by approximately 20metres from the nearest point of the dwelling at St. Anns, which is a conservatory type space.
The existing building as viewed from Ecclesall Road South is visible to only a limited extent, with only its roof being visible through and/or above the boundary planting. The proposed building would incorporate gable features, chimney stacks and a hierarchy to its window arrangement. The initially proposed building included a ridge which was lower (by approximately 1metre) in height than the ridge level at St. Anns. However, in order to allow the building to be more in keeping with the appropriate character some revisions were suggested as part of negotiations. This resulted in the proposed ridge level being increased to a point in the most recently received drawings approximately 0.3metre above the St Anns ridge level.
The proposed building would clearly be of greater impact upon the Ecclesall Road South street scene than the existing building. However, it is considered that the amended scheme would not be of overbearing impact upon the street scene as it would be separated away from the building at St. Anns by a sufficient distance limiting the extent of the relationship which it forms with this neighbouring building. In addition to this distance of separation it is also noted that the building would not be significantly larger at the Ecclesall Road South façade than the neighbouring building. The combined impact of these two factors is considered to result in the building being of acceptable impact upon the Ecclesall Road South frontage.
It should also be noted that the revised elevation includes an entrance which has a presence within the appearance of the building. The elevation is considered to benefit from this aspect.
In regards to the north elevation it is appreciated that this element of the building will be particularly visible. The existing bungalow is not visible from this part of the street scene, and the proposed building would clearly be able to be seen. The revisions which have been carried out to the initially submitted scheme are such that the contribution that this elevation would make to the street scene would be considered acceptable. The elevation includes hierarchy and a staggered elevation, which would serve to create interest and soften its visual impact. Overall, this elevation is considered to have an acceptable impact upon the street scene, and to not be overly dominant when approaching the site from the north. The hierarchy of the windows does not however quite match that which would be preferential, and it is therefore suggested that a condition requiring submission and agreement of details of a revised elevation incorporating appropriate hierarchy details is added to any consent granted.
The Abbey Lane elevation would be three storeys in height. Due to the site being at an equivalent level with the footway, the elevation would be largely viewable from the street. The building would include gables, a chimney stack, Juliet balconies and three garage doors. It is not considered that the building would be
18 overly intrusive within the street scene. Overall, it is considered that the visual impact in this regard would be considered to be acceptable.
In terms of the impacts on the Green Belt and Area of High Landscape Value to the east, it should be noted that the proposal is set within the built up urban envelope and is surrounded by other residential dwellings. The neighbouring dwelling at St Anns is elevated upon its site and the dwellings on the western side of Ecclesall Road South are also set at an elevated position. The site is also set adjacent to the local road network. Furthermore the materials would be controlled to be in keeping with those in the vicinity. Any views from the Green Belt and the Area of High Landscape Value would include this existing context. As such it is not considered that the scale and character of the proposal would be out of keeping with the area. It is not considered that the proposal would harm the overall intrinsic landscape value of the area. Therefore, it is considered that the requirements of Policies GE4 and GE8 would be satisfied by this proposal.
The proportion of the site which would be occupied by the building would exceed that which is typical in the area. However, it would not be considered to represent overdevelopment of the site as a significant proportion of the site would remain unoccupied by buildings. The portion of the site which would form parking bays would be largely unviewable from the street.
Overall, the scale, mass and design of the building is considered to be of acceptable impact within the street scene and in keeping with the nature and characteristic of the area. Consequently, the proposal is considered to comply with policies BE5(a) and H14(a).
Impact on Neighbouring Occupiers
The dwelling at St Anns is the most likely to be affected by the proposal. The proposed South elevation facing St Anns does not include any windows. As stated above the separation between St Anns and the proposed building would be approximately 20m. The element of St Anns in closest proximity would be the conservatory type structure. Due to level differences between the application site and the neighbouring dwelling, the conservatory would be set at equivalent to first floor level of the proposed building.
In general terms a separation of 12m from a habitable room window to a blank elevation would be considered to be acceptable, and to avoid an overbearing impact. As such the proposed separation distance would be well in excess of this guideline distance. The blank nature of the south elevation would prevent any overlooking to windows in the neighbouring property. It is therefore considered that the proposal would avoid having a detrimental impact upon the occupants of St Anns via an overbearing impact, or loss of light implications.
Scope for overlooking from the proposed building onto the garden area for St Anns would result. However, the area affected would be in close proximity to Abbey Lane and very remote from the dwelling itself. Thus, the area that may be subject to overlooking would not be considered to be particularly sensitive to overlooking.
19 As such the proposal avoids having a demonstrable harmful impact and would be acceptable.
The proposed vehicular access would be considered to be adequately separated from the dwellinghouse at St Anns, thereby preventing any concerns relating to vehicular noise and disturbance occurring.
The proposed bin store is located adjacent to the boundary shared with the neighbouring occupier. Concerns regarding smells affecting amenity value of the neighbouring garden have been expressed. It is considered that this location was chosen for convenience of collection. It is not considered it would be reasonable to require this store to be relocated, as this is an issue which applies to all existing dwellinghouses, where there would not be any control over the matter.
A number of concerns have been raised in relation to the loss of views, particularly from the dwellings on the opposite side of Ecclesall Road South. It is not considered that a right to a protected view exists. The impacts of the proposal upon the street scene are considered to be acceptable and it would therefore be unreasonable to seek to resist the application based upon this factor.
Overall, the proposal is considered to have acceptable impacts upon the amenities of neighbouring occupiers. It is not considered that unacceptable levels of overlooking or overbearing impacts would occur. As such the proposal is considered to be acceptable in this regard and to satisfy the requirements of policy H14 (c).
Amenity for Potential Future Occupants
The individual apartments would all be considered to be of adequate size, with appropriate natural daylighting and ventilation. The majority would be dual aspect. The apartments are considered to be acceptable in terms of their internal layout and the outlooks provided.
The external amenity provision would amount to approximately 110 sq metres. This would be beneath the canopy of the protected tree. This would be relatively convenient to access from the main entrance. Its position is relatively well screened, and therefore capable of providing an appropriate level of privacy. The extent of the area would provide adequate opportunities for outdoor recreation / amenity.
The fact that it would be adjacent to a busy road would not be considered to make it of lesser value as an amenity space. Particularly when it is noted that the existing garden area to the bungalow would be very much affected by these same issues and would be considered to represent a reasonable amenity level provision.
Overall, the proposal is considered to be acceptable in this regard. As such the proposal is considered to satisfy the requirements of H5 which requires flats to provide appropriate living conditions.
20 Highway Issues
The proposal incorporates ten parking spaces, to serve the 8 x 2 bedroomed apartments. The proposed vehicular access is located at the Ecclesall Road South frontage. The revised layout shows a proposed right turn facility into the site from Ecclesall Road South.
The proposal is considered to be acceptable in highway safety terms, subject to the revision to a particular parking bay in order to allow manoeuvring to and from it. This revision is able to be carried out without any harmful impact upon the trees covered by a preservation order.
The issue of the loss of on-street parking bays used by Ecclesall Road South residents and visitors is noted. It should also be taken into account that this area is currently designed to accommodate a bus lay-by. As such its function in parking terms was unintentional. It is therefore considered that it would not be reasonable to resist permission on this issue.
In addition it should be noted that the revised layout features re-alignment works to the road layout. This revision allows adequate visibility splays to be achieved for vehicles egressing the site.
Tree Issues
UDP policy GE15 deals with Trees and Woodland and part (b) requires developers to retain mature trees, and replace any trees which are lost.
During the course of assessment of the application it was deemed by the Council’s Landscaping Officer that two of the trees within the site were worthy of a Tree Preservation Order. The TPO covered two Beech trees within the site, one of the trees is a single stem Beech tree (TPO tree T-1) approximately 2-3 metres away from the boundary and the other is a twin-trunk Beech tree (TPO tree T-2).
The revised layout drawing shows the retention of T-1 within a landscaped Root Protection Area of 7.2metres. This represents the minimum protection allowing the tree to survive, and complies with the relevant British Standard. As such the proposal is acceptable in this regard.
The revised layout also shows tree T-2 to be removed. This is considered to be acceptable on the grounds that it may need to be removed to allow the re- construction of the boundary wall along the Ecclesall Road South frontage.
The alterations to specific parking bays as covered under the assessment of Highways issues is considered to be acceptable. The implications relate only to a minimal proportion of the Root Protection Area.
It would be necessary to ensure that adequate protective fencing is erected during construction works. In terms of a landscaping scheme it is considered that some new tree planting of suitable species and sizes should be incorporated in order to replace the existing tree T-2 and some other smaller trees at the site.
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Overall, the proposal is considered to be acceptable in relation to UDP policy GE15.
Open Space Issues.
The proposal includes in excess of 5 units of accommodation, and is therefore subject to the provisions of policy H16. H16 requires developers to ensure that there would be sufficient open space to meet the local needs of people living there. Following assessment of local open space provision it is concluded that a contribution of £5,850.40 toward enhancement of local recreation provisions would be required.
This is considered to be reasonable, and should form a part of a legal agreement prior to granting of any consent in this instance.
Response to Representations
The refusal of outline consent in 1995 is noted. It is considered that the proposal addresses the concerns in relation to highway safety. The issue of noise and fumes impacting upon the amenity space is considered to be of limited weight given that the garden to the existing bungalow is in the same position. The concern regarding the dwelling being a prominent and intrusive feature was relevant at the time, however current national guidance requires more efficient use to be made of previously developed land. This reduces the strength of the concerns relating to issues of prominence and intrusive features. The current proposed development is considered to be acceptable in regards to the street scene and current guidance/Unitary Development Plan policies.
SUMMARY AND RECOMMENDATIONS
The proposed scheme seeks consent for 8 x 2 bedroom apartments and ten parking spaces, taking vehicular access from Ecclesall Road South. The proposed building would be three storeys in height.
It is considered that the proposal would be adequately in keeping with the character of the local vicinity, it is considered that it would be acceptable in street scene terms and avoid having an overbearing impact. The proposal would avoid having a detrimental impact upon the amenities of neighbouring occupiers via privacy impact or overbearing impacts. It is considered that it would be acceptable in highway safety terms and avoid a detrimental impact upon the protected tree within the site.
Overall, the proposal is considered to be acceptable in relation to policies BE5, H5, H10, H14 and H16. Therefore, it is recommended that the application should be approved, subject to the completion of a legal agreement.
Head of Terms for Legal Agreement
22 On or before the commencement of development the owner shall pay to the Council a financial contribution of £5850.40 towards the provision or enhancement of recreation facilities within the relevant catchment areas of the site, in accordance with Policy H16 of the adopted Unitary Development Plan and adopted SGP Open Space Provision in New Housing Development.
23
Case Number 06/02858/FUL
Application Type A Full Planning Application
Proposal Alterations including internal alterations and extension to building to form retail outlet with cafe and storage (in accordance with amended plans received 6.8.07 and 23.4.07)
Location Sheffield Citadel Cross Burgess Street Sheffield S1 2HG
Date Received 21/07/2006
Team CITY CENTRE AND EAST
Applicant/Agent Ward McHugh Associates
Recommendation Refuse
For the following reason(s):
1 The Local Planning Authority consider that the extent of the external alterations to the building proposed by the development would detract from the special architectural and historic interest of the Salvation Army Citadel, a Grade II Listed Building and from the appearance of the building in the City Centre Conservation Area. In this respect the proposal is contrary to Policies BE19, BE16 of the Unitary Development Plan and the objectives of PPG15.
24 Site Location
© Crown copyright. All rights reserved. 10018816. 2005
LOCATION AND PROPOSAL
The former Salvation Army Citadel was used as the headquarters and performance space for the Salvation Army for many years from first construction about 1890 until the late 1990’s. It is a Grade II listed building and adjoins the rear of 48-62 Pinstone Street (occupied by retail units with residential apartments above), with its main elevation and entrance to Cross Burgess Street. Its side elevation faces on to Burgess Street and is bound to the rear by 31 Burgess Street, currently the Lions Lair Public House.
The site falls within the Central Shopping Area as designated in the Sheffield Unitary Development Plan. The site is also within the City Centre conservation
25 area. The proposed ‘New Retail Quarter’ development which now has outline planning consent is indicated as ‘wrapping round’ the Citadel building.
The building is currently vacant and has been since the Salvation Army relocated in 1999. The current applications seek full planning permission and listed building consent for external and internal alterations and extension to the building to form 1 retail unit with café and storage.
RELEVANT PLANNING HISTORY
Planning permission and listed building consent were granted on 21 August 2000 for Food and Drink use (then Class A3) and alterations to form a new entrance to Cross Burgess Street (00/00919/FUL and 00/00918/LBC refers). Condition 4 of these permissions limited the hours of opening to 0800-2400 hours on any day. The listed building consent required details of internal alterations by condition.
Planning permission and listed building consent were granted on 18th June 2001 and 10th July 2001 for external alterations to the building for use as Class A3 public house including a new shop front with conditions relating to the above consents also attached (01/00653/FUL and 01/00638/LBC refers).
Permission was refused on 30 April 2002 for the extension of opening hours until 0200 hours (Variation of Condition 4 of the permission of 21 August 2000) (01/10558/FUL refers). An appeal against this decision was dismissed on 2 January 2003 (02/00077/WR refers).
On 9 July 2004 a lawful use application to establish the use of the building as a Live Music/Concert Hall and Assembly Use for Social and Leisure (Class D2 Assembly and Leisure) was refused (04/01826/LU1 refers).
An application for planning permission and listed building consent for Food and Drink (former Class A3) until 0200 hours with sound attenuation and disabled access was due to be recommended for refusal at Area Board, but was withdrawn on 16 November 2004 (04/02970/FUL and 04/02969/LBC refers).
Planning permission was granted on 31 March 2006 for the renewal of the original Food and Drink permission of 21 August 2000 opening until 2400 hours (05/02806/FUL refers). The accompanying listed building application was undetermined pending submission of a historic building appraisal, this has since been withdrawn on 19th December 2006 (05/02812/LBC).
On 27 April 2006 the applicants appealed against the non-determination of the application for a Drinking Establishment (Class A4) opening until 0200 hours (05/02832/FUL refers). This application and appeal was withdrawn on 27th December 2006 and the accompanying application for listed building consent (05/02840/LBC refers) that had also not been determined was withdrawn on 19th December 2006.
Outline planning permission and associated Conservation Area Consent was granted on 6th November 2006 (05/03933/OUT refers) and 22nd August 2006
26 (05/03595/CAC refers) for the New Retail Quarter – a mixed use development comprising of refurbishment/change of use of existing buildings and erection of buildings for retail use (use classes A1, A2, A3, A4, A5), housing (C3), night club, health and fitness club, multi-storey car parking and ancillary uses including the closure and alterations of public highways, vehicular access, servicing facilities, formation of open space & associated landscaping. The new buildings associated with this scheme will abut up to the Citadel building.
Planning permission and listed building consent is also sought for alterations to and use of Citadel as 2 retail units with provision of associated storage areas (applications 06/04054/FUL and 06/04055/LBC) and are pending consideration and recommended to be granted subject to conditions, on this same agenda.
SUMMARY OF REPRESENTATIONS
There has been 1 letter of representation received from local residents commenting the following on the application:
- Increase in volume of litter and debris associated with retail/café - Noise from customers at the café at unsociable hours especially congregating outside and also from associated deliveries, refuse collection - Increase in volume of traffic and parking - Query if the scheme fits into ‘Heart of the City’ project
A letter of objection has also been received from RPS Planning on behalf of Hammerson UK Properties Plc , developer of the New Retail Quarter:
- The Citadel is located within the boundaries of the NRQ site which involves the stopping up of Burgess Street to create additional retail floorspace and it appears that the proposal will not conflict with this element as no alterations to the elevations facing the NRQ site are proposed - Concerned that the proposals may prejudice the construction or operation of the NRQ; a survey has already stated that in constructing the NRQ, a 15m deep basement is required so the Citadel’s foundations are likely to require underpinning to support the excavation. Conditions are already attached to the NRQ permission regarding these works to the Citadel and it is requested that conditions are attached for a co-ordination strategy to confirm that the proposals will not conflict with the NRQ
Victorian Society: Objects to the application as considers that the proposed scheme would cause significant damage to the special architectural and historic interest of the Grade II Listed Sheffield Citadel and contrary to PPG15. Proposed retail use is not compatible with this historic building as it would be detrimental to the original fabric and insufficient evidence has been provided about suitable alternative uses. Consider external character and principle elevation would be destroyed through the insertion of large plate glass retail display windows and extensive use of glass and the effect of openness created at ground floor level would be extremely undesirable and in contradiction to the originally intended fortress like appearance of the building. Demonstrates that retail use in principle
27 cannot be acceptable unless all efforts have been made to find a more appropriate alternative use.
English Heritage: Notes that the building has been vacant for over 6 years and is now in need of a viable new use. The area is due to change significantly as part of major retail proposals which should present an opportunity to ensure a viable future for this historic building. Previously approved plans for A3 use proposed some internal change, but not on the scale currently proposed; demolition of the interior and two thirds of roof structure, insertion of new floors and roof structure. In line with PPG 15, the applicant must justify why the works that affect the character of the listed building are desirable or necessary and to balance the effect of changes against the viability of any proposed use and possibly less damaging uses. It is necessary to establish the marketing history of the building and to provide a detailed, robust justification for the changes.
Following a site visit, additional comments were provided: it is apparent that the building was significantly altered during the mid 20th Century with the insertion of a concrete frame to support a raised floor in the auditorium. As such, view that the present character of the interior allows some flexibility in how this is now treated and have no objections to the insertion of a replacement floor or removal of raked seating to enable a viable new use. Welcome altered plans to retain most of roof structure and lay light ensuring retention of more of the historic character of the upper floor. Need to ensure that the building fabric is given adequate temporary protection from further deterioration.
Conservation Advisory Group: The Group were consulted on the original plans and felt that the scheme was too destructive for the property both internally and externally and, in particular, the removal of the mullions and transepts of the fenestration as proposed would have a damaging effect on the character of the Listed Building. The Group recommended that a more preferable use of the building would be as something which maintained the open character of the interior space, such as a restaurant, coffee shop or book shop.
PLANNING ASSESSMENT
The site lies within the Central Shopping Area in the Unitary Development Plan. Policy S3 ‘Development in the Central Shopping Area’ lists preferred uses which comprises of Shops (Use Class A1), Offices used by the public (A2), food and drink outlets (A3) and housing (C3). As such, the use of the building as shops constitutes one of the preferred uses and is acceptable in principle subject to compliance with other relevant UDP policies.
Policy S10(b) requires that change of use should not cause residents of any housing to suffer from unacceptable living conditions, noise or other nuisance or risk to health and safety and be well designed and of a scale and nature appropriate to the site and provide safe access to the highway network and not endanger pedestrians.
The Citadel is a Grade 2 listed building and is located within the City Centre Conservation Area. Policy BE19 requires the internal and external alteration of
28 listed buildings to preserve their character and appearance and where appropriate to preserve or repair original details and features of interest. Changes of use are expected to preserve the character of the building. The original use of a Listed Building will be preferred but other uses will be considered where they would enable the future of the building to be secured especially as it can also create an opportunity for community needs or help economic regeneration.
Policy BE16 requires proposals to preserve or enhance the character or appearance of the Conservation Area. It also states that buildings which make a positive contribution to the character or appearance of a Conservation Area will be retained.
National policy which covers Listed Buildings and Conservation Areas is found in Planning Policy Guidance note 15: Planning and the historic environment (PPG15). This outlines that the prime consideration for authorities in determining an application for consent is to protect any listed building from unnecessary demolition and from unsuitable or insensitive alteration.
Policy BE7’Design of Buildings used by the Public’ expects buildings used by the public to have safe, easy and equal access for people with disabilities.
The site lies within the New Retail Quarter, a retail-led mixed use regeneration scheme intended to remedy long-standing structural problems with city centre shopping. The NRQ was first proposed in the City Centre Master Plan (2000) as one of the principal regeneration projects in the City Centre. The Council adopted Supplementary Planning Guidance in July 2002 defining the boundary and protecting it from unsuitable retail development outside it. The Citadel is shown as retained, but Burgess Street is to be closed and a New Burgess Street with shops both sides and flats above on the east side will replace it. On 21 August 2006 the Council resolved to grant outline planning permission for the NRQ subject to any call-in by the Secretary of State.
Guideline 4 of the SPG requires amongst other things that the NRQ should have a complementary mix of uses including housing which should be integrated with the development, subject to residential amenity.
Impact on Listed Building
Paragraph 3.4 of PPG15 states that applications for listed building consent must justify their proposals and show why works which would affect the character of a listed building are desirable or necessary. Some evidence of marketing of the building has been provided to expand on the reasons for requiring the change of use. This has claimed that leisure operators (Class A3 for which it already has permission) required a late license which was not suitable in this location and with conversion costs, would not commit to this location. The oncoming New Retail Quarter would increase the footfall along Cross Burgess Street increasing the demand for retail space. However, securing a successful future use for the building should not be at the expense of the architectural merit and character of the Listed Building; the extent of works proposed are assessed below.
29 Internal alterations
The Citadel is arranged over four floors; basement, ground floor, first floor and upper tier. It is proposed that the ground and first floors will form the main retail spaces. The floors will be raised slightly to create a higher attractive space at ground floor with the first floor remaining open. A new second floor is to be inserted at the level of the existing upper tier and with the basement this will act as staff and storage areas.
The first floor was used as the main performance space for the Salvation Army Band and was characterised by a stage at the western end, with tiered seating around the walls surrounding a central auditorium with a proscenium wall running along the front of the stage. This first floor interior was the important feature of the building to the Salvation Army as it was a popular performance space.
In Listed Building terms, the main character of the building is considered to be the open character of the space so it is important that this is retained. It is proposed for the first floor to be open and for the proscenium wall also to be retained. The retention of the open space also allows the original roof and laylight feature in the roof to also be visible which adds much to the character of the Listed Building.
The tiered seating at first and upper floor will be lost to enable this future use in the building but it is considered the open character of the building is what makes it special and this is retained by restricting the retail to two floors only. As such, the removal of the tiered seating is acceptable for the viability of the use also bearing in mind the alterations which have been made to the building over time (which include a new floor in the 1950s and the subdivision of the ground floor), a position supported by English Heritage. The existing sloping ceiling over the stage will be built up to create useable space extending the structure of the building but with the two original upper floor side windows to be retained and visible internally. In addition, the frame of the upper floor will remain through the retention of the decorative cast iron columns and trusses which support the gallery forming a feature at second floor level and ensuring the retention of the important features.
As in the applications to create 2 units, three of the four existing circulation cores are to be retained, refurbished and the stairs rebuilt in order to suit the floor levels which are to be re-justified to achieve the required floor heights and to allow level access from the new entrance into the ground floor. This retains the main layout of the building. The fourth circulation core is to be removed in the southwest corner of the building and an escalator between ground and first floor and a new lift are to be installed having the majority of impact on the ground floor space which has already been altered in the 1950’s and therefore, is not considered to be significantly detrimental to the character of the Listed building.
External alterations
The principal elevation which fronts Cross Burgess Street has a grand and elaborate façade and is characterised by five bays with castellated parapets and towers, the central of which is the largest and most elaborate with the windows either side positioned symmetrically forming an important feature of the elevation.
30 The building is constructed of red brick with ashlar stringcourses and door and windows surrounds to the principal elevation.
The corner element of the building has a sloped roof with a minor window and entrance door and which is not considered to have a particular special character and in the Listing description is described as a mid 20th century addition. As mentioned above, the sloped roof is to be heightened extending the useable internal space at first floor level and this results in a parapet wall to be built up to the same height as the parapet wall adjacent to Pinstone Chambers with existing detail reflected through into the extension ensuring that this element appears subservient to the main original frontage.
Rather than building up the extension from and continuing the original curve, this option to form 1 retail unit also involves the squaring off of the corner of the building which is considered to represent a significant alteration to the character of the building and has an unacceptable impact on the appearance of the Listed Building.
Windows to mimic the windows in the 2nd and 4th bays are to be created at first floor level allowing more light into the building with the first floor element set back from the main castellated tower to ensure it does not detract from the appearance of the original section which as projecting outer bays. A further 2 larger clear glazed window openings are to be created at ground floor level to form retail display windows with head and sill detailing but dropped to pavement level losing some of the brick detailing found in the arrangement of the windows in the main frontage. The existing entrance is also to be relocated 2metres to the east forming an additional glazed display unit mirroring the alterations to the existing entrance point to the end bay nearest Pinstone Chambers which is also to have full height glazing forming a further retail display unit.
As described, these alterations occur to either ends of the building which is considered the less architecturally prominent part of the façade and is considered acceptable and enables the creation of 4 display windows at ground floor level to support the viability of the use of the building for the creation of 1 retail unit.
As in the application to form 2 retail units, the entrance to the retail unit is to be created in the central bay utilising the existing window opening in the centre of the elevation and comprises the addition of glazed doors and a canopy in order to mark it as an entrance with the retention of the transom and upper part of the mullion at the upper section of the door. This was also the chosen entrance point involving similar alterations in previously approved schemes and therefore, it is reasonable to accept such a change.
In contrast to what is proposed to form 2 retail units. it is also proposed that the ground floor windows to either side of the newly created entrance in bays 2 and 4 are altered through the dropping of the sills and the removal of the central mullion from the lower part of the window to form large glazed windows either side of the entrance point also for retail display purposes.
31 At present, the first floor windows directly above these ground floor windows have mirrored proportions and detailing with transoms, mullions and sill heights reflected through both levels on the elevation. As such, it is considered that these alterations to the window proportions at ground floor result in the loss of the architectural integrity of the building as the ground floor appears separate from the first floor removing the existing repetition between floors and the hierarchy. The alterations as shown already allow for windows with dropped sills providing what is considered more than adequate retail display space. As such, it is considered that the conversion to all the ground floor openings would detrimentally affect the main fabric of the building and the architecturally strong feature and is at the expense of the character and appearance of the Listed Building.
The first floor treatment of the original building is to remain unchanged aside from replacement glazing if necessary and this is to be left open rather than blanked off.
With regard to the Burgess Street elevation, the existing lightwells are shown as blocked up to avoid encroachment onto the highway. The ground floor windows on the side elevation currently blocked up can be opened up providing some interest to this elevation and are conditioned as such (although it is likely that these will be blocked up if the New Retail Quarter plans are carried out as indicated).
The extension will be built over the existing sloping roof and it is proposed that this will be constructed in brick work to match the existing with a string course separating the old and new element and with a coping and dentil course at roof level. This provides a simple elevation to Burgess Street and allows the differentiation between the existing and new build and minimises the roof height so the existing roof structure which is to be retained is also visible in the background.
Much importance is attached to the protection of the historic environment and once lost, listed buildings cannot be replaced; “and they can be robbed of their special interest as surely by unsuitable alteration as be downright demolition. They present a finite resource and an irreplaceable asset” (paragraph 3.3 PPG15). As such, it is considered that the extent of the alterations proposed is too damaging to the Listed Building.
Impact on Conservation Area
This Listed Building at the gateway to Cross Burgess Street significantly contributes to the appearance of the City Centre Conservation Area. However, it is currently vacant and boarded up with some evidence of disrepair and as such, it is under valued in the City Centre and the Conservation Area. However, the external alterations proposed are considered to be harmful and insensitive to the appearance and character of the Listed Building and as such, would have a damaging impact on the appearance of the building in the Conservation Area.
Highways and Access issues
Although there is no space for car parking on the site, due to its location in the centre of the city, the site is very well served by public transport and is easily
32 accessed by pedestrians and is already a destination for shoppers as it falls on the route between Fargate and The Moor.
The approach to the proposed entrance is via existing public footpaths along Cross Burgess Street, which are generally 2metres wide with slight re-grading of the footpath in front of the entrance. The ground floor level in the building has been lowered in order to allow level access into the unit and to relate better to the existing pavement levels. The automatic glazed sliding entrance door ensures it would not open out over the highway and avoids previously proposed heavy swinging doors. Manifestation will be introduced into the full height glazed windows and doors.
Internally, a lift serves the second floor storage/staff area although access to the basement also would be welcomed. The tenants fit-out yet to be confirmed would also provide the required disabled toilets and other facilities.
A waste bin storage area is shown along the eastern elevation adjacent to Pinstone Chambers and a cycle storage area is also indicated along this elevation.
Servicing of the building is envisaged off the service lay-by on Pinstone Street which is acceptable.
Noise issues
The hours of use and character of use associated with retail outlets is such that there is not envisaged to be any particular noise or disturbance issues resulting from the development to surrounding residents. Retail units already surround the site but residential occupiers can be protected through restrictions to delivery times.
SUMMARY AND RECOMMENDATION
The proposal seeks to carry out alterations and an extension to the building for it to be used as 1 retail unit with associated café and storage. The internal alterations described are similar to those proposed to form 2 retail units and are considered to retain the overall character of the internal space and the features of the interior of the Listed Building.
Externally, although the extension takes a similar form as in the applications to create 2 retail units, the external alterations proposed to form 1 retail unit are considered too damaging. The loss of the curved corner and the alteration to the proportions of the windows either side of the main entrance are considered too significant and result in the loss of symmetry between the ground and first floor and results in the loss of the character and architecturally strong main façade. It is considered that there is some acceptance to allow alterations to secure a future use and this is shown through the creation of 4 large display windows at ground floor and the flexibility shown in allowing an extension to the building. However, the extent of the alterations proposed in the scheme to create 1 retail unit would damage the integrity of the Listed Building and detrimentally affect its character and appearance.
33
This will also have a harmful impact on the appearance of the building in the City Centre Conservation Area and as such, the proposals are considered to be contrary to the objectives of national guidance in PPG15 and UDP policies BE19 and BE16 and it is therefore, recommended that planning permission and listed building consent be refused.
34
Case Number 06/02859/LBC
Application Type Listed Building Consent Application
Proposal Alterations including internal alterations and extension to building to form retail outlet with cafe and storage (in accordance with amended plans received 6.08.07 and 23.4.07)
Location Sheffield Citadel Cross Burgess Street Sheffield S1 2HG
Date Received 21/07/2006
Team CITY CENTRE AND EAST
Applicant/Agent Ward McHugh Associates
Recommendation Refuse
For the following reason(s):
1 The Local Planning Authority consider that the extent of the external alterations to the building proposed by the development would detract from the special architectural and historic interest of the Salvation Army Citadel, a Grade II Listed Building and from the appearance of the building in the City Centre Conservation Area. In this respect the proposal is contrary to Policies BE19 and BE16 of the Unitary Development Plan and the objectives of PPG15.
35 Site Location
© Crown copyright. All rights reserved. 10018816. 2005
FOR REPORT SEE 06/02858/LBC
36
Case Number 06/04054/FUL
Application Type A Full Planning Application
Proposal Alterations to and use of Citadel as 2 retail units with provision of associated storage areas (in accordance with amended plans received 6.08.07 and 23.04.07)
Location Sheffield Citadel Cross Burgess Street Sheffield S1 2HG
Date Received 20/10/2006
Team CITY CENTRE AND EAST
Applicant/Agent Ward McHugh Associates
Recommendation Grant Conditionally
Subject to:
1 The development shall be begun not later than the expiration of three years from the date of this decision.
In order to comply with the requirements of the Town and Country Planning Act.
2 All basement openings in the existing highway shall be removed.
In the interests of traffic safety and the amenities of the locality.
3 Before the development is commenced, full details of suitable and sufficient cycle parking accommodation within the site shall have been submitted to and approved in writing by the Local Planning Authority and the shall not be used unless such cycle parking has been provided in accordance with the approved plans and, thereafter, such cycle parking accommodation shall be retained.
In the interests of traffic safety and the amenities of the locality.
4 At all times that construction/alteration works being carried out equipment shall be provided to the satisfaction of the Local Planning Authority for the effective cleaning of the wheels and bodies of vehicles leaving the site so as to prevent the depositing of mud and waste on the highway but before the development is commenced full details of such equipment shall have been submitted to and approved by the Local Planning Authority. When the
37 above-mentioned equipment has been provided thereafter such equipment shall be used for the sole purpose intended in all instances and be properly maintained.
In the interests of the safety of road users.
5 The footways abutting the site, if altered or re-graded, shall be reconstructed with materials compatible with the Urban Design Compendium and shall be approved in writing by the Local Planning Authority.
In order to ensure an appropriate quality of development. In the interests of pedestrian safety.
6 Servicing/deliveries to the site shall be restricted to the service lay-by on Pinstone Street.
In the interests of highway safety and the amenities of the locality.
7 No externally mounted plant or equipment for heating, cooling or ventilation purposes, nor grilles, ducts, vents for similar internal equipment, shall be fitted to the building unless full details thereof have first been submitted to and approved by the Local Planning Authority, and once installed such plant or equipment should not be altered without prior written approval of the Local Planning Authority.
In the interests of the amenities of the locality and occupiers of adjoining property.
8 No deliveries to the building shall be carried out between the hours of 2300 to 0700 hours Monday to Saturday and 2300 hours to 0900 hours Sundays and Public Holidays.
In the interests of the amenities of the locality and occupiers of adjoining property.
9 The bin stores shown on the drawings hereby approved shall be provided and thereafter retained
In the interests of the amenities of the locality and occupiers of adjoining property.
10 The development shall not be used unless a level threshold has been provided to both entrances thereto in accordance with details to be submitted to and approved in writing by the Local Planning Authority and thereafter such level threshold shall be retained.
To ensure ease of access and facilities for disabled persons at all times.
11 The use of the building shall be in accordance with Class A1 retail of the Town and Country Planning (Uses classes) Order, 1987.
38
In the interests of the amenities of the locality.
12 The materials to be used externally shall match those of the existing building in colour, shape, size and texture.
In order to ensure an appropriate quality of development.
13 Before the development is commenced samples of all proposed external materials and finishes, including windows, shall be submitted to and approved in writing by the Local Planning Authority. Thereafter, the development shall be carried out in accordance with the approved details.
In order to ensure an appropriate quality of development.
14 Before the development is commenced the following samples shall have been submitted to and approved in writing by the Local Planning Authority:
i) proposed facing materials ii) proposed roofing materials iii)proposed windows and doors
Thereafter, the development shall be carried out using the approved materials
In order to ensure an appropriate quality of development.
15 Before the commencement of development, large scale details, including materials and finishes, at a minimum of 1:20 of the items listed below shall be approved in writing by the Local planning Authority:
Windows Window reveals Doors Eaves and verges External wall construction Brickwork detailing Entrance canopies
Thereafter, the works shall be carried out in accordance with the approved details.
In order to ensure an appropriate quality of development.
16 A sample panel of the proposed masonry shall be erected on the site and shall illustrate the colour, texture, bedding and bonding of masonry and mortar finish to be used. The sample panel shall be approved in writing by the Local planning Authority prior to the commencement of the building works and shall be retained for verification purposes until the completion of such works.
39
In order to ensure an appropriate quality of development.
17 Heads and cills shall match in size, style, construction and materials those of the existing building.
In order to ensure an appropriate quality of development.
18 Prior to commencement of works, details of the extent and specification of brick/stone repair and cleaning shall have been submitted to and approved in writing by the Local Planning Authority and shall thereafter be carried out in accordance with the approved details.
In order to ensure that the fabric of the building is not damaged
19 There shall be no replacement, alteration or repair of any part of the original roof structure without the prior approval, in writing, of the Local Planning Authority of details of timbers to be removed, altered and repaired and details and specifications of all new replacement timber members.
In order to ensure that inappropriate alterations are avoided
20 Before the commencement of development, details and specifications of the following items shall have been submitted to and approved in writing by the Local Planning Authority:
Roof materials Ridge Valleys Eaves Verges
Thereafter, the development shall be carried out in accordance with the approved details.
In order to ensure an appropriate quality of development.
21 Rooflights shall be conservation style whereby no part of the rooflight shall project above the surface of the roofing slates unless otherwise agreed in writing by the Local Planning Authority.
In order to ensure an appropriate quality of development.
22 All the rainwater gutters, downpipes and external plumbing shall be of cast iron or cast aluminium construction and painted black unless otherwise agreed in writing by the Local Planning Authority. Gutters shall be fixed by means of hangers and brackets and no fascia boards shall be used.
In order to ensure an appropriate quality of development.
40 23 Chimney stacks and pots shall be retained and, where repaired, should be reinstated to their original appearance using materials to match existing unless otherwise agreed in writing by the Local Planning Authority.
In order to ensure an appropriate quality of development.
24 Existing windows shall be retained and repaired unless otherwise agreed in writing by the Local Planning Authority.
In order to protect the original fabric of the building and the character and appearance of the Conservation Area.
25 The details, specifications and finish of the new windows, including elevations and sections, shall be approved in writing by the Local Planning Authority before the commencement of development. Drawings shall be of a minimum of 1:10 scale and shall include details of proposed section sizes at a minimum of 1:1 scale. [Details shall include: reveal depths, double glazing, secondary glazing, shutters, mouldings, architraves, location of trickle vents]. Thereafter the development shall be carried out in accordance with the approved details.
In order to ensure an appropriate quality of development.
26 The first and ground floor windows on the Cross Burgess Street elevation shall remain clear glazed and shall not be blanked out with display material.
To allow natural daylight internally and retain the appearance of the Listed Building.
27 The ground floor windows on the Burgess Street elevation shall not be blocked up unless otherwise agreed in writing by the Local Planning Authority.
In order to ensure an appropriate quality of development.
28 Before the development commences, details, specifications and finishes of all new external doors, including frame section sizes, reveal depths and any mouldings and architraves at a minimum of 1:20 scale shall have been approved in writing by the Local planning Authority. Thereafter, the new doors shall be installed in accordance with the approved details.
In order to ensure an appropriate quality of development.
29 Before the development commences, details of the new internal floor structure and its abutment with the existing building structure shall have been approved in writing by the Local Planning Authority.
In order to ensure an appropriate quality of development.
41 30 Before the development commences, a schedule of all fixtures and fittings, with a photographic record, and details of their retention, repair, removal or relocation shall have been approved in writing by the Local Planning Authority. The development shall then be carried out in accordance with the approved schedule
In order to protect the character of the original building.
31 Before the development commences, details of the location, specification and appearance of all new services to the building (including meter boxes, outlets and inlets for gas, electricity, telephones, security systems, cabling, trunking, soil and vent stacks, fresh and foul water supply and runs, heating, air conditioning, ventilation, extract and odour control equipment, pipe runs and internal and external ducting) shall have been approved in writing by the Local Planning Authority.
In order to ensure an appropriate quality of development.
32 Before the development commences, details of installations and alterations arising from the requirements of fire protection, means of escape, acoustic attenuation and insulation, natural and mechanical ventilation, disabled access and the provision of natural and artificial lighting shall have been approved in writing by the Local Planning Authority.
In order to ensure an appropriate quality of development.
33 Before the development commences, details of proposals for the repair, alteration or concealment of existing signs shall have been approved in writing by the Local Planning Authority. The development shall then be carried out in accordance with the approved details
In order to ensure an appropriate quality of development.
34 This development shall be carried out in complete accordance with the approved plans drawing nos. 020, 021, 022, 025 dated 06/08/07, drawing nos. 023, 024 dated 23/04/07 unless otherwise authorised in writing by the Local Planning Authority.
In order to ensure an appropriate quality of development.
35 Before any work on site is commenced, a report shall have been submitted to and approved in writing by the Local Planning Authority identifying how the predicted energy needs of the development will be reduced by at least 10% through the use of on-site renewable energy equipment. Before any part of the development is occupied, the renewable energy equipment shall have been installed and thereafter retained and used, unless otherwise agreed in writing by the Local Planning Authority.
42 In order to ensure that new development makes energy savings in the interests of mitigating the effects of climate change.
36 Before work on site is commenced, full details of the access and facilities for people with disabilities, as shown on the plans, shall have been submitted to and approved in writing by the Local Planning Authority and the development shall not be used unless such access and facilities have been provided in accordance with the approved plans and thereafter such access and facilities shall be retained.
To ensure ease of access and facilities for disabled persons at all times.
Attention is drawn to the following justifications:
1. The decision to grant planning permission and impose any conditions has been taken having regard to the policies and proposals in the Sheffield Unitary Development Plan set out below, and to all relevant material considerations, including Supplementary Planning Guidance.
PPG15 S3 - Development in the Central Shopping Core BE19 - Development affecting Listed Buildings BE16 - Development in Conservation Areas S10 - Conditions on Development in Shopping Areas BE7 - Design of Buildings Used by the Public
This informative is intended as a summary of the reasons for grant of planning permission.
43 Site Location
© Crown copyright. All rights reserved. 10018816. 2005
LOCATION AND PROPOSAL
The former Salvation Army Citadel was used as the headquarters and performance space for the Salvation Army for many years from first construction about 1890 until the late 1990’s. It is a Grade II listed building and adjoins the rear of 48-62 Pinstone Street (occupied by retail units with residential apartments above), with its main elevation and entrance to Cross Burgess Street. It side elevation faces on to Burgess Street and is bound to the rear by 31 Burgess Street, currently the Lions Lair Public House.
The site falls within the Central Shopping Area as designated in the Sheffield Unitary Development Plan. The site is also within the City Centre Conservation
44 Area. The proposed ‘New Retail Quarter’ development which now has outline planning consent is indicated at ‘wrapping round’ the Citadel building.
The building is currently vacant and has been since the Salvation Army relocated in 1999. The current applications seek full planning permission and listed building consent for external and internal alterations and an extension to the building to form 2 retail units with the provision of associated storage areas.
RELEVANT PLANNING HISTORY
Planning permission and listed building consent were granted on 21 August 2000 for Food and Drink use (then Class A3) and alterations to form a new entrance to Cross Burgess Street (00/00919/FUL and 00/00918/LBC refers). Condition 4 of these permissions limited the hours of opening to 0800-2400 hours on any day. The listed building consent required details of internal alterations by condition.
Planning permission and listed building consent were granted on 18th June 2001 and 10th July 2001 for external alterations to the building for use as Class A3 public house including a new shop front with conditions relating to the above consents also attached (01/00653/FUL and 01/00638/LBC refers).
Permission was refused on 30 April 2002 for the extension of opening hours until 0200 hours (Variation of Condition 4 of the permission of 21 August 2000) (01/10558/FUL refers). An appeal against this decision was dismissed on 2 January 2003 (02/00077/WR refers).
On 9 July 2004 a lawful use application to establish the use of the building as a Live Music/Concert Hall and Assembly Use for Social and Leisure (Class D2 Assembly and Leisure) was refused (04/01826/LU1 refers).
An application for planning permission and listed building consent for Food and Drink (former Class A3) until 0200 hours with sound attenuation and disabled access was due to be recommended for refusal at Area Board, but was withdrawn on 16 November 2004 (04/02970/FUL and 04/02969/LBC refers).
Planning permission was granted on 31 March 2006 for the renewal of the original Food and Drink permission of 21 August 2000 opening until 2400 hours (05/02806/FUL refers). The accompanying listed building application was undetermined pending submission of a historic building appraisal, this has since been withdrawn on 19th December 2006 (05/02812/LBC).
On 27 April 2006 the applicants appealed against the non-determination of the application for a Drinking Establishment (Class A4) opening until 0200 hours (05/02832/FUL refers). This application and appeal was withdrawn on 27th December 2006 and the accompanying application for listed building consent (05/02840/LBC refers) that had also not been determined was withdrawn on 19th December 2006.
Outline planning permission and associated Conservation Area Consent was granted on 6th November 2006 (05/03933/OUT refers) and 22nd August 2006
45 (05/03595/CAC refers) for the New Retail Quarter – a mixed use development comprising of refurbishment/change of use of existing buildings and erection of buildings for retail use (use classes A1, A2, A3, A4, A5), housing (C3), night club, health and fitness club, multi-storey car parking and ancillary uses including the closure and alterations of public highways, vehicular access, servicing facilities, formation of open space & associated landscaping. Indicative plans show that the new buildings associated with this scheme will abut up to the Citadel building.
Planning permission and listed building consent is also sought for alterations including internal alterations and extension to building to form a single retail outlet with café and storage (06/02858/FUL and 06/02859/LBC) and is pending consideration with a recommendation for refusal, also on this agenda.
SUMMARY OF REPRESENTATIONS
There has been 1 letter of representation received from local residents commenting that there will be an issue of noise pollution from the use of the building to surrounding residents from sources such as venting equipment, deliveries and patrons
English Heritage: Did not offer any comments for these applications but recommended that the application should be determined in accordance with national and local policy guidance, and on the basis of specialist conservation advice.
Conservation Advisory Group: The Group were consulted on the original plans and felt that the scheme was too destructive for the property both internally and externally and, in particular, the removal of the mullions and transepts of the fenestration as proposed would have a damaging effect on the character of the Listed Building. The Group recommended that a more preferable use of the building would be as something, which maintained the open character of the interior space, such as a restaurant, coffee shop or book shop. The Group welcomed the return to the existing roofline and the retention of part of the open space but were concerned about the effects of the changes.
PLANNING ASSESSMENT
The site lies within the Central Shopping Area in the Unitary Development Plan. Policy S3 ‘Development in the Central Shopping Area’ lists preferred uses which comprises of Shops (Use Class A1), Offices used by the public (A2), food and drink outlets (A3) and housing (C3). As such, the use of the building as retail units constitutes one of the preferred uses and is acceptable in principle subject to compliance with other relevant UDP policies.
Policy S10(b) requires that change of use should not cause residents of any housing to suffer from unacceptable living conditions, noise or other nuisance or risk to health and safety and be well designed and of a scale and nature appropriate to the site and provide safe access to the highway network and not endanger pedestrians.
46 The Citadel is a Grade 2 listed building and is located within the City Centre Conservation Area. Policy BE19 requires the internal and external alteration of listed buildings to preserve their character and appearance and where appropriate to preserve or repair original details and features of interest. Changes of use are expected to preserve the character of the building. The original use of a Listed Building will be preferred but other uses will be considered where they would enable the future of the building to be secured especially as it can also create an opportunity for community needs or help economic regeneration.
Policy BE16 requires proposals to preserve or enhance the character or appearance of the Conservation Area. It also states that buildings which make a positive contribution to the character or appearance of a Conservation Area will be retained.
National policy which covers Listed Buildings and Conservation Areas is found in Planning Policy Guidance note 15: Planning and the historic environment (PPG15). This outlines that the prime consideration for authorities in determining an application for consent is to protect any listed building from unnecessary demolition and from unsuitable or insensitive alteration.
Policy BE7 ’Design of Buildings used by the Public’ expects buildings used by the public to have safe, easy and equal access for people with disabilities.
The site lies within the New Retail Quarter, a retail-led mixed use regeneration scheme intended to remedy long-standing structural problems with city centre shopping. The NRQ was first proposed in the City Centre Master Plan (2000) as one of the principal regeneration projects in the City Centre. The Council adopted Supplementary Planning Guidance in July 2002 defining the boundary and protecting it from unsuitable retail development outside it. The Citadel is shown as retained, but Burgess Street is to be closed and a New Burgess Street with shops both sides and flats above on the east side will replace it. On 21 August 2006 the Council resolved to grant outline planning permission for the NRQ subject to any call-in by the Secretary of State.
Guideline 4 of the SPG requires amongst other things that the NRQ should have a complementary mix of uses including housing which should be integrated with the development, subject to residential amenity.
Impact on Listed Building
Paragraph 3.4 of PPG15 states that application for listed building consent must justify their proposals and show why works which would affect the character of a listed building are desirable or necessary. Some evidence of marketing of the building has been provided to expand on the reasons for requiring the change of use. This has claimed that leisure operators (Class A3 for which it already has permission) required a late license which was not suitable in this location and with conversion costs, would not commit to this location. The oncoming New Retail Quarter would increase the footfall along Cross Burgess Street increasing the demand for retail space. However, securing a successful future use for the
47 building should not be at the expense of the architectural merit and character of the Listed Building; the extent of works proposed are assessed below.
Internal alterations
The Citadel is arranged over four floors; basement, ground floor, first floor and upper tier. In a similar way to the proposals to form 1 retail unit, it is proposed that the ground and first floors will form the main retail spaces. The floors will be raised slightly to create a higher attractive space at ground floor and this level will be subdivided to provide 2 separate retail spaces. A new second floor is to be inserted at the level of the existing upper tier providing staff and storage space for retail unit 1 and with the basement and a small proportion of first floor forming staff and storage space for retail unit 2.
The first floor was used as the main performance space for the Salvation Army Band and was characterised by a stage at the western end, with tiered seating around the walls surrounding a central auditorium with a proscenium wall running along the front of the stage. This first floor interior was the important feature of the building to the Salvation Army as it was a popular performance space.
In Listed Building terms, the main character of the building is considered to be the open character of the space so it is important that this is retained. The subdivision to form the two units at first floor is at a logical point within the space and situated adjacent to the proscenium wall, allowing for its retention as well as the creation of two units without compromising the appearance of the space. The retention of the open space also allows the original roof and laylight feature in the roof to also be visible which adds much to the character of the Listed Building.
The tiered seating at first and upper floor will be lost to enable this future use in the building but it is considered the open character of the building is what makes it special and this is retained by restricting the retail to two floors only. As such, the removal of the tiered seating is acceptable for the viability of the use also bearing in mind the alterations which have been made to the building over time (which include a new floor in the 1950s and the subdivision of the ground floor), a position supported by English Heritage. The existing sloping ceiling over the stage will be built up to create useable space extending the structure of the building but with the two original upper floor side windows to be retained and visible internally. In addition, the frame of the upper floor will remain through the retention of the decorative cast iron columns and trusses which support the gallery forming a feature at second floor level and ensuring the retention of the important features.
As in the applications to form 1 unit, three of the four existing circulation cores are to be retained, refurbished and the stairs rebuilt in order to suit the floor levels which are to be re-justified to achieve the required floor heights and to allow level access from the new entrance into the ground floor. This retains the main layout of the building. The fourth circulation core is to be removed in the southwest corner of the building and an escalator between ground and first floor and a new lift are to be installed having the majority of impact on the ground floor space which has already been altered in the 1950’s and therefore, is not considered to be significantly detrimental to the character of the Listed building.
48
External alterations
The principal elevation which fronts Cross Burgess Street has a grand and elaborate façade and is characterised by five bays with castellated parapets and towers, the central of which is the largest and most elaborate with the windows either side positioned symmetrically forming an important feature of the elevation. The building is constructed of red brick with ashlar stringcourses and door and windows surrounds to the principal elevation.
The corner element of the building has a sloped roof with a minor window and entrance door and which is not considered to have a particular special character and in the Listing description is described as a mid 20th century addition. As mentioned above, the sloped roof is to be heightened extending the useable internal space at first floor level and this results in a parapet wall to be built up to the same height as the parapet wall adjacent to Pinstone Chambers with existing detail reflected through into the extension ensuring that this element appears subservient to the main original frontage.
In contrast to the option to form 1 unit, the extension will build up from the corner of the building retaining the curved corner which is integral to the existing appearance of the building and utilising curved glass at ground floor level to achieve the desired window proportions whilst maintaining the curve. The curve is retained through into the extension which is respectful of the appearance of the Listed Building.
Windows to mimic the windows in the 2nd and 4th bays are to be created at first floor level allowing more light into the building with the first floor element set back from the main castellated tower to ensure it does not detract from the appearance of the original section which as projecting outer bays. Larger clear glazed window openings are to be created at ground floor level to form retail display windows with head and sill detailing with several courses of brickwork continued underneath in order for them to tie in with the existing elevation.
As in the applications to form 1 retail unit, the existing entrance is also to be relocated 2metres to the east but this will form the entrance into unit 2 comprising of a fully glazed door mirroring the proportions to the existing entrance point to the end bay nearest Pinstone Chambers which is also to have full height glazing forming a further retail display unit.
As described, these alterations occur to either ends of the building which is considered the less architecturally prominent part of the façade and is considered acceptable and enables the creation of 4 display windows at ground floor level to support the viability of the use of the building for retail purposes.
As in the application to form 1 retail unit, the main entrance to retail unit 1 is to be created in the central bay utilising the existing window opening in the centre of the elevation and comprises the addition of glazed doors and a canopy in order to mark it as an entrance with the retention of the transom and upper part of the mullion at the upper section of the door. This was also the chosen entrance point
49 involving similar alterations in previously approved schemes and therefore, it is reasonable to accept such a change.
A significant alteration from that proposed in creating the 1 retail option is that this scheme proposes to retain the existing windows to either side of the newly created entrance in their present form with the mullion and transom detailing, heads and sills and glazing bars all retained. This retains the original character of the façade and enables the main element of this elevation to remain architecturally strong and ensures that the repetition and link between ground and first floor is retained. As such, the lack of alteration to these windows helps preserve the character and appearance of the Listed Building in line with UDP policy BE19. It is considered that their retention also helps offset the extent of the alterations proposed to either end of the building which provides 2 large glazed display windows per unit which is suitable for retail purposes.
The first floor window treatment of the original building is to remain unchanged aside from replacement glazing if necessary and this is to be left open rather than blanked off.
With regard to the Burgess Street elevation, the existing lightwells are shown as blocked up to avoid encroachment onto the highway. The ground floor windows on the side elevation currently blocked up can be opened up providing some interest to this elevation and are conditioned as such (although it is likely that these will be blocked up if the New Retail Quarter plans are carried out as indicated).
The extension will be built over the existing sloping roof and it is proposed that this will be constructed in brickwork to match the existing with a string course separating the old and new element and with a coping and dentil course at roof level. This provides a simple elevation to Burgess Street and allows clear differentiation between the existing and new build and minimises the roof height so the existing roof structure which is to be retained is also visible in the background.
Signage for the two units is envisaged to be affixed over the top of the existing horizontal band inscribed ‘Salvation Army Citadel’ with the lettering retained underneath which is acceptable in principle. However, the signage will be subject to Advertisement Consent.
Impact on Conservation Area
This Listed Building at the gateway to Cross Burgess Street significantly contributes to the appearance of the City Centre Conservation Area. However, it is currently vacant and boarded up with some evidence of disrepair and as such, it is under valued in the City Centre and the Conservation Area. If a viable future use can be achieved for the building which also enables the retention of the important architectural features and character of the Listed Building as described above, then this will enhance the character and appearance of the building in the City Centre Conservation Area and in the overall City Centre.
Highways and Access issues
50 Although there is no space for car parking on the site, due to its location in the centre of the city, the site is very well served by public transport and is easily accessed by pedestrians and is already a destination for shoppers as it falls on the route between Fargate and The Moor.
The approach to the proposed entrance is via existing public footpaths along Cross Burgess Street, which are generally 2metres wide with slight re-grading of the footpath proposed in front of the entrance. The ground floor level in the building has been lowered in order to allow level access into both units and to relate better to the existing pavement levels. The automatic glazed sliding entrance door ensures it would not open out over the highway and avoids previously proposed heavy swinging doors. Manifestation will be introduced into the full height glazed windows and doors.
Internally, a lift serves the second floor storage/staff area although access to the basement for disabled members of staff would also be welcomed. The tenants fit- out yet to be confirmed would also provide the required disabled toilets and other facilities with details conditioned.
A waste bin storage area is shown along the eastern elevation adjacent to Pinstone Chambers and a cycle storage area is also indicated along this elevation which should be implemented and retained.
Servicing of the building is envisaged off the service lay-by on Pinstone Street which is acceptable.
Noise issues
The hours of use and character of use associated with retail outlets is such that there is not envisaged to be any particular noise or disturbance issues resulting from the development to surrounding residents. Retail units already surround the site but residential occupiers can be protected through a condition attached to restrict delivery times.
SUMMARY AND RECOMMENDATION
The proposal seeks to carry out alterations and an extension to the building for it to be used as 2 retail units. The internal alterations described are similar to those proposed to form 1 retail unit and are considered to retain the overall character of the internal space and the features of the interior of the Listed Building.
Externally, the proposal, although involving the construction of an extension, has managed to retain the main important architectural features such as the curved corner and the ground floor windows which represent the main character of the Listed Building whilst still providing some larger display windows to identify the building as a retail outlet. As such, it is considered that the balance and symmetry of the Cross Burgess Street elevation has been retained maintaining the integrity of the Listed Building but allowing some flexibility to the building to secure its future.
51 Successful conversion of the building will restore this vacant Listed Building, improve its appearance in the City Centre Conservation Area and will form a prominent gateway to future development in the City Centre. As such, it is considered to comply with the objectives of national guidance in PPG15 and UDP policies S3, BE19, BE16, BE7 and S10 and it is therefore, recommended that planning permission and listed building consent be granted conditionally.
52
Case Number 06/04055/LBC
Application Type Listed Building Consent Application
Proposal Alterations to and use of Citadel as 2 retail units with provision of associated storage areas (in accordance with amended plans received 6.08.07 and 23.04.07)
Location Sheffield Citadel Cross Burgess Street Sheffield S1 2HG
Date Received 30/10/2006
Team CITY CENTRE AND EAST
Applicant/Agent Ward McHugh Associates
Recommendation Grant Conditionally
Subject to:
1 The development shall be begun not later than the expiration of three years from the date of this decision.
In order to comply with the requirements of the Town and Country Planning Act.
2 The materials to be used externally shall match those of the existing building in colour, shape, size and texture.
In order to ensure an appropriate quality of development.
3 Before the development is commenced samples of all proposed external materials and finishes, including windows, shall be submitted to and approved in writing by the Local Planning Authority. Thereafter, the development shall be carried out in accordance with the approved details.
In order to ensure an appropriate quality of development.
4 Before the development is commenced the following samples shall have been submitted to and approved in writing by the Local Planning Authority:
i) proposed facing materials ii) proposed roofing materials iii)proposed windows and doors
53 Thereafter, the development shall be carried out using the approved materials
In order to ensure an appropriate quality of development.
5 Before the commencement of development, large scale details, including materials and finishes, at a minimum of 1:20 of the items listed below shall be approved in writing by the Local planning Authority:
Windows Window reveals Doors Eaves and verges External wall construction Brickwork detailing Entrance canopies
Thereafter, the works shall be carried out in accordance with the approved details.
In order to ensure an appropriate quality of development.
6 A sample panel of the proposed masonry shall be erected on the site and shall illustrate the colour, texture, bedding and bonding of masonry and mortar finish to be used. The sample panel shall be approved in writing by the Local planning Authority prior to the commencement of the building works and shall be retained for verification purposes until the completion of such works.
In order to ensure an appropriate quality of development.
7 Heads and cills shall match in size, style, construction and materials those of the existing building.
In order to ensure an appropriate quality of development.
8 Prior to commencement of works, details of the extent and specification of brick/stone repair and cleaning shall have been submitted to and approved in writing by the Local Planning Authority and shall thereafter be carried out in accordance with the approved details.
In order to ensure that the fabric of the building is not damaged
9 There shall be no replacement, alteration or repair of any part of the original roof structure without the prior approval, in writing, of the Local Planning Authority of details of timbers to be removed, altered and repaired and details and specifications of all new replacement timber members.
In order to ensure that inappropriate alterations are avoided
54 10 Before the commencement of development, details and specifications of the following items shall have been submitted to and approved in writing by the Local Planning Authority:
Roof materials Ridge Valleys Eaves Verges
Thereafter, the development shall be carried out in accordance with the approved details.
In order to ensure an appropriate quality of development.
11 Rooflights shall be conservation style whereby no part of the rooflight shall project above the surface of the roofing slates unless otherwise agreed in writing by the Local Planning Authority.
In order to ensure an appropriate quality of development.
12 All the rainwater gutters, downpipes and external plumbing shall be of cast iron or cast aluminium construction and painted black unless otherwise agreed in writing by the Local Planning Authority. Gutters shall be fixed by means of hangers and brackets and no fascia boards shall be used.
In order to ensure an appropriate quality of development.
13 Chimney stacks and pots shall be retained and, where repaired, should be reinstated to their original appearance using materials to match existing unless otherwise agreed in writing by the Local Planning Authority.
In order to ensure an appropriate quality of development.
14 Existing windows shall be retained and repaired unless otherwise agreed in writing by the Local Planning Authority.
In order to protect the original fabric of the building and the character and appearance of the Conservation Area.
15 The details, specifications and finish of the new windows, including elevations and sections, shall be approved in writing by the Local Planning Authority before the commencement of development. Drawings shall be of a minimum of 1:10 scale and shall include details of proposed section sizes at a minimum of 1:1 scale. [Details shall include: reveal depths, double glazing, secondary glazing, shutters, mouldings, architraves, location of trickle vents]. Thereafter the development shall be carried out in accordance with the approved details.
In order to ensure an appropriate quality of development.
55
16 The first and ground floor windows on the Cross Burgess Street elevation shall remain clear glazed and shall not be blanked out with display material .
To allow natural daylight internally and retain the appearance of the Listed Building.
17 The ground floor windows on the Burgess Street elevation shall not be blocked up unless otherwise agreed in writing by the Local Planning Authority.
In order to ensure an appropriate quality of development.
18 Before the development commences, details, specifications and finishes of all new external doors, including frame section sizes, reveal depths and any mouldings and architraves at a minimum of 1:20 scale shall have been approved in writing by the Local planning Authority. Thereafter, the new doors shall be installed in accordance with the approved details.
In order to ensure an appropriate quality of development.
19 Before the development commences, details of the new internal floor structure and its abutment with the existing building structure shall have been approved in writing by the Local Planning Authority.
In order to ensure an appropriate quality of development.
20 Before the development commences, a schedule of all fixtures and fittings, with a photographic record, and details of their retention, repair, removal or relocation shall have been approved in writing by the Local Planning Authority. The development shall then be carried out in accordance with the approved schedule
In order to protect the character of the original building.
21 Before the development commences, details of the location, specification and appearance of all new services to the building (including meter boxes, outlets and inlets for gas, electricity, telephones, security systems, cabling, trunking, soil and vent stacks, fresh and foul water supply and runs, heating, air conditioning, ventilation, extract and odour control equipment, pipe runs and internal and external ducting) shall have been approved in writing by the Local Planning Authority.
In order to ensure an appropriate quality of development.
22 Before the development commences, details of installations and alterations arising from the requirements of fire protection, means of escape, acoustic attenuation and insulation, natural and mechanical ventilation, disabled access and the provision of natural and artificial lighting shall have been approved in writing by the Local Planning Authority.
56
In order to ensure an appropriate quality of development.
23 Before the development commences, details of proposals for the repair, alteration or concealment of existing signs shall have been approved in writing by the Local Planning Authority. The development shall then be carried out in accordance with the approved details
In order to ensure an appropriate quality of development.
24 This development shall be carried out in complete accordance with the approved plans Nos. 020, 021, 022, 025 dated 06/08/07, drawings nos. 023, 024 dated 23/04/07 unless otherwise authorised in writing by the Local Planning Authority.
In order to ensure an appropriate quality of development.
Attention is drawn to the following justifications:
1. The decision to grant planning permission and impose any conditions has been taken having regard to the policies and proposals in the Sheffield Unitary Development Plan set out below, and to all relevant material considerations, including Supplementary Planning Guidance.
PPG15 - S3 - Development in Central Shopping Core BE19 - Development affecting Listed Buildings BE16 - Development in Conservation Areas S10 - Conditions on Development in Shopping Areas BE7 - Design of Buildings Used by the Public
This informative is intended as a summary of the reasons for grant of planning permission.
57 Site Location
© Crown copyright. All rights reserved. 10018816. 2005
FOR REPORT SEE 06/04054/FUL
58
Case Number 07/00655/CHU
Application Type Planning Application for Change of Use
Proposal Use of ground and first floors as a Madrissa (Religious Teaching School) and place of worship
Location 703 Abbeydale Road Sheffield S7 2BE
Date Received 15/02/2007
Team SOUTH
Applicant/Agent Mr Sahibzada & M Akhtar
Recommendation Grant Conditionally
Subject to:
1 Notwithstanding the terms of the Town and Country (Use Classes) Order 1987 or any other statutory instrument revisiting or re-enacting that order the ground and first floor of the building shall be used solely for the use permitted being for religious purposes of worship and shall not be used for any other activity.
In the interests of the amenities of the locality and occupiers of adjoining property.
2 No more than 40 children shall be accommodated in the building at any one time for teaching purposes unless otherwise agreed in writing by the Local Planning Authority.
In the interests of the amenities of the locality and occupiers of adjoining property.
3 No amplified sound or live music shall be played either within or without the premises nor shall loudspeakers be fixed at any time outside the building.
In the interests of the amenities of the locality and occupiers of adjoining property.
Attention is drawn to the following justifications:
1. The decision to grant planning permission and impose any conditions has been taken having regard to the policies and proposals in the Sheffield
59 Unitary Development Plan set out below, and to all relevant material considerations, including Supplementary Planning Guidance.
S7 - Development in District and Local Shopping Centres S10 - Conditions on Development in Shopping Areas CF1 - Provision of Community Facilities
This informative is intended as a summary of the reasons for grant of planning permission. For further detail on the decision please see the application report by contacting the Planning Records section on 2734215.
Site Location
© Crown copyright. All rights reserved. 10018816. 2005
60 LOCATION & PROPOSAL
The site is located in a District Shopping Centre and comprises a single shop unit fronting onto Abbeydale Road. There is a passage at the side leading to the communal rear yard and to the rear shop access. There are shops either side and separate flats on the first floor above. Access to the flat above the site is gained from the rear yard.
The site is at the lower end of the shopping centre and there is housing beyond the adjoining two shops. Across the road there are more shops and at the rear, housing.
Planning consent already exists for the ground and first floor of this building to be used as a Madressa (Religious Teaching School) and for a mosque. This planning consent was for a temporary 15 month period only which expired on 17 January 2007. This temporary consent was granted on the basis of the following:
− The maximum number of children would be 40. − Teaching of boys and girls will be separated to first and ground floors. − Five periods of worship are applied for, from sunrise to sunset with additional worship for Ramadan, which is after sunset. − Worship would occur on the ground and first floor avoiding the teaching periods. − For Friday mid-afternoon prayers, up to 100 people may attend. Also, up to the same number would attend evening prayers for Ramadan. − For the remaining times of prayer the numbers would be no more than 20. At first prayer between 3 and 5 people normally attend. − There would be no amplified call to prayer. − The applicant indicates that most people will walk to the site because they live close by.
This new application seeks permanent planning consent for use of the building as a Madressa and Mosque on the same basis as that approved for the recently expired temporary planning consent. The use at the site has continued, even with the expiry of the consent so this application is retrospective.
REPRESENTATIONS
One letter from a neighbour has been received:
- There should be no amplified call to prayer. - Children should be adequately supervised at all times. - Maximum occupancy should be limited to 100 for Friday afternoon prayers.
RELEVANT SITE HISTORY
22/7/2003 Planning Consent granted for use of ground floor as a Madressa (03/01462/CHU).
61 18/10/2005 Planning Consent granted for a period of 15 months for use of ground and first floors as a Madressa and place of worship (05/00631/CHU).
PLANNING ASSESSMENT
Policy Issues
The site is part of a District Shopping Centre and Community Facilities and Institutions (Use Class D1) are acceptable in principle. Policy S10 deals with conditions in shopping areas stating that changes of use should only be allowed if:
- The preferred use (retail) is allowed to remain dominant. - Existing residents should not be affected by pollution, noise or disturbance. - Be served adequately by public transport, provide safe access to the public highway and be served adequately by public transport, provide safe access to the public highway and be served by appropriate off street car parking.
Policy CF1 of the Unitary Development Plan (UDP) deals with the provision of community facilities and it states that these should be promoted where there is a shortage, be located within the community they are intended to serve and be easily accessible by public transport.
Dominance Of The Preferred Retail Use
The application site has had planning consent for a Madressa since 2003 and the ground floor has been in this use since then. The proposal is to continue the use on a permanent basis so the overall balance of the shopping centre would not alter and there would be no conflict with policy S10 here.
The application site is a small unit without a forecourt and the activity would result in pedestrian activity within and around the shop unit, which would contribute to the vitality and viability of the centre.
Benefit To The Community
Policy CF1 sets out the policy criteria and given the nature of the application there is a demand or shortfall of this use in the area. The applicant has confirmed that it is within the community it is intended to serve and it is well served by public transport, being located along Abbeydale Road. The proposal would comply with this policy but there are other issues to consider.
Noise And Disturbance
The previous application which granted the Madressa and Mosque use for a temporary period (05/00631/CHU) was done for a limited period only because of concerns that unacceptable levels of noise and disturbance would affect neighbours.
62 The application is for a permanent consent on the same basis that approved on a temporary basis. Since the temporary use gained planning approval the site has been used as a Madressa for up to 40 children and for the purposes of worship.
Your officers understand that for prayers, the numbers are relatively low apart from Friday lunchtimes when there can be up to 100 people in attendance. There is no amplified call to prayer and any possible noise would be inked to the movement of people before and after prayers and teaching. During the temporary period, there have been no complaints about noise and the neighbour consultation exercise only resulted in one letter from an adjoining resident. This is a clear indication that the use does not give rise to significant noise and disturbance. The applicant intends to continue the use on exactly the same basis as that done as part of the temporary consent. Consequently, there would be no increase in numbers attending the site for purposes of teaching or worship.
It is considered that continuation of the use of the basis of that granted as part of the temporary consent would not cause significant noise or disturbance and there would be no conflict wit policy S10 of the UDP.
Parking, Transportation & Access
The site faces Abbeydale Road and there are frequent buses close to the site, so public transport links are good. The shopping centre also experiences a lot of pedestrian movements.
There is no off-street parking provision associated with the site, or any available along the immediate street frontage. There are residential roads at the rear of the site but these are heavily parked by shoppers in the day and residents at night, so there is little or no availability here.
Once again, there have been no complaints from local residents since consent was granted for the temporary consent and given that there would be no increase in numbers using the premises, the parking and access circumstances would not alter. Consequently, there would be no significant impact on parking and traffic flow and the permanent use would be acceptable in this respect.
RESPONSE TO REPRESENTATIONS
There would be no amplified call to prayer, which would be controlled by an appropriate condition.
The maximum number of prayer attendees would remain at 100.
SUMMARY AND RECOMMENDATION
The site is a single unit within a District Shopping Centre and it fronts onto Abbeydale Road, which is very busy. There is a passage at the side of the shop that leads to a communal yard at the rear and to the access for the flat above. There are shops either side and there are parking restrictions at the front.
63 The site had the benefit of a temporary planning consent that restricted the numbers of people using the teaching and workshop facilities. This new application seeks a permanent planning consent for the same uses. There have been no complaints about noise, disturbance or traffic problems and the period of the temporary consent has demonstrated that the use can operate without causing harm to neighbours.
There would be undoubted benefits to the community and the application would comply with policies CF1 and S10 of the UDP. The application is therefore, recommend for conditional approval.
64
Case Number 07/01414/FUL
Application Type A Full Planning Application
Proposal Alterations to existing building to form 5 apartments, demolition of existing garage and erection of building to form 3 further apartments
Location 131 Psalter Lane Sheffield S11 8UX
Date Received 04/04/2007
Team SOUTH
Applicant/Agent DLP Planning Ltd
Recommendation Grant Conditionally
Subject to:
1 The development shall be begun not later than the expiration of three years from the date of this decision.
In order to comply with the requirements of the Town and Country Planning Act.
2 Before the development is commenced samples of all proposed external materials and finishes, including windows, shall be submitted to and approved in writing by the Local Planning Authority. Thereafter, the development shall be carried out in accordance with the approved details.
In order to ensure an appropriate quality of development.
3 All new windows and doors shall be of timber construction.
In the interests of the visual amenities of the locality.
4 Notwithstanding the provisions of the Town and Country Planning (General Permitted Development) Order 1995 (and any order revoking and re- enacting the order) windows or other openings shall be formed in the development hereby permitted without the prior written permission of the Local Planning Authority.
To safeguard the privacy and amenity of occupiers of neighbouring properties.
65 5 Before any work on site is commenced, a landscape scheme for the site shall have been submitted to and approved by the Local Planning Authority. The scheme shall be carried out in accordance with the approved details within 1 month of the occupation of the development or within an alternative timescale to be first agreed in writing with the Local Planning Authority. When the above-mentioned landscaping has been carried out, thereafter the landscaped areas shall be retained. The landscaped areas shall be cultivated and maintained for 5 years from the date of implementation and any failures within that 5 year period shall be replaced in accordance with the approved details unless otherwise authorised in writing.
In the interests of the amenities of the locality.
6 No trees, shrubs or hedges existing within the site of the development shall be destroyed or otherwise removed and no tree shall be lopped or topped, without the prior written agreement of the Local Planning Authority, but if notwithstanding this condition any tree, hedge, part of a hedge or shrub is removed or destroyed or damaged to such a degree that in the opinion of the Local Planning Authority its removal is necessary, then a replacement shall be planted of a species and size to be approved by the Local Planning Authority prior to planting. Any such replacement shall be cultivated and maintained for 5 years and any failure within that 5 year period shall be replaced with like species unless otherwise agreed in writing by the Local Planning Authority.
In the interests of the amenities of the locality.
7 Before any work on site is commenced full details of the measures to be taken to protect the existing trees within and/or adjoining the site of the development during trees shall be submitted to and approved in writing by the Local Planning Authority. These measures shall include means of preventing the ground beneath the canopy of such trees and/or hedges from being disturbed or used for storing materials of any kind.
In the interests of the amenities of the locality.
8 The dwellings and flats shall not be used unless car parking accommodation has been provided in accordance with the approved plans and thereafter such car parking accommodation shall be retained for the sole purpose intended.
In the interests of traffic safety and the amenities of the locality.
9 Before the development is commenced full details of a revised turning head for service vehicles shall be submitted to, and approved in writing by, the Local Planning Authority. Before occupation of the development this facility shall be implemented and so retained thereafter.
In order that service vehicles may enter and exit the site in forward gear in the interests of highway safety.
66
10 The flats shall not be used unless covered, secure cycle parking accommodation has been provided within the site in accordance with details to have first been submitted to and approved in writing by the Local Planning Authority and thereafter such cycle parking accommodation shall be retained.
In the interests of traffic safety and the amenities of the locality.
11 The dwellings and flats shall not be used unless suitable bin storage facilities have been provided within the site in accordance with details to have first been submitted to and approved in writing by the Local Planning Authority and thereafter such bin storage facilities shall be retained.
In the interests of the amenities of the locality.
12 The development shall not be commenced until details of a suitable close boarded fence on the eastern boundary have been submitted to, and approved in writing by, the Local Planning Authority. Before the development is occupied the fence shall have be erected and thereafter retained and maintained.
In the interests of the amenity of neighbouring dwellings.
13 Full details of any proposed external lighting, including details of intensity, direction, siting and hours of operation, shall have been submitted to and approved in writing by the Local Planning Authority prior to installation and the Local Planning Authority reserve the right to require modification at any time.
In the interests of the amenities of the locality and occupiers of adjoining property.
14 Before development is commenced and notwithstanding details shown on the approved plans no widening of the access road shall occur until full details of such works have been submitted to, and approved in writing by the Local Planning Authority.
In the interests of the visual amenity of the locality.
15 Before the development is commenced, full details of the proposed discrete pedestrian access to the site, including elevation drawings, shall be submitted to and approved in writing by the Local Planning Authority.
In the interests of visual amenity in the Nether Edge Conservation Area.
Attention is drawn to the following justifications:
1. The decision to grant planning permission and impose any conditions has been taken having regard to the policies and proposals in the Sheffield
67 Unitary Development Plan set out below, and to all relevant material considerations, including Supplementary Planning Guidance.
BE5 - Building Design and Siting BE16 - Development in Conservation Areas H11 - Development in Housing Areas in Nether Edge and Broomhall H14 - Conditions on Development in Housing Areas
This informative is intended as a summary of the reasons for grant of planning permission.
Site Location
© Crown copyright. All rights reserved. 10018816. 2005
68 LOCATION AND PROPOSAL
No 131 is a substantial Victorian detached property with a large, more recently built, extension affixed to its south elevation forming a hall and extensive garage space. The original villa is currently occupied by a offices, and the hall is available for training courses, storage and garaging. Vehicular access is from Psalter Lane. The site is bounded on all sides by stone or brick walls though these vary in height from approximately 1.2 metres on the eastern boundary to 2.5 metres on the southern boundary. Portions of the original garden areas have been hard surfaced to create extensive car parking areas.
There is a general slope across the site with ground level falling from west to east and the property is also elevated above Psalter Lane. There are a significant number of trees on the site though these are almost exclusively situated along the access drive or on the site boundaries. The exception is a substantial specimen which occupies a position in the middle of the current car park and which will be retained in the proposal.
The application proposes to refurbish the existing extension to form 5 small two bedroom terraced houses/apartments a to erect a new build element containing a further terraced houses/apartments. The latter would have a footprint currently occupied by a large garage formerly used for vehicles of the St. Johns Ambulance service.
RELEVANT PLANNING HISTORY
An application for alterations and extensions to form 12 flats (03/03546/FUL) was withdrawn in 2003 Permission was granted in 2004 (04/02912/FUL) for alterations to offices, demolition of hall and garages and extension to building to create 3 flats and 2 dwellinghouses.
An application was withdrawn in 2006 (06/03258/FUL) for a two-storey side extension and use of part of building as office (class B1 use) with associated car parking
SUMMARY OF REPRESENTATIONS
2 letters of objection has been received from a local residents:
- Potential for noise generation from vehicular activity on the access drive. - Potential for car headlights to shine into windows of neighbouring properties. - Loss of trees through widening of access - Over development out of character with Conservation Area - Poor access
RELEVANT POLICY
PPS3 ‘Housing’ states :
69
In support of its objective of creating mixed and sustainable communities, the Government’s policy is to ensure that housing is developed in suitable locations which offer a range of community facilities and with good access to jobs, key services and infrastructure…The priority for development should be previously developed land, in particular vacant and derelict sites and buildings.
The site lies within the Nether Edge Conservation Area and Housing Area within the Unitary Development Plan (UDP). UDP Policies BE5, BE16, H11 and H14 are relevant.
Policy BE5 ‘Building Design and Siting’ states that: Good design and the use of good quality materials will be expected in all new and refurbished buildings and extensions. The following principles will apply: Physical Design a. original architecture will be encouraged but new buildings should complement the scale, form and architectural style of surrounding buildings. b. in new developments comprising more than one building there should be a comprehensive and co-ordinated approach to the overall design; c. all extensions should respect the scale, form, detail and materials of the original building. Policy BE16 ‘Development in Conservation Areas’ states: In Conservation Areas permission will only be given for proposals which contain sufficient information to enable their impact on the Area to be judged acceptable and which comprise: a. development, including erection of buildings and changes of use from originally intended uses of buildings, and built development in open spaces; or b. demolition of buildings, walls and other features; or c. proposals involving the felling or lopping of trees; or d. advertising; that would preserve or enhance the character or appearance of the Conservation Area. Redevelopment of sites which detract from a Conservation Area will be encouraged where it would enhance the character or appearance of the Area.
Policy H11 ‘Development in Housing Areas in Nether Edge and Broomhall’ states: In Nether Edge and Broomhall Housing Areas, the following uses will be preferred: Housing (C3) Policy H14 Conditions on Development in Housing Areas states: In Housing Areas, new development or change of use will be permitted provided that: a. new buildings and extensions are well designed and would be in scale and character with neighbouring buildings; and c. the site would not be over-developed or deprive residents of light, privacy or security, or cause serious loss of existing garden space which would harm the character of the neighbourhood; and d. it would provide safe access to the highway network and appropriate off-street parking and not endanger pedestrians
70 PLANNING ASSESSMENT
Principle
Housing (Class C3) is the preferred use of the site in accordance with UDP Policy H11. The proposed use falls within Class C3 and so complies with Policy H11.
Conservation and Design Issues
Proposed residential units
The scale and form of both elements of the proposal are considered acceptable. The proportions and architectural features of the refurbished training hall and the new build are considered a reasonable high quality of pastiche and are complementary to the original villa.
The external materials are indicated as being a combination of brickwork and render facing with natural stone detailing and the roofs are indicated as being in natural slate to match the original villa. Windows and doors are indicated as being in timber and rooflights are to be ‘conservation type’.
Many traditional features have been incorporated into the design including decorative bargeboards and finials, chimneys, stone heads, cills and quioins.
Pitch angles of roof planes very much mirror those of the original villa and fenestration hierarchies and proportions are good.
The footprint of the refurbished hall is substantial but the ridge height is set below that of the original building. The new build element containing three dwellings will not be visible from Psalter Lane and the ridgeline will be suitably subordinate to the original house.
Design of link to original villa
This element is considered a worthy attempt to conceal the existing, very poorly designed, link between the villa and the training hall whilst maintaining the existing internal spaces for office use.
The single storey extension is faced predominantly in glass supported in hardwood frames above a brick plinth wall. The monopitch roof is extended in canopy form only across the single door in the east elevation of the villa so as to not obscure the original pattern of openings.
The first floor of the existing two storey link is retained though re-faced in render and the flat roof is replaced by a dummy pitched roof.
The design of all elements of the proposal is considered to represent a substantial improvement over existing. It is felt that the scale and design of the new extension would enhance the character and appearance of the Conservation Area and would therefore satisfy the requirements of Policies BE5, BE16 and H14(a).
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Amenity of neighbouring dwellings
It is considered that the sole issue with regard to neighbouring amenity is the potential for car headlights to shine into primary windows of dwellings to the east as vehicles manoeuvre in proximity to the eastern boundary. It is considered that the provision of a close boarded fence placed along a suitable length of the boundary will negate any glare and preserve residential amenity.
It is not felt that the volume of vehicular traffic associated with the proposed use will represent a significant noise source with regard to neighbouring amenity.
There are no implications for overshadowing, overbearing or overlooking as all minimum separation distances as specified in Supplementary Planning Guidance are achieved throughout.
Amenity of future occupants.
These are relatively small terraced units arranged around a communal amenity space. All units are considered to have adequate internal spaces and reasonable outlook.
Overlooking
The boundary wall on the west elevation is approximately 3 metres in height and prevents any overlooking at ground floor level. The side elevation of No. 8 Osbourne Road does contain two first floor windows, one of which is a bedroom window, and these would have some overlooking potential towards the communal garden/ amenity space. However, since the amenity space is intended to be communal and is overlooked by windows of other proposed units it is considered that the relationship between the bedroom window and the amenity space is acceptable.
Amenity space
Supplementary Planning Guidance guideline 4 (designing house extensions) indicates that 2 bedroom houses should have a minimum garden size of 50 square metres. This is considered an indicator of an acceptable standard for new build dwellings.
This proposal is for two bedroom properties of limited dimensions (commensurate with a two bedroom flat in terms of floor area) and in consideration of the constraints on the site an approach has been taken to provide a single large community landscape garden.
It is felt that the provision of 250 square metres of shared landscaped garden is acceptable in this instance considering the singular layout and proportions of the residential units.
Landscape matters
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The proposal does not involve the loss of trees.
A condition requiring full details of a landscape scheme should form part of any permission.
Subject to this condition, the proposals comply with Policy H14.
Highway Issues
The development includes 10 car parking spaces, including 2 visitor spaces and one disabled space. This level of provision is considered acceptable for a development of this type. The existing means of vehicular access is 3.6-3.8m wide. Increasing the width to 5m to achieve access for two-way traffic could be achieved but would result in the loss of trees on the eastern boundary.
It is considered that, in light of the scale of development and the relatively short length of the access drive, such a widening is not required and that service/ emergency vehicles would be able to access and turn within the site with only a marginal widening of the access road. Subject to a condition requiring submission of details of any widening it is felt that the proposal will satisfy H14.
The access itself is not ideal but the proposal would represent a very significant reduction in the use of the access over the previous St Johns ambulance use and is considered the lowest likely trip generator of possible redevelopment options. It is unlikely that trip generation would exceed that likely from the re-established use of the training facilities in the block to be re-furbished.
In response to concerns raised regarding the shared use of the access for vehicles and pedestrians provision has been made for a discrete pedestrian access on the north west corner of the site.
Access and disability matters.
This is not a site that lends itself well to access for the disabled since the proposed dwellings lie in excess of 50 metres from Psalter Lane and at the top of a significant incline.
Due consideration has been given to these constraints and it is considered acceptable in this instance to accept a single disabled car space.
In addition, in light of the limited dimensions of the units and the small scale of the development as a whole it is considered acceptable to have only one unit designed to full mobility housing standard, a shortfall of one unit compared to Supplementary Planning Guidance guidelines.
Open Space
Policy H16 requires the developer to make an appropriate contribution to the provision or enhancement of recreation space in the catchment area of the site.
73 Provision of both formal and informal recreation space are well below minimum guidelines for the catchment area and therefore a contribution is sought.
The financial contribution therefore required for the development is £11,793.50 and this will be secured by the submission of a planning obligation
RESPONSE TO REPRESENTATIONS
All matters have been dealt with in the main body of the report
SUMMARY AND RECOMMENDATION
The proposal involves the refurbishment of an existing architecturally poor two storey building, originally designed for training and storage uses, and the replacement of a large and unsightly garage structure which is considered to significantly detract from the appearance of the original Victorian villa.
The proposals are considered to be of sufficient quality so as to enhance the character and appearance of the Nether Edge Conservation Area. Adequate living conditions will be maintained for existing residents and the proposal will provide acceptable living conditions for future occupants. Car parking and external amenity space are also satisfactory and the site will be further landscaped to improve the setting of both original and proposed buildings.
The proposed development complies with relevant UDP policies and planning guidance and it is recommended that planning permission is granted subject to conditions.
HEADS OF TERMS FOR LEGAL AGREEMENT
Policy H16 of the Unitary Development Plan requires the developer to make a contribution to the provision or enhancement of recreation space in the locality, in line with details set out in the Supplementary Planning Guidance on Open Space Provision in New Housing Development.
The financial contribution for the site would amount to £11,793.50 for the provision of open space within the catchment area.
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Case Number 07/01665/FUL
Application Type A Full Planning Application
Proposal Erection of a 4/5 storey building to accommodate 405 car parking spaces, 12 apartments and 520.8 square metres of commercial space with rooftop garden
Location Site Of Hillfoot Mitsubishi 101 Scotland Street Sheffield S3 7BX
Date Received 24/04/2007
Team CITY CENTRE AND EAST
Applicant/Agent Coda Studios Ltd
Recommendation GRA/GC subject to Legal Agreement
Subject to:
1 The development shall be begun not later than the expiration of three years from the date of this decision.
In order to comply with the requirements of the Town and Country Planning Act.
2 Before the development is commenced, details of all proposed external materials and finishes, including windows, shall have been submitted to and approved in writing by the Local Planning Authority. Thereafter, the development shall be carried out in accordance with the approved details.
In order to ensure an appropriate quality of development.
3 Before the commencement of development, large scale details, including materials and finishes, at a minimum of 1:20 of the items listed below shall be approved in writing by the Local planning Authority:
External wall construction, including green wall Windows and reveals Eaves and verges Shop fronts Balconies and canopies Stair tower Cafe unit
75 Thereafter, the works shall be carried out in accordance with the approved details.
In order to ensure an appropriate quality of development.
4 A detailed landscape scheme for the roof top garden shall be submitted to and approved by the Local Planning Authority. The scheme shall then be implemented as approved within a timescale to be agreed by the Local Planning Authority.
In the interests of the amenities of the locality.
5 A management plan for the care of the green wall, including management responsibilities, irrigation and maintenance schedules, shall be submitted to and approved in writing by the Local Planning Authority prior to the occupation of the development. The management plan shall thereafter be carried out as approved.
In the interests of the amenities of the locality.
6 The residential accommodation hereby permitted shall not be occupied unless a scheme of sound attenuation works has been installed and thereafter retained. Such scheme of works shall:
a) Be based on the findings of an approved noise survey of the application site, including an approved method statement for the noise survey,
b) Be capable of achieving the following noise levels:
Bedrooms: LAeq 15 minutes - 35 dB (2300 to 0700 hours), Living Rooms: Laeq 15 minutes - 45 dB (0700 to 2300 hours),
c) Include a system of alternative acoustically treated ventilation to all habitable rooms.
Before the scheme of sound attenuation works is installed full details thereof shall first have been submitted to and approved in writing by the Local Planning Authority.
In the interests of the amenities of the future occupiers of the building.
7 Before the use of the development is commenced, a Validation Test of the sound attenuation works shall have been carried out and the results submitted to and approved by the Local Planning Authority. Such Validation Test shall:
a) Be carried out in accordance with an approved method statement,
b) Demonstrate that the specified noise levels have been achieved. In the event that the specified noise levels have not been achieved, then
76 notwithstanding the sound attenuation works thus far approved, a further scheme of sound attenuation works capable of achieving the specified noise levels and recommended by an acoustic consultant shall be submitted to and approved by the Local Planning Authority before the use of the development is commenced. Such further scheme of works shall be installed as approved in writing by the Local Planning Authority before the use is commenced and shall thereafter be retained.
In the interests of the amenities of the locality and occupiers of adjoining property.
8 No movement, sorting or removal of waste bottles, materials or other articles, nor movement of skips or bins shall be carried on outside the building within the site of the development between 2300 hours and 0700 hours Mondays to Saturdays and between 2300 hours and 0900 hours on Sundays.
In the interests of the amenities of the locality and occupiers of adjoining property.
9 No externally mounted plant or equipment for heating, cooling or ventilation purposes, nor grilles, ducts, vents for similar internal equipment, shall be fitted to the building unless full details thereof have first been submitted to and approved by the Local Planning Authority, and once installed such plant or equipment should not be altered without prior written approval of the Local Planning Authority.
In the interests of the amenities of the locality and occupiers of adjoining property.
10 Development shall not commence until actual or potential land contamination and ground contamination at the site has been investigated and a Phase 1 Preliminary Risk Assessment has been submitted to and approved in writing by the local planning authority. Reports shall be prepared in accordance with Contaminated Land Report CLR11 (Environment Agency 2004).
In order to protect the health and safety of future occupiers and users of the site.
11 Should further intrusive investigation be recommended in the Phase 1 Preliminary Risk Assessment report, development shall not commence until a Phase 2 Intrusive Site Investigation Report has been submitted to and approved in writing by the local planning authority. The Phase 2 Intrusive Site Investigation Report shall be prepared in accordance with Contaminated Land Report CLR11 (Environment Agency 2004) and PPS23.
In order to protect the health and safety of future occupiers and users of the site.
77 12 Should remediation be recommended in the Phase 2 Intrusive Site Investigation Report, development shall not commence until a Remediation Strategy Report has been submitted to and approved in writing by the local planning authority. The Remediation Strategy Report shall be prepared in accordance with Contaminated Land Report CLR11 (Environment Agency 2004) and PPS23.In the event that remediation is unable to proceed in accordance with an approved Remediation Strategy or unexpected contamination is encountered at any stage of the process the local planning authority shall be notified immediately. Revisions to the Remediation Strategy shall be submitted to and approved in writing by the local planning authority. Works shall thereafter be carried out in accordance with the approved revised remediation Strategy.
In order to protect the health and safety of future occupiers and users of the site.
13 The car park shall not be used unless the operational use of the building complies with the approved management strategy prepared by Moreland and dated 3 August 2007. The agreed management strategy may only be varied with written consent from the Local Planning Authority.
In the interests of traffic safety and the amenities of the locality.
14 The car park shall not be used unless 2.0 metres x 2.0 metres vehicle/pedestrian intervisibility splays have been provided on both sides of the means of access such that there is no obstruction to visibility greater than 600 mm above the level of the adjacent footway and such splays shall thereafter be retained.
In the interests of the safety of road users.
15 The car park shall not be used unless the sight line, as indicated on the approved plans, has been provided. When such sight line has been provided, thereafter the sight line shall be retained and no obstruction to the sight line shall be allowed within the sight line above a height of 1 metre.
In the interests of traffic safety and the amenities of the locality.
16 Before the development is commenced, details of the car park access road, including gradients and location of barriers, shall be submitted to and approved by the Local Planning Authority.
In the interests of the safety of road users.
17 The development shall not be begun until the improvements (which expression shall include traffic control, pedestrian and cycle safety measures) to the highways listed below have either;
a) been carried out; or
78 b) details have been submitted to and approved by the Local Planning Authority of arrangements which have been entered into which will secure that such improvement works will be carried out before the development is brought into use.
Highway Improvements:
1. The footway to the frontage of the development site on Scotland Street and Solly Street shall be reconstructed to comply with Sheffield City Council’s ‘Urban Design Compendium’ specification. 2. Works shall be carried out in consultation with the Local Planning Authority to rationalize parking provision in the St Vincent’s area, including extending pay and display provision and introducing Traffic Regulation Orders to restrict informal on street parking. 3. Variable message information signage shall be erected in the highway at locations specified by the Local Planning Authority.
To enable the above-mentioned highways to accommodate the increase in traffic, which, in the opinion of the Local Planning Authority, will be generated by the development.
18 Prior to the improvement works indicated in the preceding condition being carried out, full details of these improvement works shall have been submitted to and approved in writing by the Local Planning Authority.
In the interests of traffic safety and the amenities of the locality.
19 Before the development is commenced, details of the proposed layout and marking out of the car parking accommodation, including disabled parking spaces, the location and numbers of payment kiosks and location of any barriers in relation to the highway shall have been submitted to and approved in writing by the Local Planning Authority. The building shall not be used unless the car park layout is in accordance with the approved plans and thereafter retained as agreed.
In the interests of traffic safety and the amenities of the locality.
20 The car park shall not be used unless the cycle parking accommodation as shown on the approved plans has been provided in accordance with those plans and, thereafter, such cycle parking accommodation shall be retained.
In the interests of traffic safety and the amenities of the locality.
21 The development shall not be used unless all redundant access have been permanently stopped up and reinstated to footway, and means of vehicular access shall be restricted solely to those access points indicated in the approved plans.
In the interests of traffic safety and the amenities of the locality.
79 22 Before the development is commenced, details of the means of ingress and egress for vehicles engaged in the construction of the development shall have been submitted to and approved in writing by the Local Planning Authority. Such details shall include the arrangements for restricting the vehicles to the approved ingress and egress points. Ingress and egress for such vehicles shall be obtained only at the approved points.
In the interests of traffic safety and the amenities of the locality.
23 At all times that construction works are being carried out equipment shall be provided to the satisfaction of the Local Planning Authority for the effective cleaning of the wheels and bodies of vehicles leaving the site so as to prevent the depositing of mud and waste on the highway but before the development is commenced full details of such equipment shall have been submitted to and approved by the Local Planning Authority. When the above-mentioned equipment has been provided thereafter such equipment shall be used for the sole purpose intended in all instances and be properly maintained.
In the interests of the safety of road users.
24 The development shall not be occupied until a scheme to promote the provision of a car club as part of the development has been submitted to and approved in writing by the local planning authority. The car club shall, unless otherwise agreed, be provided in conjunction with the council approved car club operator. The scheme shall include:-
1. Arrangements made with the car club operator to provide financial support to the set up and expansion of the Sheffield City Car Club. 2. The provision of an appropriate number of publicly accessible car parking bays (which may be omitted where an appropriate number of car club parking spaces already exist adjacent to the site) designated signed and thereafter retained solely for the use of car club vehicles. 3. The provision of measures to ensure all eligible site users are encouraged to sign up as members of the car club scheme for a minimum of 1 year. 4. Arrangements to ensure ongoing marketing of the benefits of the benefits of car club to site users for a minimum of 3 years.
In the interests of delivering sustainable forms of transport, in accordance with the Transport Policies in the adopted Unitary Development Plan for Sheffield and PPG13.
25 No development work, including ground clearance and demolition work shall take place unless and until the developer, their agent or their successor in title has secured the implementation of a programme of archaeological work in accordance with a written scheme of investigation that has been submitted to and approved in writing by the Local Planning Authority.
80 To ensure that any archaeological remains present, whether standing or buried, are preserved - either by being left in situ or recorded and removed in accordance with an agreed method, before they are damaged or destroyed.
26 A sample panel of the proposed masonry shall be erected on the site and shall illustrate the colour, texture, bedding and bonding of masonry and mortar finish to be used. The sample panel shall be approved in writing by the Local planning Authority prior to the commencement of the building works and shall be retained for verification purposes until the completion of such works.
In order to ensure an appropriate quality of development.
27 Before the development is commenced, details of all rainwater goods, gutters and downpipes, shall be submitted to and approved by the Local Planning Authority.
In order to ensure an appropriate quality of development.
28 Before the development is commenced, full details of proposals for the inclusion of public art within the development shall have been submitted to and approved in writing by the Local Planning Authority. Such details shall then be implemented prior to the occupation of the development unless otherwise authorised in writing by the Local Planning Authority.
In order to satisfy the requirements of Policy BE12 of the Unitary Development Plan and to ensure that the quality of the built environment is enhanced.
29 The car park shall be designated and operated for short stay use with the exception of replacing a maximum of 200 long stay parking spaces as they are lost from St. Vincent's Church car park. Such limits to the car park operation may only be varied with the written consent of the Local Planning Authority.
In the interests of traffic safety and the amenities of the locality.
Attention is drawn to the following justifications:
1. The decision to grant planning permission and impose any conditions has been taken having regard to the policies and proposals in the Sheffield Unitary Development Plan set out below, and to all relevant material considerations, including Supplementary Planning Guidance.
IB5 - Development in General Industry Areas T23 - Public Long-stay Car Parking BE5 - Building Design and Siting
81 This informative is intended as a summary of the reasons for grant of planning permission.
Attention is drawn to the following directives:
1. As the proposed development abuts the public highway you are advised to contact the Highways Co-ordination Group on Sheffield 2736677, prior to commencing works. The Co-ordinator will be able to advise you of any pre- commencement condition surveys, permits, permissions or licences you may require in order to carry out your works.
2. You are required, as part of this development, to carry out works within the public highway. You must not start any of this work until you have received a signed consent under the Highways Act 1980. An administration/inspection fee will be payable and a Bond required as part of the consent.
You should apply for a consent to:-
Head of Transport and Highways Planning, Transport & Highways Howden House 1 Union Street Sheffield S1 2SH
For the attention of Mr S A Turner Tel: (0114) 2736133
3. The development will require the issuing of a formal postal address(s) by the City Council. This will apply even if the development is an infill site. Contact Lynn Fox on Sheffield 2736127 for details. Failure to carry out this process at an early stage may result in statutory undertakers refusing to connect services. The agreed address must be clearly displayed at each individual property before occupation in order to ensure that the postal service can correctly locate each property of delivery purposes.
82 Site Location
© Crown copyright. All rights reserved. 10018816. 2005
LOCATION AND PROPOSAL
The application site is situated on land between Scotland Street and Solly Street, in the middle of the St. Vincent’s Quarter. It comprises of one and two storey buildings fronting Scotland Street formerly occupied by a garage (Hillfoot Mitsubishi) and a surface level car park fronting Solly Street. The remainder of the site, which rises steeply from north to south such that the Solly Street frontage is elevated approximately 10 to 15 metres above Scotland Street, is either hardstanding or overgrown vegetation, including a row of prominent self-set trees (sycamore) along the sloping bank.
83 South of the application site, on the opposite side of Solly Street, stands the stone built St. Vincent’s Church and recently designated Well Meadow Conservation Area.
To the east is a vacant four storey commercial building (formerly Robert Neill and Co) and beyond a disused three storey public house (the Queens Hotel). Permission was recently granted for a mixed use scheme on this site comprising of 126 apartments, offices and food and drink uses in a four to six storey development (see below). Two single storey workshop units adjoin the site on Solly Street.
To the west, fronting Scotland Street and set back from the common boundary, is a two storey industrial workshop known as Hanover Works currently occupied by Sheffield Window Centre.
Planning permission is now being sought for an unusual development comprising of a four storey car park with 405 parking spaces, 12 apartments and 520 square metres of commercial office space. The roof of the development will be utilised to form a new public park, along with a single storey café unit. The green theme extends beyond the roof to the building’s front elevation in the form of a screen of climbing and trailing plants.
RELEVANT PLANNING HISTORY
06/02992/FUL Planning permission was granted in May 2007 for a mixed use scheme on the adjacent site to the east. The development involves the refurbishment and extension of the Queens Hotel, A3, A4 and B1 uses at ground floor level, 126 apartments and basement car parking.
SUMMARY OF REPRESENTATIONS
One letter of support was received from a member of the public praising this imaginative proposal and welcoming the new open space in an emerging residential area.
A letter of concern was received from the occupier of adjoining business premises on Solly Street. While they have no objection to the development in principle, they raised concerns regarding the potential for structural damage to their workshop and impact on their business if access to Solly Street was restricted.
One objection letter was received from the occupier of industrial premises at 124 Scotland Street, directly opposite the application site. They object to the proposed development on the basis that future occupants may complain about noise from their premises.
PLANNING ASSESSMENT
Policy Issues
84 The application site lies within a General Industry Area as defined in the adopted Unitary Development Plan (UDP). Policy IB5 of the UDP describes general industry and warehousing as the preferred uses in General Industry Areas while small shops (use class A1), food and drink outlets (use class A3), and business (use class B1) are described as acceptable.
Housing (use class C3) is described as an unacceptable use in the UDP as the living conditions in industrial environments are not considered to be satisfactory and the presence of housing can prejudice the viability of existing and potential industrial uses. Thus, the proposed development is classed as a departure from the UDP, and has been advertised accordingly.
However, having come under increasing pressure for new development, which in many cases raised conflicts with existing UDP policy, the City Council produced an action plan with the purpose of identifying a concise route for regeneration in the St. Vincent’s Quarter. The St Vincent’s Action Plan (2004-2014), which was adopted by the Council in December 2004, is a material consideration when considering planning applications in the area prior to the adoption of the Sheffield Development Framework (SDF), which will ultimately replace the existing Unitary Development Plan.
The action plan identifies the application site as falling within a new ‘Housing Opportunity Area’ in which housing, business, small shops and car parks are all described as acceptable uses.
Policy BE5 of the UDP (Building Design and Siting) states that original architecture will be encouraged, but that new buildings should complement the scale, form and architectural style of surrounding buildings.
Policy T23 of the UDP (Public Long Stay Car Parking) states that good quality, permanent long-stay car parking will be permitted outside the designated High Amenity Zone where there is good access from the Strategic Road Network and provided that it would not lead to excessive peak-hour congestion. The application site falls outside the High Amenity Zone and is easily accessible from the Strategic Road Network, thereby long stay parking is acceptable in principle.
More recently the City Council has sought to discourage the proliferation of commuter parking in the city centre (an aspiration which will be embodied in the emerging Sheffield Development Framework (SDF)), and encourage the use of more sustainable modes of transport. However, in the St. Vincent’s area a large number of temporary parking spaces are being lost as a result of development on surface car parks, leading to increased parking pressures on local residents and businesses. The St. Vincent’s Action Plan proposes permitting the development of new, high quality off-street parking for city centre visitors and local workers.
In addition, the Urban Design Compendium (UDC) notes that Sheffield City Centre is proliferated by unsightly open parking lots, which create significant disruptions to the cohesion and continuity of the city’s urban form. It also states that existing multi-storey car parks do not relate well to their urban context and are difficult to access. The UDC recommends consolidating parking in well-designed multi-storey
85 car parks which incorporate activity at street level and respect the scale of adjacent developments.
With this in mind, and to prevent excessive peak hour congestion, the proposed multi-storey car park will provide short-stay parking for visitors to St. Vincent’s and the wider area, with a limited number of long-stay spaces to replace those being lost locally through redevelopment.
The St. Vincent’s Action Plan also proposes the formation of a new public open space between Solly Street and Scotland Street to serve the increasing number of residents. A feasibility study to further the Action Plan proposal looked at ways in which the area next to St Vincent’s Church - chosen for its central location, because part of it is unsuitable for the development of conventional buildings and because it would preserve views of the church - could be developed into a green park.
A hillside park option failed following unsuccessful attempts to secure Yorkshire Forward funding to acquire the site. Therefore, more imaginative ways of delivering the park without expending limited S106 funds on site acquisition had to be found, namely working with a developer to create a park on the roof of a building. Due to the split level nature of the site it was not viable for the green roof to be placed on a solely office or residential development as the building would be single aspect with an unworkable footprint. The proposed car park provides a solution to this.
Public Consultation
A public consultation event held on 1st August 2007 was well attended by local residents, businesses and people working in the area. Notification of the consultation event was sent to over 500 addresses in the St Vincent's Quarter, including details of how to access the draft park proposals on the City Council web pages. Feedback at the event was positive with attendees welcoming the proposal for new public park in an area with very little existing open space. A full report on the consultation responses gained through questionnaires is currently being prepared and will be made available as a supplementary report. These results will inform the detailed design of the park.
Design Issues
The proposed development essentially comprises of a four storey car park, plus 12 apartments, with active ground floor uses. This simple form provides the setting for a new public open space on its roof.
The scale of the development was largely fixed as the park needs to be on a level with Solly Street to the south in order to maximise accessibility and protect long views of St. Vincent’s Church, however the four storeys also reflects the scale of some of the areas older industrial properties and the step down from the approved 5/6 storey development to the east mirrors the falling away of Scotland Street.
86 The greening of the building’s roof extends to the front façade, which incorporates a green wall system of climbing and trailing plants. This will eventually hide much of the building’s front elevation and form dramatic views along Scotland Street of a building almost entirely shrouded in plants.
A simple copper clad roof top café cantilevers over the building’s north west corner forming a beacon for the development and highlighting the stair tower, also clad in copper, where lift access is provided from Scotland Street to the park and café during day time hours. A generous wedge shaped staircase provides 24 hour access from the park to Scotland Street.
The roof top park will include a combination of activity spaces paved in natural materials, as well as garden areas incorporating trees, shrub and herbaceous planting for year round seasonal interest. Professor Nigel Dunnett of the University of Sheffield’s Landscape Department (a recognized green roof expert) and Groundwork Sheffield will be advising on the detailed design of the roof. Indeed the scheme has already attracted a South Yorkshire Green Roof Innovation Award from Groundwork Sheffield, one of only three in South Yorkshire and the only one made to a project in Sheffield.
Highway Issues
As described above, the proposed multi-storey car park will provide short-stay parking, with a limited number of long-stay spaces to replace those being lost locally through redevelopment. This complies with current Council policy and is covered by condition.
The proposals raise no highway safety concerns, however given the nature of the development, a contribution of £100,000 has been secured towards improvements to the Scotland Street/West Bar Green junction (in the form of a legal agreement), and further contributions towards to the rationalization of on-street parking in the St. Vincent’s area (by condition).
Residential Amenity
The proposed development includes 12 studio style apartments situated next to the eastern site boundary, immediately adjoining a recently approved mixed use development incorporating 126 apartments. It is therefore considered that the immediate environment is suitable for residential use. However, to mitigate against noise from existing industrial activity to the north west, the apartments must be designed to ensure acceptable internal noise levels. Conditions are proposed requiring the submission of a noise survey and scheme of sound attenuation works.
Archaeology Issues
Historically the application site was in agricultural use, forming part of Sheffield’s Town Field in the early 16th century, and wasn’t developed until the late eighteenth century. The 1850 OS map was the first to show the site in any detail. It indicated
87 that the site contained mainly terraced and back-to-back housing and a few small shops.
By 1890 the south west corner of the site had been developed as part of Nowill’s Cutlery Works. Municipal slum clearance programmes were carried out during the 1920s and 1930s, and it appear as though most of the site had been cleared by 1931 with the exception of Nowill’s Cutlery Works. All present day buildings are shown on the 1968 Ordnance Survey map.
While subsurface fuel tanks are likely to have been a feature of the petrol station that occupied the north west part of the Scotland Street frontage during the mid- twentieth century and their construction will have destroyed any 19th century structures in this area. However, sub-surface 19th century features may remain on the rest of the site. Therefore, a condition is proposed requiring further archaeological evaluation prior to the commencement of development.
SUMMARY AND RECOMMENDATION
The proposed development partly contravenes Policy IB5 of the UDP, which states that housing is an unacceptable use in General Industry Areas. However, the St. Vincent’s Action Plan, which is a material consideration when considering planning applications in the area prior to the adoption of the Sheffield Development Framework (SDF), identifies the application site as falling within a ‘Housing Opportunity Area’ in which housing is an acceptable use. The proposed car park use does not conflict with current Council policy.
This is an unusual and innovative project resulting in the creation of an attractive and much needed green space in the middle of the St. Vincent’s Quarter. Moreover, it is considered that this striking building with its dramatic green façade fronting Scotland Street, will make a significant contribution to the character and appearance of the St. Vincent’s Quarter.
Members are therefore recommended to grant planning permission subject to the proposed conditions and to the completion of a legal agreement.
HEADS OF TERMS
The developer shall contribute £100,000 towards improvements to the Scotland Street/West Bar Green Junction..
88
Case Number 07/01865/FUL
Application Type A Full Planning Application
Proposal Erection of 12 apartments in 2 x 3-storey blocks, 2 x 2/3-storey semi detached dwellings, 6 x 2/3-storey townhouses and associated car parking accommodation
Location Land At Hastilar Road South, Fishponds Road, Aughton Road And Richmond Road Sheffield
Date Received 01/05/2007
Team CITY CENTRE AND EAST
Applicant/Agent Development Land & Planning Consultations Ltd
Recommendation Refuse
For the following reason(s):
1 The Local Planning Authority consider that the proposed development would constitute an over development of a site of restricted dimensions which would result in an unsatisfactory environment for occupiers of the proposed dwellings, The front layout of plots 15-20 would be detrimental to the street scene due to the degree of hard surfacing proposed and amenities of the area would be adversely affected due to the proximity of the development to existing landscape features. It would therefore be contrary to Policies H14, H15 and GE15 of the Unitary Development Plan.
89 Site Location
© Crown copyright. All rights reserved. 10018816. 2005
LOCATION AND PROPOSAL
The application site consists of derelict land, formerly a factory site set to the rear of shops on Richmond Road. Some clearance work has taken place as a result of previous planning approvals and all buildings have been removed. To the north east of the site excavations have taken place and there is also a large soil heap on site. North western and south western boundaries have a line of mature trees with bushes set above the north east boundary.
As a backland site it is surrounded on all boundaries; to the north and northwest are the rear gardens of houses on Fishponds Road, Aughton Crescent and Aughton close and to the north east is the Beechy Knoll Nursing Home. The
90 Richmond Road shops, some with flats above, have long rear yards some containing out buildings or rear extensions particularly to the north east end. Access to the site is off Richmond Road, to the south west of the shops and on the opposite side of the access way is Richmond fish pond and associated landscaped areas which is positioned at the junction of Richmond Road with Hastilar Road South.
At the time of this report being prepared the site has been secured by the erection of a high palisade fence plus gates at the site entrance at the end of the accessway and a 1.8 metre high wooden fence on the western boundary between houses on Fishpond Road.
This application is an amendment to planning approval 06/02275/FUL. That application included the erection of 12 x 2-bedroomed flats in 2 x 3 storey blocks and 6 x 3-bedroomed 2/3 storey dwellinghouses and associated car parking accommodation. The amendments proposed are an increase in the number of dwellinghouses to be erected along the north east end of the site from four to six all of a similar house type. All other details including the two blocks of flats and pair of dwellinghouses (plots 1-14) and access provision adjacent to them remain basically the same although these plots have been moved approximately 2 metres to the south east There are minor changes to the parking layout but the number of spaces remain the same.
The six houses will be in two terraces of three. As the type of house proposed has an integral garage each plot has one parking space in front of the house. Some properties have bin stores in their front gardens.
RELEVANT PLANNING HISTORY
06/02275/FUL Planning permission was granted for 12 flats and 6 dwellinghouses at the Area Board of 30 October 2007.
03/00214/FUL Planning permission was granted for the erection of a 64 bedroom nursing home in a 1 x 3 storey block and an attached conservatory by the Area Board of 25 March 2004.
An application was received but never made valid and subsequently withdrawn for the erection of 2 x 3-storey buildings providing 30 no. 2-bedroomed flats with associated car parking accommodation.
SUMMARY OF REPRESENTATIONS
One letter has been received raising concerns about loss of security to the rear of shops by the removal of an existing hedge. The redevelopment of the site is welcomed but with secure boundaries both during and after development being provided.
PLANNING ASSESSMENT
Policy Issues
91
The site falls within a Housing Policy Area (Policy H10) in the Unitary Development Plan which states that Housing (Use Class C3) is the preferred use. It can also be classed as brownfield land as it was previously occupied by a factory. Thus redevelopment of the site for residential use is in accordance with the objectives of national guidance contained in PPS3.
The principle of residential development on the site has been established by the existing approvals, both for flats and dwelling houses and the following Policies are relevant to any changes to residential development on the site:-
Policy H14 ‘Conditions on Development in Housing Areas’ also lists criteria which should be met for development to be permitted and states amongst other things that; it should be of an appropriate scale, character and design, not be overdeveloped, or result in detrimental amenity issues for residents and provide appropriate off-street parking and comply with policies for the Built and Green Environment.
Policy H15 ‘Design of New Housing Developments’ states that new developments will be expected to provide easy access and circulation around a site for people with disabilities, provide adequate private or communal amenity space and ensure that basic standards of daylight, privacy, security and outlook are met, provide uniform garden enclosures and access to the countryside or open space via footpath links.
Policy H16 ‘Open Space in New Housing Developments’ requires developers to provide adequate open space within developments to meet the local needs of people living there, and for sites less than a hectare in area the developer is expected to make an appropriate contribution to the provision or enhancement of open space in the catchment area of the site.
The pond and surrounding landscaped area falls within an Open Space Policy Area (Policy LR5) and an Area of Natural History Interest (Policy GE13). The impact of development on these Areas including the widening of the access have been resolved in planning approval, reference number 06/02275/FUL and such details have not changed in this application.
Policy GE15, ‘Trees and Woodland’ encourages protection of existing trees by (b) ‘ requiring developers to retain mature trees, copses and hedgerows, wherever possible, and replace any trees which are lost…’.
Design Issues
The main consideration of this application is the impact on the site of the additional two dwellings. When the approved application 06/02275/FUL was originally submitted a small two storey block of flats was proposed in the north west corner of the site with a large area of hard standing for parking in front of it. This was considered to be over development with dwellings having inadequate garden areas and an excess of hardstanding to the frontage. The layout and aspect of the small
92 flat block could also have resulted in potential pressure to remove some boundary trees to add light to the building.
The resultant amended approved plan omitted this block and re orientated the two pairs of semi detached dwellinghouses to provide side off street parking, rear bin stores and reduced any potential over dominance on two plots (15-16) and on the side elevation of plot 14.
Following approval of 06/02275/FUL the applicant submitted a proposed amendment which included two extra dwellings to the north east boundary. The applicant was advised that the Local Planning Authority had concerns about this proposal. This was due to the houses being smaller than those approved, in two groups of three with small rear gardens, below the recommended guideline of 50 sq.m., development was brought closer to the tree boundary again and no details of sufficient car parking provided. The applicant was advised that the site was not considered large enough to effectively accommodate an increase in the number of dwellinghouses as proposed.
Notwithstanding the above comments an amended layout for the site has been submitted which is the subject of this application. Subsequent to its submission the house types have been amended to those on plots 13-14, that is, type B with integral garages. The house type (A) originally proposed had parking areas to the front and side taking up most of the frontage, and bin store areas to the rear.
House type B has a larger footprint and thus the two groups of three houses are closer to the tree boundary and to the north east boundary (rear yards of shops on Richmond Road). There is a small middle gap between these blocks allowing access for rear bin stores for plots 17 and 18. 15 and 20 also have such facilities. Type B has an integral garage and a further off street parking space is provided in front of the unit resulting in small front amenity areas some with bin store areas. In contrast the previously approved layout included side parking and rear bin stores for at least four of the rear houses with landscaped areas of front garden. To accommodate these larger plots the footprints of plots 1-14 have been moved approximately 2 metres to the south west, minor changes to disabled car parking provision and two small trees removed.
As seen from the accessway to the side of the flats the proposal is considered to create a poor quality street scene consisting mainly of car parking bays and little soft landscaping. The side elevation of Plot 15 is also set again against the trees within their root protection areas which could result in damage to the trees and ultimately the Local Planning Authority receiving requests for pruning or removal. Potentially five trees are affected by this one dwelling. Retention of trees on this boundary is important as they provide a valuable landscape feature for the site.
Amenity Issues
An issue that arose from the original submission of the approved plan was the size of gardens. In that case two dwellings were dropped to enlarge the amenity space of the remaining houses on the north east boundary. The rear garden areas in plans originally submitted with the current application also had sub standard
93 gardens. The current plans indicate larger gardens reaching the recommended 50 sq.m. minimum area. It should be added that the application also included an appeal statement where the Inspector included the front garden as part of the garden provision. In this case there are minimal front garden areas, most being taken up with parking areas.
Not all the gardens of plots 15 to 20 are 10 metres deep however this does not lead to over looking due to the elevated hedge line on the boundary with the nursing home to the north east.
The proposed extra two houses are however considered to adversely affect the amenities of residents of plots 15 and 20. The latter plot has a side elevation within 1 metre of the common boundary with the rear yards of the Richmond Road Shops. Due to changes in levels the rear garden will be dominated by a large single storey structure of prefabricated concrete. Most of the rear gardens are considered to be overshadowed due to the narrow widths of the gardens and the terracing of the houses. This problem was alleviated in the approved layout by a 5 metre plus separation of the pair of semi detached houses and wider separation from the north eastern boundary.
Plot 16 is directly adjacent to the middle side elevation of plot 14 with 13 metres separation. It is not considered that the front of plot 16 is over dominated as there are no front habitable room ground floor windows to this plot type. The close proximity of trees to this plot, as described above could lead to over shadowing, and loss of amenity for occupiers of the house.
There is 28 metres separation between proposed houses and the closest houses on Aughton Close to the north which are set higher than the site and separated by the tree belt which considered acceptable. This proposal brings the three storey block of flats closer to houses on Fishpond Road. There is still 22 metres separation, there are no overlooking side windows to the flats and the aspect of the existing houses to the flats is angled with trees between the buildings. In this case the houses on Fishpond Road are not considered to be over-dominated or suffer loss of privacy due to the change in the footprint of the flats.
Other Issues
Highways, sustainability, landscaping, ecology and access issues have been dealt with in detail by planning approval 06.02275/FUL
Concern has been expressed about the lack of security around the site and the removal of boundary hedges allowing unauthorised access to adjacent land such as the rear yards of the Richmond Road shops. The site has recently had palisade fencing added to this boundary and to aid residential properties on Fishpond Road a 1.8 metre high wooden fence has been erected on the boundary with the site.
Open Space
The catchment area of the site is well below the minimum guideline requirement for informal open space and well above the minimum for guideline for formal open
94 space. As such, a contribution is required for the provision or improvement of recreation space in the catchment area in accordance with Policy H16 of the Unitary Development Plan and the Councils Supplementary Planning Guidance on Open Space Provision in New Housing Developments.
As the applicant has already agreed to enter into a Section 106 agreement to pay a financial contribution of £23,205, for development approved in 06/02275/FUL, to the enhancement and improvement of open space within the area, an extra contribution is required for the two extra three bedroom houses proposed. Thus the applicant would be required to enter into a further legal agreement to pay a sum of £1957 towards the improvement and enhancement of open space in the area if permission were to be granted
SUMMARY AND RECOMMENDATION
The principle of residential development on the site has been established by planning approval 06/02275/FUL. That application originally included two extra dwellings which were considered to be over-development creating houses with inadequate back garden spaces and an excess of hardstanding to the front. The subsequent approval was considered to address these issues. The applicant was advised that similar concerns may arise from a pre application submission.
Not withstanding the advise from the Local Planning Authority the current application was submitted. Although this application was amended to provide larger rear gardens the amended layout adversely affects the street scene due to large areas of hard standing to the front of plots 15-20, the amenities of occupiers of several plots will be adversely affected and development is too close to trees on the north west boundary. This constitutes an overall reduction in the quality of the scheme and the proposal is therefore considered to be contrary to Policies H14, H15 and GE15 of the Unitary Development Plan.
It is therefore recommended that the Area Board refuse the application
95
Case Number 07/01872/CHU
Application Type Planning Application for Change of Use
Proposal Use of building as house in multiple occupation for 10 students with self-contained annexe for 2 students (amended description)
Location Hayward House 34 Redcar Road Sheffield S10 1EX
Date Received 08/05/2007
Team SOUTH
Applicant/Agent AA Design Ltd
Recommendation Grant Conditionally
Subject to:
1 The development shall be begun not later than the expiration of three years from the date of this decision.
In order to comply with the requirements of the Town and Country Planning Act.
2 The student accommodation shall not be used unless the car parking accommodation for 3 cars shown on the approved plans has been levelled and surfaced in accordance with details to have first been submitted to and approved in writing by the Local Planning Authority and thereafter such car parking accommodation shall be retained for the sole purpose intended.
In the interests of traffic safety and the amenities of the locality.
3 The student accommodation shall not be used unless an alarm and monitoring system has been provided to the emergency exit doors to the external fire escape stairway as described in your letter dated 6th July 2007 and thereafter such an alarm and monitoring system shall be retained.
In the interests of the amenities of the locality and occupiers of adjoining property.
4 The building shall not be used for the above-mentioned purpose unless the landings to the fire escape stairway have been screened to a height of 1.8 metres in accordance with details to have first been submitted to and
96 approved in writing by the Local Planning Authority and thereafter such screening treatment shall be retained.
In the interests of the amenities of occupiers of adjoining property.
Attention is drawn to the following justifications:
1. The decision to grant planning permission and impose any conditions has been taken having regard to the policies and proposals in the Sheffield Unitary Development Plan set out below, and to all relevant material considerations, including Supplementary Planning Guidance.
H5 - Flats, Bed-sitters and Shared Housing H10 - Development in Housing Areas H14 - Conditions on Development in Housing Areas
This informative is intended as a summary of the reasons for grant of planning permission. For further detail on the decision please see the application report by contacting the Planning Records section on 2734215.
97 Site Location
© Crown copyright. All rights reserved. 10018816. 2005
INTRODUCTION
This application was deferred at the last Board meeting to allow Members to visit the site.
LOCATION AND PROPOSAL
No. 34 is a substantial detached Victorian villa in an elevated location at the junction of Redcar Road with Reservoir Road. There is a former coach house to the rear of the building, facing Reservoir Road , together with parking for 2 cars. The coach house is linked to the main building. There is a small, enclosed courtyard to the rear of the building and small garden areas to the front and side. Two storey dwellings adjoin the site along both road frontages. The dwellings in
98 Redcar Road are at a slightly lower level whilst those in Reservoir Road are slightly higher. Dwellings also lie opposite both frontages of the site.
The building was last used as a care home for 10 residents with warden accommodation in the self-contained coach house annexe.
The application is for internal alterations to provide a house in multiple occupation (HMO) for 10 students, together with a self-contained annexe (the coach house) for 2 students. The car parking area is proposed to be levelled to provide accommodation for 3 cars. Apart from the refurbishment of an external fire escape stairway and the installation of 4 small rooflights, no alterations are proposed to the external appearance of the building. Internal alterations are minimal with no additional subdivision of rooms.
RELEVANT PLANNING HISTORY
Planning permission for the existing external stairway was granted in 1984 (84/00090/FUL).
Planning permission for alterations and extension to the coach house to form living accommodation and the erection of a link corridor was granted in 1989 (89/01259/FUL).
SUMMARY OF REPRESENTATIONS
23 letters of objection have been received from local residents (including 4 from 2 addresses). The objections are summarised below.
- insufficient car parking - more car intensive than previous old persons home use - adjacent streets already extremely congested at location just beyond residents parking scheme - driveways sometimes obstructed - residents often can’t park - danger to pedestrians including children - existing space for 2 vehicles (not 3 as indicated in application) - coach house permission (89/01259/FUL) required 2 parking spaces to serve coach house - increased noise, litter, bins, lack of maintenance, potential for antisocial activity - overlooking of adjoining private garden to family house due to potential use of fire escape as ‘balcony’ - surrounding area (Crookesmoor Rd, School Rd and Conduit Rd) already saturated by multiple occupancy - not in keeping with residential area - occupants will have different lifestyles/values to that of surrounding owner occupiers including many families - little/no multiple occupancy/flats in immediate area - conflict with established community - former use was enhancement of community - will tip balance of occupancy making area less attractive to families - potential conflict with future occupants - may lead to further antisocial behavior, vandalism or violence - undermine University policy of selling houses into private ownership
99 - premature to grant permission before Environmental Housing Officers complete survey of impact and extent of student housing in area - lovely, large building - should be converted back to family home or 3 flats - will substantially reduce property values in area
Following re-notification in respect of clarifying the description of the proposed use and minor amendments, 18 additional representations have been received (the majority from previous writers).
The previous objections are reinforced and several are disappointed with aspects of the Board Report. One letter considers the report to be misleading in terms of the officer’s interpretation of the ‘immediate area’ which restricts the assessment of numbers of HMOs to Redcar Road and Reservoir Road. They consider that the neighbourhood is a wider area and there is a concentration of HMOs that is contrary to Policy H5. Another letter makes the point that area is a sustainable location for owner occupiers as well as landlords and that objectors concerns are as much about the density of the proposal as the tenure.
Two letters consider that insufficient attention has been given to the potential for students congregating on the fire escape. Although this issue is discussed in the Report, and a condition is not considered to be fully justified, the case officer has secured agreement from the applicant to screen the platforms to the fire escape and the applicant is happy for this to be conditioned.
PLANNING ASSESSMENT
Policy
The site lies within a Housing Area as defined in the Unitary Development Plan (UDP). The following UDP Policies are most relevant in assessing the merits of the proposals
H5 (Flats, Bed-Sitters and Shared Housing) H10 (Development in Housing Areas) H14 (Conditions on Development in Housing Areas)
Principle of Proposed Use
Housing uses (Class C3) are the preferred use in Housing Areas in accordance with UDP Policy H10. The previous use as a residential care home (Class C2) is listed as an ‘acceptable’ use. The proposed use as a house in multiple occupation falls outside the scope of the Use Classes Order and is not listed as either an ‘acceptable’ or ‘unacceptable’ use under H10. It must therefore be considered on its individual merits.
The proposals represent the change of one form of living accommodation to a different form of living accommodation. As the primary function of Housing Areas is to provide housing accommodation, it has to follow that the change of use is acceptable in principle and there is no conflict with Policy H10.
100 As Redcar Road is within easy walking distance of a number of University buildings and hospitals, it is clearly going to be attractive to persons studying/working at those facilities. The principle of living within walking distance of workplaces sits very comfortably with the fundamental government planning policy objective of encouraging sustainable lifestyles. However, this inevitably results in pressure for low cost housing in the area and larger properties are particularly attractive to landlords serving this market.
National planning guidance in PPS3: Housing seeks to create sustainable, inclusive, mixed communities. This approach relies on a mix of tenures. The difficulties in maintaining a mixed and balanced community which enables permanent and short-term residents, often with very different lifestyles, to happily live side by side are recognised in UDP Policy H5. H5 seeks to prevent concentrations of flats, bed-sitters and multiple sharing of houses from causing serious nuisance to existing residents.
With the exception of 5 dwellings which appear to be either houses in multiple occupation or shared by tenants within Class C3 (as single household dwellings), the dwellings in both Redcar Road and Reservoir Road appear to be occupied by traditional households within Class C3. A number of the representations acknowledge that Redcar Road is predominantly owner occupied by single households.
Whilst it may be preferable to restrict these two streets to Class C3 uses, the proposals do not result in the loss of a C3 use and cannot be said to produce a concentration of HMOs in the immediate proximity of the site that would cause serious nuisance to existing residents. The proposals therefore comply with Policy H5(a).
It is also worth noting that the proposed change of use does not involve any subdivision of the existing accommodation. By contrast, conversion to a single dwelling or to self-contained flats would require significant additional works. The limited private garden space is also likely to be unattractive to a family of the size the building would accommodate and does not easily lend itself to communal use to serve individual flats.
Highway Issues
The Council’s current Car Parking Guidelines require 1 parking space per 4-8 students. The proposals therefore require a maximum of 3 parking spaces. In respect of the previous use, the Guidelines require 1 space per 5-10 residents together with 1-2 spaces per staff dwelling and and 1 space per 3 non-resident staff on duty at the busiest time. This would require a minimum of 4 spaces. Off- street dropping off/picking up provision would also normally be required.
The site currently has space for 3 cars in front of the coach house. However, the different surface treatments and slight change in levels effectively restricts parking to two vehicles. The application has been amended to indicate levelling of the surfaced area. This will allow 3 cars to park satisfactorily.
101 The proposals meet the Car Parking Guidelines and therefore comply with Policy H5(c) and H14(d).
Residential Amenity
The proposed change of use efficiently uses the existing accommodation without the need for structural alteration. The application has been amended to change the allocation of the largest ground floor room from a bedroom to the communal kitchen/dining area. This significantly improves the communal facilities. 5 of the 10 bedrooms in the main building will have en-suite facilities. 2 of the ground floor bedrooms are fully accessible to people with disabilities and there is ramped access from the communal dining kitchen to the front garden area in addition to level access to the main entrance from Reservoir Road. There is a private enclosed courtyard area of approximately 35m2 in addition to a relatively private paved area to the Reservoir Road frontage of approximately 65m2.
Although the occupants will undoubtedly exhibit a very different lifestyle to the previous occupants, this does not necessarily mean that the use is a ‘bad neighbour’. The external courtyard area is buffered by its high walled enclosure and the area to the front of the property does not adjoin the private areas of nearby dwellings.
There will be some overlooking of the adjoining rear gardens from the fire escape if the students decide to congregate on it. However, it is necessary to retain the means of escape and it is unreasonable to assume that it will be misused in this manner. The applicant intends to ‘alarm’ the fire escape doors to ease temptation and to prevent its more general use to access the upper floors of the building.
Overall, the proposals will provide a good standard of living accommodation for the occupiers and will not significantly detract from amenities of adjoining residential property. The proposals therefore comply with Policies H5(b) and H14(c) and (e).
SUMMARY AND RECOMMENDATION
The proposal can be implemented without significant alteration of the existing building. Adequate communal facilities will be provided internally and externally and the car parking provision meets the relevant guidelines. The development will not result in a concentration of similar uses in the immediate area and adequate residential amenity can be maintained for adjoining and nearby residents.
Overall, the proposals comply with relevant UDP policies and national planning guidance in PPS3 and it is recommended that planning permission is granted subject to conditions.
102
Case Number 07/02074/FUL
Application Type A Full Planning Application
Proposal Erection of 4 units for use as car dealerships, provision of car parking accommodation and associated enabling works
Location Land Adjoining Sheffield Road Vulcan Road Meadowhall Way And Site Of Former Staybrite Works Sheffield
Date Received 22/05/2007
Team CITY CENTRE AND EAST
Applicant/Agent Drivers Jonas
Recommendation To Report
Subject to:
1 The development shall be begun not later than the expiration of three years from the date of this decision.
In order to comply with the requirements of the Town and Country Planning Act.
2 Before construction of the buildings details of the following matters shall be submitted to and approved by the Local Planning Authority. Thereafter the proposals shall be implemented in accordance with the approved details.
1. Typical sections a 1:20 through each building showing the depth of reveals to openings or set backs where materials change. 2. Larger scale details of eaves and external handrails and main pedestrian entrances to buildings. 3. A scheme for externally lighting the buildings. 4. Details of how public art will be incorporated into the scheme. 5. Detailed specifications of the glazing systems to be used. 6. The location number and design of the cycle stands and covers. 7. Details of dropped crossings within the site.
In the interests of the amenities of the locality.
3 Before the development is commenced, details of all proposed external materials and finishes, including windows, shall have been submitted to and
103 approved in writing by the Local Planning Authority. Thereafter, the development shall be carried out in accordance with the approved details.
In order to ensure an appropriate quality of development.
4 There shall be no cars displayed forward of the buildings facing onto the highways adjoining the site.
In the interests of the visual amenities of the locality.
5 Prior to the occupation of any part of the development, a detailed Travel Plan(s), designed to reduce the need for, and impact of, motor vehicles, increase site accessibility and to facilitate and encourage alternative travel modes, shall have been submitted to and approved in writing by the Local Planning Authority. Where there has been a previously approved Framework Travel Plan for the proposed development, the detailed Travel Plan(s) shall be developed in accordance with it. The Travel Plan(s) shall include:
1. Clear and unambiguous objectives and modal split targets;
2. An implementation programme, with arrangements to review and report back on progress being achieved to the Local Planning Authority for written approval of actions consequently proposed, at intervals of one, three and five years from occupation;
3. Arrangements to carry out a user survey(s), the results of which shall be used to further define targets and inform actions proposed to achieve the approved objectives and modal split targets. On occupation, the approved Travel Plan(s) shall thereafter be implemented, subject to any variations approved in writing by the Local Planning Authority.
In the interests of delivering sustainable forms of transport, in accordance with the Transport Policies in the adopted Unitary Development Plan for Sheffield and PPG13.
6 Surface water and foul drainage shall drain to separate systems.
To ensure satisfactory drainage arrangements.
7 No piped discharge of surface water from the application site shall take place until surface water drainage works including off-site works have been completed in accordance with details to be submitted to and approved in writing by the Local Planning Authority.
To ensure satisfactory drainage arrangements.
8 Prior to being discharged into any watercourse, surface water sewer or soakaway system all surface water drainage from parking areas and hardstandings shall be passed through a petrol/oil interceptor designed and
104 constructed in accordance with details to be approved in writing by the Local Planning Authority.
To prevent pollution of the Water Environment.
9 The landscaping scheme shown on the plans shall be carried out 'within 1 month of the occupation of the development or within an alternative timescale to be first agreed in writing with the Local Planning Authority' but before such landscaping is carried out further details thereof shall have been submitted to and approved in writing by the Local Planning Authority. When the above-mentioned landscaping has been carried out, thereafter the landscaped areas shall be retained. The landscaped areas shall be cultivated and maintained for 5 years from the date of implementation and any failures within that 5 year period shall be replaced in accordance with the approved details unless otherwise authorised in writing.
In the interests of the amenities of the locality.
10 Before the landscaping works are implemented details of the design of tree pits, including details of tree grills and uplighters for the trees on the Sheffield Road and Vulcan Road frontages shall be submitted to and approved by the Local Planning Authority. Thereafter the scheme shall be implemented in accordance with the approved details.
In the interests of the amenities of the locality.
11 Before any development commences a detailed hard landscape layout for the site showing the location and layout of the different paving materials shall be submitted to and approved by the Local Planning Authority.
In the interests of the visual amenities of the locality.
12 Prior to the hard landscaping works commencing details samples of the paving materials including the aggregate finish to the resin bond paths shall be submitted to and approved by the Local Planning Authority.
In the interests of the visual amenities of the locality.
13 The proposed green/brown roofs shall be provided in the locations shown on the approved plans and implemented prior to the occupation of the buildings. A minimum of 80% of the roof areas shown shall be vegetated. The roofs shall include a substrate based growing medium of 70mm minimum depth. The vegetation type shall be herbaceous plants and/or self-conlonized plants but not including sedum species. The roof as a whole shall be designed to retain a minimum of 60% annual rainfall.
In order to ensure that the green roofs are successful in the interests of the amenities of the locality and in order t compensate for the loss of part of the railway embankment.
105 14 Before any development commences full details of the green/brown roof construction, specification and maintenance schedule including details of a quality specification shall be submitted to and approved by the Local Planning Authority. The plant sward shall be maintained for a period of 5 years from the date of implementation and any failures within that period shall be replaced to the satisfaction of the Local Planning Authority.
In order to ensure that the green roofs are successful in the interests of the amenities of the locality and in order to compensate for the loss of part of the railway embankment.
15 No development work, including ground clearance and demolition work shall take place unless and until the developer, their agent or their successor in title has secured the implementation of a programme of archaeological work in accordance with a written scheme of investigation that has been submitted to and approved in writing by the Local Planning Authority.
To ensure that any archaeological remains present, whether standing or buried, are preserved - either by being left in situ or recorded and removed in accordance with an agreed method, before they are damaged or destroyed.
16 Prior to the commencement of any work on site, a detailed scheme for the foundation design and all new ground works shall have been submitted to and approved in writing by the Local Planning Authority and the development shall be carried out in accordance with the approved details.
To ensure that ground disturbance is restricted to a minimum and is carried out in the agreed manner to preserve archaeological remains in situ.
17 If during development contamination not previously identified is found to be present at the site then no further development (unless otherwise agreed by the Local Planning Authority) shall be carried out until the developer has submitted, and obtained written approval from the LPA for, an amendment to the Method Statement detailing how this unsuspected contamination shall be dealt with.
To protect the water environment and ensure the site is remediated to an appropriate standard.
18 Piling or other forms of foundation designs using penetrative methods will not be permitted other than with the express consent of the Local Planning Authority, which may be given for those parts of the site where it has been demonstrated that there is no resultant unacceptable risk to groundwater.
The site is potentially contaminated and piling could lead to the contamination of the underlying aquifer.
106 19 Before any development commences a sustainable urban drainage scheme in which the discharge rate will be limited to a maximum of 50 l/s per gross hectare shall be submitted to and approved by the Local Planning Authority.
To limit surface what runoff and flooding downstream in accordance with PPS25.
20 Before the car showrooms are brought into use details of alternative sites for accommodating overspill car parking along with a scheme for signage and managing the operation of these car parks shall be submitted to and approved by the Local Planning Authority. Thereafter the overspill car parking shall be provided in accordance with the approved details.
In the interests of traffic safety and the amenities of the locality.
21 The areas identified for customer and staff parking on plan 11355-012-SK11 Rev P1 shall be provided before the buildings are brought into use and thereafter such car parking accommodation shall be retained for the sole purpose intended.
In the interests of traffic safety and the amenities of the locality.
22 The development shall not be begun until the improvements (which expression shall include traffic control, pedestrian and cycle safety measures) to the highways listed below have either;
a) been carried out; or
b) details have been submitted to and approved by the Local Planning Authority of arrangements which have been entered into which will secure that such improvement works will be carried out before the buildings are brought into use.
Highway Improvements:
1. The junction of Meadowhall Way with the eastern entrance to the central deck car park. 2. Footpath improvements including the provision of a cycle lane to the Sheffield Road, Vulcan Road and Meadowhall Road footpaths adjoining the site frontage. 3. Provision of a Toucan crossing to the Vulcan Road pedestrian crossing.
In the interests of traffic safety and the amenities of the locality.
23 Notwithstanding the details shown on the submitted plans the proposals for the Meadowhall Way and eastern entrance to the central deck car park are not approved as part of this consent. Prior to the improvement works indicated in the preceding condition being carried out, full details of these
107 improvement works shall have been submitted to and approved in writing by the Local Planning Authority.
In the interests of traffic safety and the amenities of the locality.
24 Before the development is commenced, details of the means of ingress and egress for vehicles engaged in the construction of the development shall have been submitted to and approved in writing by the Local Planning Authority. Such details shall include the arrangements for restricting the vehicles to the approved ingress and egress points. Ingress and egress for such vehicles shall be obtained only at the approved points.
In the interests of traffic safety and the amenities of the locality.
25 At all times that construction works are being carried out equipment shall be provided to the satisfaction of the Local Planning Authority for the effective cleaning of the wheels and bodies of vehicles leaving the site so as to prevent the depositing of mud and waste on the highway but before the development is commenced full details of such equipment shall have been submitted to and approved by the Local Planning Authority. When the above-mentioned equipment has been provided thereafter such equipment shall be used for the sole purpose intended in all instances and be properly maintained.
In the interests of the safety of road users.
26 The buildings shall not be used unless details have been submitted to and approved in writing by the Local Planning Authority, showing how surface water will be prevented from spilling onto the public highway. Once agreed, the measures shall be put into place prior to the use of the buildings commencing, and shall thereafter be retained.
In the interests of traffic safety and the amenities of the locality.
27 No material extracted from the application site shall be deposited on plot 4 (as illustrated on plan ref Eastwood and Partners drawing 29454/002 Rev D) prior to a strategy to address drainage and flooding has been submitted to and approved by the Local Planning Authority in consultation with the Environment Agency.
In order to ensure that the development does not result in loss of storage in the flood plain to the detriment of flooding elsewhere.
28 Before any work on site is commenced, a report shall have been submitted to and approved in writing by the Local Planning Authority identifying how the predicted energy needs of the development will be reduced by at least 10% through the use of on-site renewable energy equipment. Before any part of the development is occupied, the renewable energy equipment shall have been installed and thereafter retained and used.
108
In order to ensure that new development makes energy savings in the interests of mitigating the effects of climate change.
29 Before the development commences or in accordance with a timescale to be approved by the Local Planning Authority a report demonstrating how the sustainability features listed in the e-mail dated 07.08.07 will be accommodated in the development shall be submitted to and approved by the Local Planning Authority. The approved details shall be implemented before the buildings are occupied.
In the interests of encouraging sustainable development in line with the objectives of the Lower Don Valley Masterplan.
30 Notwithstanding the details shown on the submitted plans the use of tarmac for the both the roads and parking bays throughout the car park is not approved as part of this consent.
In the interests of the visual amenities of the locality.
31 The construction works and remediation works shall be carried out in accordance with the mitigation measures set out in the Air Quality report and the ground contamination reports.
In the interests of the amenities of the locality.
32 Notwithstanding the details shown on the submitted plans the cycleway around the edge of the site shall be a segregated route (by the use of block paving or concrete kerb) adjacent to the footway, the cycle route shall have a minimum width of 2.0m and the footway shall be a minimum of 1.8m
In the interests of the amenities of the locality.
Attention is drawn to the following justifications:
1. The decision to grant planning permission and impose any conditions has been taken having regard to the policies and proposals in the Sheffield Unitary Development Plan set out below, and to all relevant material considerations, including Supplementary Planning Guidance.
S8 - Development at Meadowhall IB5 - Development in General Industry Areas GE10 - Green Network
This informative is intended as a summary of the reasons for grant of planning permission.
Attention is drawn to the following directives:
109 1. To ensure that the road and/or footpaths on this development are constructed in accordance with the approved plans and specifications, the work will be inspected by representatives of the City Council. An inspection fee will be payable on commencement of the works. The fee is based on the rates used by the City Council, under the Advance Payments Code of the Highways Act 1980.
If you require any further information please contact Mr S A Turner on Sheffield (0114) 2734383.
2. It is noted that your planning application involves the construction or alteration of an access crossing to a highway maintained at public expense.
This planning permission DOES NOT automatically permit the layout or construction of the access crossing in question, this being a matter which is covered by Section 184 of the Highways Act 1980, and dealt with by:
Assistant Head of Highways Development Services Howden House 1 Union Street Sheffield S1 2SH
For access crossing approval you should contact the Highway Development Control Section of Sheffield City Council on Sheffield (0114) 2736136, quoting your planning permission reference number.
3. The development will require the issuing of a formal postal address(s) by the City Council. This will apply even if the development is an infill site. Contact Lynn Fox on Sheffield 2736127 for details. Failure to carry out this process at an early stage may result in statutory undertakers refusing to connect services. The agreed address must be clearly displayed at each individual property before occupation in order to ensure that the postal service can correctly locate each property of delivery purposes.
4. The applicant should install any external lighting to the site to meet the guidance provided by the Institution of Lighting Engineers in their document "Guidance Notes for the Reduction of Light Pollution". This is to prevent obtrusive light causing disamenity to neighbours. The Guidance Notes are available from the Institute of Lighting Engineers, telephone number (01788) 576492 and fax number (01788) 540145.
5. As the proposed development abuts the public highway, you are advised to contact the Highways Co-ordination Group on Sheffield 2736677, prior to commencing works. The Co-ordinator will be able to advise you of any pre- commencement condition surveys, permits, permissions or licences you may require in order to carry out your works.
6. The developer is advised to promote a Traffic Regulation Order to restrict parking on the estate access roads.
110
Site Location
© Crown copyright. All rights reserved. 10018816. 2005
LOCATION AND PROPOSAL
The application site is located on the south side of the Meadowhall Centre between Sheffield Road, Meadowhall Way and Weedon Street. It has an area of 8.7 hectares and comprises of three distinct areas.
The north eastern part of the site is an undeveloped plot of land of approximately 4 hectares, which has prominent frontages to Sheffield Road and Meadowhall Way. It contains no landscape features, is level and accommodates a basement of an aborted leisure scheme commenced in the early 1990s.
111 To the south west of the above site there is a railway embankment, which was heavily vegetated until it was recently cleared by the applicant.
To the south west of the railway embankment is an area of underused industrial land, which comprises of concrete hard standings and one industrial workshop. It is screened to a large extent from its surroundings by the railway embankment, car showrooms that front onto Sheffield Road and the listed former Tramshed located at the corner of Weeden Street and Sheffield Road,
The application proposes the erection of 4 car showrooms/servicing buildings fronting Sheffield Road/Meadowhall Way/Vulcan Road. These buildings will have a combined floor area of 11,700 sqm. All the dealerships will be relocated from existing sites however the new premises will be larger. It is estimated that between 290-295 people will be employed on the car showroom site. The built form is laid out to create a perimeter of buildings to the road frontage with parking and display areas to the rear. The buildings are generally 7-9m high which is similar in scale to modern industrial buildings, however elements do rise up to 13m. The BMW dealership is the largest, the General Motors and VW dealerships are smaller but of a similar scale to each other whilst the Mini building is considerably smaller. The BMW and VW dealerships have been designed so that their fully glazed double height showrooms address the two roundabouts that adjoin the site. The General Motors and Mini showrooms also face onto the highway the former having a double height glazed showroom whilst the latter is predominantly single storey. The main facing materials are metal rainscreen panels, terracotta rainscreen cladding, glazing and timber brise soleil. The buildings have flat roofs and each of the showrooms provides an area of green/brown roof, the three larger showrooms also have roof parking above the workshop areas.
A generous public realm is proposed along the road frontage of the site, particularly along the Sheffield Road and Vulcan Road frontages where the hard and soft landscaping zone is between 10-14m deep. The road frontage is to be paved in concrete setts with feature areas paved in yorkstone and green granite. An avenue of large Oaks, London Planes and Limes is to be planted along the road frontage. Within the site avenues of Lime, Maple, Birch and Hornbeam along with hedges and mass ground cover planting is proposed to define the edge of the road, pedestrian routes and to break up parking areas.
A new signalised access to the site is to be provided mid-way along the Meadowhall Way frontage. This will former a staggered junction linked in with an access to the Meadowhall central deck car park and may allow for all movements. The new junction will provide a pelican crossing and the signals will allow for additional pedestrian crossing phases . A total of 850 parking spaces will be provided on site, this breaks down into 88 customer spaces, 6 disabled spaces, 133 staff spaces, 140 spaces for the servicing, 242 display spaces and 224 spaces for demonstrators, new car inventory, after sales parking, new vehicle stock, courtesy parking.
Along the south western edge of the car showroom site a 180m section of the railway embankment is to be removed and replaced with a landscaped footpath cycle route on the same alignment. This pedestrian corridor varies between 14
112 and 24m wide and is raised 1.5m above the surroundings to act as a flood defence. Either side of the 3.2m wide shared footpath/cycle route there will be an 1.5m wide area of material reclaimed from the railway embankment and beyond this native wildflower, scrub and birch stands.
The eastern part of the site fronting Meadowhall Way, which is approximately 0.95 of a hectare, is to be reserved for a future as yet unknown development. It will be landscaped as a lawn area in the interim.
To the south west of the existing embankment there is an area of underused industrial land incorporating the foundations of demolished buildings. The site is to be reclaimed by removing foundations, crushing the material and compacting ground. It is also proposed to temporarily store some of the material from the section of railway embankment that is to be removed. This will form a mound approximately 4m high by 100m long by 75m wide.
RELEVANT PLANNING HISTORY
Between the late 1980s and 1995 the car showroom site has been the subject of a number of approvals for leisure developments none of which have been implemented.
SUMMARY OF REPRESENTATIONS
Sheffield Urban Design Review Panel considered the proposals on the 31st of May 2007. They commented as follows.
The Panel applauds the approach of the Developer and Design Team in their innovative and refreshing approach to designing car showrooms and their clear response to placemaking for this gateway site. The Panel could see the huge effort made by the design team in their presentation and response to the City’s urban design led approach, and ability to bring the manufacturers on board.
Masterplan and Layout
The proposal for treating the dealerships as a universal site rather than individual plots is untypical of the normal approach and impressive. However, the Panel felt with just a little more design development the scheme could be even more exceptional for this type of development. The following points were made in this respect:
- A strong edge to the site has been achieved but there still remain some large gaps including one approximately 40m across. The Panel advocates further development to provide continuity of frontage. - Trees should be planted where there are breaks in the building line to help strengthen the edge of the site. - - Further consideration should be given of views down onto the site, for example from Wincobank and the M1, and efforts made to reduce the impact of the large parking areas within the middle of the site.
113 - The Panel felt there was a real opportunity to transform the image of this type of development through further work on the landscaping within the central parking areas. For example, the area could be further broken up and become more of a park setting with the introduction of raised landscaped embankments or mounds to help separate visually the parking. These could help define areas of operation such as visitor parking or individual operators. - A reduction in tarmac should also be considered wherever possible. - It was suggested that there may be the opportunity to introduce more elements of fun to the scheme to give it more identity and make the complex less sterile and enhance the experience of buying a car. For example, there is the opportunity to incorporate a children’s playground or elements of education into the site.
Architecture
The Panel welcomed the approach set down by the architects, including the use of higher quality materials normally associated with car dealerships, the additional massing and heights achieved, the overhanging roofs and consistency of materials creating a distinctive and cohesive edge to the site.
Sustainability
The Panel welcomed the approach being proposed for this site and in particular applauded the use of brown roofs, which is unusual for this type of development.
Conclusion
The Panel applauded the approach taken by the design team and developer and supported the overall strategy. It considered that the approach would provide an exemplar of how to design this sort of facility.
PLANNING ASSESSMENT
Policy Issues
The Unitary Development Plan Proposals Map identifies the car showroom site as part of the Regional Shopping Centre and the railway embankment and land to west as a General Industry Area.
Policy S8 states that shops, offices, food and drink outlets, business, hotels, community facilities and leisure and recreation facilities are acceptable. Car showrooms are identified as unacceptable uses and therefore the proposal is contrary to the development plan and has been advertised as such. Proposals for non-retail development will only be permitted if they do not undermine the vitality and viability of the City Centre or put at risk the strategy for its regeneration. There must also be sufficient capacity in the highway network and there must not be a significant increase in the number of length of customer trips.
In General Industry areas, general industry and warehouses are the preferred uses and car showrooms should be decided on their merits, policy IB5.
114
The railway embankment is identified as a green link. Policy GE10 seeks to protect green links from development that would detract from their green and open character or development that would cause serious ecological damage. It encourages development that will enhance the value of green links for wildlife and recreation.
In the Sheffield Development Framework the car showroom site is identified as a business site. The emerging policy seeks to encourage a significant element of business use but does not specifically exclude car showrooms, which fall to be considered on their merits. However these policies should be given no weight at the present time.
Cabinet considered the Lower Don Valley Masterplan in May 2005. They approved the broad principles and taking forward the key elements for consideration as Emerging Options in the Core Strategy for the Sheffield Development Framework. They did not approve the details or approve the plan as a material consideration. Two of the key principles approved are the need for sustainable development and high quality design, which is particularly relevant for a key gateway site such as this. The issues of sustainability and design quality are considered in more detail below.
It is accepted that elements of the current UDP policy for this site are out of date in that it promotes retail and leisure uses in an out of centre location which is now inconsistent with Planning Policy Statement 6 ‘Planning for Town Centres’. Car showrooms are referred to as unacceptable under this policy because it was considered that they would not be of high enough environmental quality for this key gateway site. The design quality of the development is considered in more detail below. The transportation issues and impact on the highway network are also considered in more detail below.
Design Issues.
The site has been laid out to create a perimeter development maximising the built form along the road frontages. The showrooms, which are of higher architectural quality and present more active frontages, have been positioned at the key focal points. That is, facing onto the two roundabouts that adjoin the site and at the west end of the Sheffield Road frontage. This layout will produce a strong urban form and mark the key corners of the site with high quality buildings. It will also ensure that the buildings and public realm landscaping dominate in the street scene whilst the large areas of car parking are screened by the buildings. The applicants have declined to use additional planting to fill the gaps in the frontage as they consider these emphasise the walkways and permeability of the site and are necessary in order to view the car displays. Well-defined pedestrian routes have been provided into the site and these are marked with avenues of trees and structure landscaping.
Traditionally the area was characterised by large-scale industrial developments. Given this character, the scale of the surrounding spaces and the scale of the site it demands larger scale buildings. Whilst the showrooms create a long continuous
115 frontage they are not particularly tall, their scale being more akin to modern industrial buildings. The applicants have been encouraged to increase the scale of the buildings particularly at the key corners. Whilst the buildings are most imposing at these points there would have been scope for a further increase in scale.
Whilst the four car dealerships are different in design there are common elements that bind them together. They all incorporate large airy glazed showrooms that face the street, the workshop elements being of a more solid and opaque design. Common materials are used throughout these being glazing, dark grey terracotta rainscreen cladding, higher quality flat metal cladding and oak brise soliel. The design quality and materials are a cut above that found on the average car showroom. The steps in the façade, brise soliel, and varied roofline will provide modelling to the elevations and create visual interest. The long double height and partially curved glazed façade to the BMW showroom faces onto the Sheffield Road roundabout. This façade will create a good quality gateway to the city from the M1 motorway. The double height glazed showroom to the VW dealership will also create a strong statement as it addresses the Meadowhall Way roundabout.
A high quality hard and soft landscape scheme is proposed for the site. The buildings are set back along the Sheffield Road and Vulcan Road frontages to create a wide pedestrian/cyclist boulevard. This area is to be mainly paved in concrete setts with a pedestrian link into the site marked with higher qualtity sandstone and granite paving. Large trees will be planted along the site frontage, which responds to the gateway location and reinforces the existing treed boulevards around the Meadowhall Centre. The majority of the huge car park is to surfaced in tarmac, this is not considered to be satisfactory and a condition is proposed requiring different materials to be used to break down the large areas of tarmac. Hedge or mass ground cover planting interspersed with avenues of tree planting and single trees will ensure that the appearance of large areas of parking is softened. The brown roofs located on the showroom elements will also help to soften the development. The applicant has declined to further break down the car parking areas with the use of raised landscape mounds as they consider the proposed design incorporates sufficient variation.
Good provision for pedestrians ensures that the development will be well integrated with its surroundings. An east/west segregated pedestrian route through the site connects with the Vulcan Road pedestrian crossing and beyond to the Tinsley Supertram stop. A new link along the alignment of the railway embankment serves a pedestian desire line as the public frequently walk across the site from the south to access the Meadowhall Centre. It also connects with the east/west route referred to above. The above route and the pedestrian routes that link into the pedestrian crossings of Meadowhall Way will provide adequate connections for customers and staff accessing the Meadowhall shopping centre on foot.
The existing railway embankment is a strong landscape feature having previously been heavily vegetated and being elevated 6m above its surroundings. The loss of this feature is regrettable as the replacement landscaped walkway will be a less dominant feature and will allow views of the underused industrial sites to the west.
116 However these dis-benefits need to be balanced against the benefits of creating an attractive pedestrian/cycle route through the site.
Existing buildings will screen the temporary storage area so it will not be visible from outside the site. It is located 40m from the side elevation of the listed tram depot at the nearest point and will stand within a derelict site. Given this and the lack of public views of the plain rear elevation of the former tram depot it is considered that it will not detract from the setting of the listed building.
Transport Issues.
Meadowhall Transport Interchange is approximately 10 minutes walk from the site and 84 local and regional bus services operate from the Interchange. During the peak hour there are approximately 40 rail services per hour that stop at the Interchange. Meadowhall South/Tinsley Supertram stop is located approximately 5 minutes walk from the site, Yellow Route tram frequency is approximately every 10 minutes and Purple Route every 30 minutes. There are bus stops on the Sheffield Road frontage of the site and on Meadowhall Way, approximately 100m from the site. Both the Trans Pennine Trail and the Five Weirs Walk Cycle routes follow the alignment of the River Don and are a couple of minutes cycling distance from the site.
The applicant proposes to improve pedestrian and cycle facilities by;
- Providing a pelican crossing as part of the new site access junction. - Introducing a new pedestrian crossing of the access to Meadowhalls red car park. - Provide a shared pedestrian cycle link along the south western boundary of the site linking Sheffield Road to Meadowhall Way. - Providing a new shared pedestrian cycle route along the Sheffield Road and Vulcan Way frontages of the site. - Within the site pedestrian access is provided to each of the dealerships and cross pedestrian only links from Sheffield Road and across the site from Vulcan Road to the new cycle pedestrian link along the south west side of the site.
The pedestrian provision will improve safety for pedestrians and access to the Meadowhall Centre and public transport. Covered cycle parking is provided within the site and showers and lockers for use by staff.
The applicants have submitted a travel plan framework in order to encourage use of alternative forms of transport. The submission and implementation of detailed travel plans will be controlled by conditions.
The new signalised staggered junction will provide access to the site but also allow for all movements at the red car park access. This will help to reduce pressure on the Meadowhall Way/Vulcan Way roundabout. Within the site the road network has been designed to accommodate the largest car transporters.
117 The overall provision of parking for staff and customers is at the lower end of the Councils guidelines. Cycle parking is to be provided for each of the dealerships, conditions are proposed to ensure that provision will be consistent with the Council’s parking guidelines.
The Transport Assessment indicates that 95 trips are predicted to be generated by the site in the morning peak period and 77 in the evening peak. The total number of trips that would be generated by an employment use would be considerably higher. The largest impact on the junctions adjoining the site is a 3.8% increase in traffic in the morning peak on the Vulcan Road/Meadowhall Way roundabout. The impact on all other junctions is less than 1.6% and below 0.5% on any of the motorway junction links. More detailed modelling of the Vulcan Road/Meadowhall Way, Meadowhall Road/Meadowhall Way/Jenkin Road and the site access has been undertaken. This shows that the additional traffic generated by the development can be accommodated on the surrounding highway network with no significant impact.
The Highways Agency has provided initial comments on the application, which consist of technical comments about the adequacy of the information submitted as part of the transport assessment. They advise that they will comment further when these are resolved. The applicants have responded to these points and it is anticipated that the Agency will not object to the proposals. Their final views will be reported verbally at the Board meeting.
South Yorkshire Passenger Transport Executive have drawn attention to the potential for a Bus Rapid Transit Scheme using the alignment of the railway embankment. This however is not a firm proposal and can be given no weight in determining this application.
Sustainability Issues.
The applicants are proposing to include sustainable drainage techniques incorporating porous paving and pipes. This will have the effect of attenuating the run off from the site to roughly half that which would be expected during a storm event.
The design will achieve a BREEAM for Retail very good score.
The building shape, façade orientation and shading effects have been designed to reduce solar gain.
The brown roofs will also help to attenuate rainwater runoff to a small extent but will also mitigate against some of the ecological harm caused by the removal of the railway embankment.
Solar panels will be provided on the roofs to heat water. Ground source heat pumps will be provided to meet 50% of the peak heat load (the other 50% will be met by high efficiency gas fired condensing boilers).
118 At least 15% of the total material value will be derived from recycled content. Aggregates found on site within the railway embankment may also be recycled and used within the development.
Rainwater and grey water recovery and recycling will be adopted along with low water usage WCs and urinals.
Archaeology.
The archaeological appraisal states that the site has a high potential for industrial and modern remains, particularly relating to the Imperial Steel Works and Staybrite Works established between 1905 and 1923 and the Sheffield and District Railway constructed at the end of the 19th Century. There is a low potential for remains from other periods. The applicants propose that an archaeological watching brief is undertaken whilst ground works are underway. However as the archaeology may provide evidence of the early stages of steel production it is considered that a more comprehensive scheme of archaeological mitigation is needed and conditions are proposed to secure a programme of archaeological work along and to control the detailed foundation design and ground works.
Flood Risk.
The land to the south west of the railway embankment lies in the 1 in 100 year flood plain whilst the land to the north east lies in the 1 in 1000 year flood plain. The area in the 1 in 100-year flood plain is to be used for temporary storage of material whilst the car sales buildings will be developed on the site in the 1 in 1000- year flood plain. The access road that serves the car sales site is also generally outside the 1 in 100 year flood plain. When allowances are made for climate change, most of the car sales site remains outside the 1 in 100 year flood plain however Meadowhall Way adjacent to the site is situated below the 1 in 100 year flood level.
PPS 25 Flood Risk identifies car showrooms as a less vulnerable use that can be located in 1 in 100 or 1 in 1000 flood plains. The site levels for the car sales site are at least 600mm above the 1 in 100 year flood level. A sustainable drainage system is proposed along with green/brown roofs to limit run off to minimise the impact of run off from the sites hard surfaces creating flooding elsewhere.
The Environment Agency have objected to the proposal on the following grounds. The flood risk assessment needs to be reviewed in the light of the June 2007 floods and an assessment made of what impact this would have had on the development. The site where the material is to be stored flooded and the material will reduce the capacity of the floodplain, therefore compensatory flood storage must be provided. The floor levels should be 600mm above the 1 in 100 year flood levels including an allowance for climate change. The access road around the site lies in the 1 in 100 year flood plain and therefore the flood risk assessment needs to consider how users of the development will be evacuated in the event of a flood.
The applicants have provided additional information in response to these objections. They have confirmed that the car sales site did not flood in June 2007
119 but the material storage site did. They have also proposed a condition to overcome the EA concern about loss of flood storage capacity. A response from the EA is awaited and will be reported verbally at the Board meeting.
Ecology
An ecological appraisal has been submitted as it is proposed to remove part of the railway embankment, which supports a variety of habitats. It is a proposed Site of Interest for Nature Conservation (SINC) in the emerging Sheffield Development Framework and a “Green Corridor” in the UDP. The appraisal covered the whole of the site and not just the embankment.
Policy GE 10 in the UDP states that Green Corridors will be protected from development that would detract from their mainly green and open character or which would cause serious ecological damage. The proposed SINC can be given no weight at this stage. If this site is designated as a SINC it is likely policies will seek to prevent damage to the natural history interest and compensate for any decrease in value by enhancement of wildlife habitats locally.
The ecological survey identifies the following potential impacts:
- Loss of sparse and patchy, species-poor vegetation. - Loss of ruderal vegitation. - Loss of secondary woodland, dense scrub and grassland communities. - Reduction in the overall quantity of breeding bird habitat, three of the species recorded on site have been categorised as of conservation concern. - Reduction in the overall quantity of invertebrate habitat. - Severance of green corridor. - Reduction in the overall quantity of foraging habitat for bats. - Partial loss of a proposed SINC.
The applicant argues that the majority of the railway embankment to the west of the site will not be affected by the proposal. A new green link will be created along the original alignment of the embankment even though it will not be as wide (15m wide as opposed to approximately 60m wide for the existing embankment). This they argue will maintain the connectivity of the Green Corridor with similar features and habitats to those of the embankment being created. This will include trackbed/ruderal and neutral grassland habitat for invertebrates and secondary woodland/scrub for breeding birds. They also argue the additional tree planting in the site and the brown roofs will help to maintain overall biodiversity of the site. The embankment is used for foraging by pipistrelle bats however the habitat loss is not considered to be significant and the new green link will provide bat foraging habitat and bat boxes will be provided on the buildings adjacent to the green link.
The development will be carried out to avoid damage to nesting sites and the habitat creation in the green link, tree and shrub planting in the car sales site along with provision of nest boxes for linnets and bullfinches is intended as compensation for the loss of foraging and nesting sites.
120 The ecological survey suggests that the invertebrate community on the site is of importance in the context of urban Sheffield. In compensation the applicants are proposing the creation of trackbed habitat along the green link, which will be managed to be of benefit to invertebrates along with invertebrate nest boxes and the brown roofs, which will provide nesting habitat for invertebrates.
The brown roofs will be surfaced with material reclaimed from the railway embankment. Three of the roofs will be sown with a wildflower planting mix whilst the General Motors site which lies closest to the railway embankment will be allowed to seed naturally.
The railway embankment supports a wide diversity of plant species, which supports a wide variety of invertebrate species and also supports a variety of breeding birds. The mitigation proposed will provide a habitat for some of the species but not for most of the species that currently rely on the railway embankment. The width of the green link will be reduced by three quarters and clearly the new habitat will take time to establish itself. Therefore it is concluded that whilst a green link will be retained the development will detract from its green and open character by virtue of significantly reducing its width and significantly reduce its ecological value. The proposal is therefore considered to be contrary to UDP policy GE10.
It should be noted that the applicant has already removed the trees and shrubs from the section of embankment that is affected by the development. Whilst this does not require planning permission it will have affected the ecological value of the site, although this would be likely to recover over time.
Air Quality
The air quality assessment has considered the impact of the construction works on particulate emissions and the impact of road traffic on nitrogen dioxide. These are the main pollutants of concern locally.
The assessment reveals that given disposition of adjoining uses and the wind patterns that the likelihood of receiving dust complaints during construction is low. The levels of fine particulates are likely to meet the national air quality objectives both with and without the development.
At some sites within the surrounding area the concentrations of Nitrogen Dioxide already exceed the National Air Quality Objectives. These are likely to fall by the predicted opening of the development due to improvements in vehicle technologies although some sites will still be above the Objective levels. The development is not predicted to have any significant impact on the concentrations of Nitrogen Dioxide. It is therefore concluded that there is no basis for resisting this proposal on air quality grounds.
The applicants have put forward a scheme to mitigate the impact of dust during construction. This includes damping down materials and haul roads, sealing material stockpiles, cleaning vehicle wheels etc.
121 Land Contamination.
The ground conditions are typical of an industrial site. The levels of contamination are not such that material needs to be removed from the site, it will be capped instead.
SUMMARY AND RECOMMENDATION
The development of this site for car showrooms is contrary to the Development Plan. Car showrooms were considered unsuitable as it was expected that they would not be of sufficient design quality for this gateway site. However the applicants have demonstrated with their design led approach that the scheme will provide a good quality development on this important site. It will represent a significant uplift in quality on the existing development that surrounds the site and in this respect responds to the gateway location.
The site is well served by public transport and has good pedestrian connections with surrounding development. The traffic generation is quite low and therefore there will be no significant impact on the highway network.
The applicant has committed to a number of sustainable development features, which is one of the key objectives of the vision of the Lower Don Valley Masterplan.
The loss of part of the railway embankment is regrettable because of its landscape and ecological value. Compensations are proposed to mitigate against the ecological impacts and the provision of the new footpath/cycle link on the route of the embankment is welcomed. Nevertheless it is considered there will be a reduction in ecological value and the proposal is contrary with UDP policy GE10. However this harm needs to be balanced against the design quality, the economic, regeneration and sustainable benefits of the scheme. It is therefore anticipated subject to resolution of the Environment Agency and Highways Agency concerns that if will be possible to recommend the application favourably.
122
Case Number 07/02073/OUT
Application Type Outline Planning Application
Proposal Mixed use development comprising of 200 bedroom hotel (Use Class C1), 9706 sq. m office accommodation (Use Class B1), 528 sq.m Use Class A3 space (Restaurants and Cafes) and basement car parking
Location Sheffield Hallam University Nelson Mandela Building Pond Street Sheffield S1 2BW
Date Received 23/05/2007
Team CITY CENTRE AND EAST
Applicant/Agent Aedas Architects Ltd
Recommendation To Report
Subject to:
1 The development shall not be commenced unless and until full particulars and plans thereof shall have been submitted to the Local Planning Authority and planning approval in respect thereof including details of:
(a) Appearance (b) Landscaping (c) Layout
shall have been obtained from the Local Planning Authority.
Until full particulars and plans of the development (including details of the matters hereby reserved) are submitted to and approved by the Local Planning Authority they cannot agree to the development proceeding.
2 Application for approval in respect of any matter reserved by this permission must be made not later than the expiration of three years from the date of this decision.
In order to comply with the requirements of the Town and Country Planning Act.
123 3 The development shall be begun not later than whichever is the later of the following dates:- the expiration of two years from the final approval of the reserved matters or, in the case of approval on different dates, the final approval of the last such matter to be approved.
In order to comply with the requirements of the Town and Country Planning Act.
4 The development shall not be used for the purposes hereby permitted unless the scheme of sound attenuation works described in the Noise Report dated 11th May 2007 produced by Acoustic and Engineering Consultants Ltd., has been carried out as specified in the Report and such works shall thereafter be retained.
In the interests of the amenities of the locality and occupiers of adjoining property.
5 Before the development is commenced a Phase 1 and 2 Risk Assessment, to characterise the contamination on site and propose a remediation scheme to ensure safe redevelopment, shall have been submitted to and approved in writing by the Local Planning Authority. Should any previously unsuspected contamination be encountered during the development, the Local Planning Authority shall be notified within one working day of its discovery, together with any proposed amendments to the proposed remediation scheme. The development shall then be carried out in accordance with the approved scheme and the applicant shall provide written verification that the remediation has been completed as approved, within 21 days of the approved scheme being completed.
In order to protect the health and safety of future occupiers and users of the site.
6 Before the development is commenced, details of the proposed surfacing, layout and marking out of the car parking accommodation shall have been submitted to and approved in writing by the Local Planning Authority. The shall not be used unless the car parking accommodation has been provided in accordance with the approved plans and thereafter such car parking accommodation shall be retained for the sole use of the development hereby permitted.
In the interests of traffic safety and the amenities of the locality.
7 The development shall not be begun until the improvements (which expression shall include traffic control, pedestrian and cycle safety measures) to the highways listed below have either;
a) been carried out; or
b) details have been submitted to and approved by the Local Planning Authority of arrangements which have been entered into which will secure
124 that such improvement works will be carried out before the development is brought into use.
Highway Improvements:
a. The footway adjacent to the perimeter of the building and any area where work is undertaken in the highway shall be constructed or reinstated to ‘Urban Design Compendium’ specification. b. The section of the City Centre Cycle Ring Route on Pond Street shall be completed as shown in drawing TM/BG294/NH04P. c. The existing bus stop and related infrastructure on Pond Street shall be relocated to a new location on Paternoster Row, following the approval of details by the local planning authority. d. If it is determined by the local planning authority that it is impractical to re-use the existing shelters or other bus stop infrastructure the applicant should fund and install new infrastructure to the satisfaction of the local planning authority. e. The installation of a Connect sign at a location to be agreed by the Local Planning Authority (at a cost of £13,750).
To enable the above-mentioned highways to accommodate the increase in traffic, which, in the opinion of the Local Planning Authority, will be generated by the development.
8 Prior to the improvement works indicated in the preceding condition being carried out, full details of these improvement works shall have been submitted to and approved in writing by the Local Planning Authority.
In the interests of traffic safety and the amenities of the locality.
9 Details of a number of publicly accessible car parking bays designated, signed and thereafter retained solely for the use of Sheffield City Car Club `WhizzGo’ shall be included with the reserved matters submission for the development hereby approved. This condition shall not preclude an agreement being reached with the Council for alternative means of promoting and expanding the car club by way of a financial contribution.
In the interests of delivering sustainable forms of transport, in accordance with the Transport Policies in the adopted Unitary Development Plan for Sheffield and PPG13.
10 No doors shall, when open, project over the adjoining highway.
In the interests of pedestrian safety.
11 Before the development is commenced, details of the means of ingress and egress for vehicles engaged in the construction of the development shall have been submitted to and approved in writing by the Local Planning Authority. Such details shall include the arrangements for restricting the
125 vehicles to the approved ingress and egress points. Ingress and egress for such vehicles shall be obtained only at the approved points.
In the interests of traffic safety and the amenities of the locality.
12 There shall be no gates or barriers erected at the means of access to the site unless otherwise agreed in writing by the Local Planning Authority.
In the interests of traffic safety and the amenities of the locality.
13 At all times that construction works are being carried out equipment shall be provided to the satisfaction of the Local Planning Authority for the effective cleaning of the wheels and bodies of vehicles leaving the site so as to prevent the depositing of mud and waste on the highway but before the development is commenced full details of such equipment shall have been submitted to and approved by the Local Planning Authority. When the above-mentioned equipment has been provided thereafter such equipment shall be used for the sole purpose intended in all instances and be properly maintained.
In the interests of the safety of road users.
14 Before the development is commenced, full details of the proposed layout and setting out of the cycle parking accommodation shall have been submitted to and approved in writing by the Local Planning Authority. The shall not be used unless the cycle parking accommodation has been provided in accordance with the approved plans and thereafter, such cycle parking shall be retained.
In the interests of traffic safety and the amenities of the locality.
15 The building shall not be used unless provision has been made within the site for accommodation of delivery/service vehicles in accordance with plans submitted to and approved in writing by the Local Planning Authority. Thereafter, all such areas shall be retained free of all obstructions, including the storage, display and depositing of materials, packaging or other objects so that the service yard is fully available for the parking, turning and manoeuvring of delivery/service vehicles.
In the interests of highway safety and the amenities of the locality.
16 No development shall take place until details of the proposed means of disposal of foul and surface water drainage, including details of any balancing works and off-site works, have been submitted to and approved by the Local Planning Authority.
To ensure the development can be properly drained.
17 Unless otherwise approved in writing by the local planning authority, there shall be no piped discharge of surface water from the development prior to
126 the completion of the approved surface water drainage works and no buildings shall be occupied or brought into use prior to the completion of the approved foul drainage works.
To ensure that no foul or surface water discharges take place until proper provision has been made for their disposal.
18 Prior to being discharged into any watercourse, surface water sewer or soakaway system all surface water drainage from parking areas and hardstandings shall be passed through a petrol/oil interceptor designed and constructed in accordance with details to be approved in writing by the Local Planning Authority.
To prevent pollution of the Water Environment.
19 No development work, including ground clearance and demolition work shall take place unless and until the developer, their agent or their successor in title has secured the implementation of a programme of archaeological work in accordance with a written scheme of investigation that has been submitted to and approved in writing by the Local Planning Authority.
To ensure that any archaeological remains present, whether standing or buried, are preserved - either by being left in situ or recorded and removed in accordance with an agreed method, before they are damaged or destroyed.
20 Before the development is commenced, full details of proposals for the inclusion of public art within the development shall have been submitted to and approved in writing by the Local Planning Authority. Such details shall then be implemented prior to the occupation of the development unless otherwise authorised in writing by the Local Planning Authority.
In order to satisfy the requirements of Policy BE12 of the Unitary Development Plan and to ensure that the quality of the built environment is enhanced.
Attention is drawn to the following justifications:
1. The decision to grant planning permission and impose any conditions has been taken having regard to the policies and proposals in the Sheffield Unitary Development Plan set out below, and to all relevant material considerations, including Supplementary Planning Guidance.
CF7 - Development in Institution: Education Areas CF8 - Conditions on Development in Institution Areas BE16 - Development in Conservation Areas
This informative is intended as a summary of the reasons for grant of planning permission.
127 Attention is drawn to the following directives:
1. To ensure that the road and/or footpaths on this development are constructed in accordance with the approved plans and specifications, the work will be inspected by representatives of the City Council. An inspection fee will be payable on commencement of the works. The fee is based on the rates used by the City Council, under the Advance Payments Code of the Highways Act 1980.
If you require any further information please contact Mr S A Turner on Sheffield (0114) 2734383.
2. It is noted that your planning application involves the construction or alteration of an access crossing to a highway maintained at public expense.
This planning permission DOES NOT automatically permit the layout or construction of the access crossing in question, this being a matter which is covered by Section 184 of the Highways Act 1980, and dealt with by:
Assistant Head of Highways Development Services Howden House 1 Union Street Sheffield S1 2SH
For access crossing approval you should contact the Highway Development Control Section of Sheffield City Council on Sheffield (0114) 2736136, quoting your planning permission reference number.
3. As the proposed development abuts the public highway you are advised to contact the Highways Co-ordination Group on Sheffield 2736677, prior to commencing works. The Co-ordinator will be able to advise you of any pre- commencement condition surveys, permits, permissions or licences you may require in order to carry out your works.
128 Site Location
© Crown copyright. All rights reserved. 10018816. 2005
LOCATION AND PROPOSAL
The application site lies within the Sheaf Valley, between Sheaf Street to the east and Pond Street to the west. Currently occupied by Sheffield Hallam University’s former student’s union, the Nelson Mandela Building, the site occupies a prominent position overlooking the recently completed Sheaf Square in front of the city’s grade II listed railway station.
Adjacent the northern site boundary stands a three storey building occupied by Sheffield Hallam University. The University campus continues to rise up the hill to the west towards the city centre, with buildings ranging from four to ten storeys in
129 height. Also to the west stands the grade II listed Howard Hotel and Howard Street, the main pedestrian route from the railway station into the heart of the city.
South west of the site stands the Showroom Cinema, recently the subject of an international design competition to extend their facilities into a bold, highly visible entrance. To the south east is the now cleared development site previously occupied by Sheaf House.
In this context, outline planning permission is sought for the erection of a mixed use development comprising of a 200 bedroom hotel, 9706 square metres of office accommodation and a restaurant/café unit.
This application is for outline planning permission only. The applicant has indicated that they wish to reserve appearance, landscaping and layout for subsequent approval. Therefore, access and scale (meaning the height, width and length of the buildings in relation to their surroundings) are assessed as part of this current proposal.
RELEVANT PLANNING HISTORY
No relevant planning history.
SUMMARY OF REPRESENTATIONS
Two letters of representation were received in connection with the proposed development, both in support of the application. The correspondents praised both the proposed uses and the quality of the architecture.
The Sheffield Urban Design Review Panel considered the proposals (for the second time) at their meeting on 31st May 2007. The Panel remain uncomfortable with the disposition of massing, but accept the quantity of development and heights proposed. They feel that concerns over massing could be mitigated to a large extent by careful handling of the way the two blocks meet and that further work on the junction between, and the identity of, the two buildings is essential.
The Panel consider the hierarchy of the buildings to be the wrong way round, and that there is a real opportunity to progress the hotel with the chosen operator to develop a civic building which has some of the grandeur associated with Victorian station hotel buildings.
The Panel support the greater use of local stone but question the use of copper on this site given the context. They feel that the architectural treatment of the scheme is overly complex and that further simplification is required, informed by environmental and structural performance.
PLANNING ASSESSMENT
Policy Issues
130 The application site falls largely within an Institution: Education Area and on a Strategic Road as defined in the Unitary Development Plan (UDP). Policy CF7 of the UDP (Development in Institution: Education Areas) describes business (class B1), hotels (class C1) and food and drink outlets as acceptable uses in Education Areas.
Policy CF8 of the UDP (Conditions on Development in Institution Areas) states that new development or changes of use will be permitted provided that they would not lead to a concentration of uses which would prejudice the dominance of preferred uses. As Sheffield Hallam University did a land swap with Yorkshire Forward, exchanging the Nelson Mandela Building for the former National Centre for Popular Music, there will be no overall reduction in educational space and the remaining land is no longer needed for the highway.
Policy CF8 goes on to say that new development should not cause residents or hotel visitors to suffer from unacceptable living conditions, they must be well designed and of a scale appropriate to the site and be served adequately by transport facilities and provide safe access to the highway network. These issues are dealt with under the relevant headings below.
Planning Policy Statement 6 (Planning for Town Centres) requires the proposals for main town centre uses to satisfy tests of need, scale, sequential approach, impact and accessibility. Main town centres include retail, offices and housing. PPS6 places an emphasis on the vitality, vibrancy and revitalisation of city centres. Given the location close to the railway station and transport interchange, this is considered to be a good location for a major hotel and office development and meets the policy requirements, including PPS6.
The south west tip of the site lies within the Cultural Industries Quarter Conservation Area. Policy BE16 (Development in Conservation Areas) expects new development in or adjacent to a Conservation Area to preserve or enhance the appearance of the area.
Design Issues
This application is for outline planning permission. Approval is sought for the scale of the development, with external appearance reserved for subsequent approval. The proposals have been developed to a fairly detailed level to illustrate the design quality to be achieved, however further design development will be undertaken as part of the reserved matters application.
The scheme essentially comprises of two buildings, a hotel and an office block, which collide in the middle of the site. The office accommodation ranges from six to nine storeys in height, stepping up in three distinct elements along Pond Street and away from the historically sensitive Howard Hotel. The hotel accommodation fronts onto Sheaf Street and is a fairly consistent ten storeys, though the lower floor to ceiling heights keep it below the two tallest elements of the office building. Given the building’s prominent position on the inner ring road and role in forming a gateway into the city, it is considered that the scale of the development is
131 acceptable and will not harm the character and appearance of the area and will not significantly harm the setting of the Howard Hotel.
Each of the two uses has a different architectural treatment. The office accommodation is designed to look like a series of glass boxes with heavy stone load bearing facades to the east and west and only the south facing façade left fully glazed (though this raises some environmental concerns in terms of overheating and glare). The layering of recessed glass, deep stone facades and vertical fins, which provide additional solar protection, give the office accommodation a welcome depth of modelling. This is further enhanced by the random staggering of solid to glass.
The design of the hotel accommodation is quite different, incorporating a glimmering, copper skin, which reflects the contours of Sheaf Street and incorporates openings in the otherwise solid surface, which form balcony voids and windows to the rooms behind. The images submitted with the planning application are indicative of this concept, however the design of the hotel will clearly evolve when the final operator is chosen.
One key area of concern, however, is the junction between the two uses and the lack of visual (as opposed to physical) separation. There is also a desire to express the hotel entrance, located on Sheaf Street at the junction of the two building elements, much more clearly.
Both elements of the building require further design development and the relationship between the two is still considered to be weak. Overall, however, it is considered that the scale of the proposed development is appropriate to its setting and therefore acceptable, and that, with further design development, a scheme of the highest architectural quality can be achieved.
Highway Issues
Sheaf Street is a strategic distributor route. As such no development access, servicing, pick-up or set-down will be permitted along its length. Vehicular access to the application site is therefore gained via Pond Street, comprising of ramped access into a small basement car park (approximately 40 spaces). The priority controlled access has been designed to accommodate cars off-carriageway on a level surface whilst waiting for the car park barrier to rise. This arrangement should prevent any obstruction to the generally light traffic on Pond Street and is considered to acceptable.
South of Harmer Lane, Pond Street is prohibited to through traffic except for buses, taxis, cycles and access for deliveries. General traffic requiring access to properties on Pond Street must use the existing adopted turning head located on Surrey Lane, opposite the application site, to leave the area. However, as the level of traffic needing to use the turning head should be limited to service deliveries and private cars dropping off at the hotel (taxis can go through the adjacent bus gate), it is considered that there will be no harmful impact on highway safety.
132 It is proposed that an existing lay-by on Pond Street (which served the former student’s union) be extended and re-designated to provide a servicing facility for the whole development as well as a drop-off and pick-up area for the hotel. This will necessitate the relocation of a recently installed bus shelter and signage as part of the Sheaf Square highway works (at the applicant’s cost). The applicant proposes to relocate this infrastructure to the south side of the bus gate, with no loss of capacity, and it is generally accepted that the relocation will have little impact on bus users, or the quality of the environment, following a period of adjustment.
The site is ideally located to take advantage of public transport given its proximity to the railway station, bus station and Supertram network.
In addition arrangements have been entered into to secure contributions towards the Sheffield City Car Club, the completion of a cycle route along Pond Street and amendments to the Connect signage scheme.
Residential Amenity
A noise assessment survey was carried out in accordance with the requirements of PPG24 ‘Planning and Noise’. The survey identified that noise levels in the area were dominated by road traffic on Sheaf Street plus occasional bus movements on Pond Street, and that the road traffic noise masked noise from rail movements at the nearby station both day and night.
The noise levels recorded fell within Noise Exposure Category (NEC) C, day and night. PPG24 advises that noise mitigation measures may make developments in category C acceptable, and the survey goes on to propose noise attenuation measures that will achieve the required noise levels. These proposals are considered to be acceptable in protecting the amenities of the office workers and hotel residents and are reserved by condition.
Flood Risk
The application site lies within the indicative flood plain and as such a Flood Risk Assessment was required to accompany the planning application. The assessment indicates that consultation was undertaken with the Environment Agency (EA) and that the issues raised by the EA have been addressed. However, due to recent events, the EA have yet to respond to their formal consultation. It is envisaged that the Environment Agency’s comments will be related to Members in a supplementary report.
Archaeology
Activity was first recorded in the area in the early eighteenth century when the water power of the River Sheaf was harnessed by a series of goits and reservoirs known as ponds (Pond Street) to power tilt hammers and mills.
As the industrial city expanded, the site was surrounded by small-scale industrial workshops and cramped domestic housing. In the late eighteenth century a new,
133 larger tilt building was erected, though the original tilt building remained for some time as a sawmill.
The area changed dramatically at the end of the nineteenth century as the construction of the Midland Railway and Station led to the infilling of the ponds and demolition of the tilt. In the 1930s the small workshops and houses in and around the application site were demolished and the area made into a car park.
Further change occurred in the latter half of the twentieth century when the inner ring road and Sheaf Square roundabout were constructed. The Nelson Mandela Building was constructed in the 1970s.
Despite recent construction works, comparison with nearby sites suggests that there is the potential for the survival of remains associated with the early development of Sheffield. A condition is therefore proposed requiring further archaeological evaluation prior to the commencement of development.
Public Art
The applicant has agreed to incorporate a scheme of public art in the development. This is reserved by condition.
SUMMARY AND RECOMMENDATION
Outline planning permission is sought for the erection of a mixed use development comprising of a 200 bedroom hotel, almost 1000 square metres of office accommodation and a ground floor restaurant/café unit. While appearance, landscaping and layout are all reserved for subsequent approval, consent is sought for the scale of the development and site access.
The proposed uses are acceptable in policy terms and it is considered that the scale of the development is appropriate to its prominent gateway setting. Further design development should result in a scheme of the highest architectural quality.
The site is ideally located to take advantage of the nearby public transport network and the development is unlikely to attract high volumes of traffic. That said, the proposed access arrangements are considered to be acceptable from a highway safety point of view.
Members are therefore recommended to grant outline planning permission subject to conditions.
134
Case Number 07/02158/FUL
Application Type A Full Planning Application
Proposal Revised design & materials to facades of previously approved 13/22-storey building forming 263 flats. Use of part of ground floor as coffee shop/bar, increased ground floor height of 1 metre and an additional floor forming 40 extra parking spaces, as amended 03.07.2007
Location Young Street And St Marys Gate Sheffield
Date Received 29/05/2007
Team CITY CENTRE AND EAST
Applicant/Agent Axis Architecture
Recommendation GRA/GC subject to Legal Agreement
Subject to:
1 The development shall be begun not later than the expiration of three years from the date of this decision.
In order to comply with the requirements of the Town and Country Planning Act.
2 The coffee bar/restaurant shall be used for the above-mentioned purpose only between 0700 hours and 2330 hours on any day.
In the interests of the amenities of the locality and occupiers of adjoining property.
3 The coffee bar/restaurant shall not be used for the purpose hereby permitted unless suitable apparatus for the arrestment and discharge of fumes or gases has been installed. Before such equipment is installed details thereof shall have been submitted to and approved by the Local Planning Authority. After installation such equipment shall be retained and operated for the purpose for which it was installed.
In the interests of the amenities of the locality and occupiers of adjoining property.
135
4 Amplified sound or live music shall only be played within the building in such a way that noise breakout to the street does not exceed:
i) background noise levels by more than 3dB(A) when measured as a 15 minute LAeq,
ii) any octave band centre frequency by more than 3dB when measured as a 15 minute Leq, when measured at the façade of the nearest adjacent building.
In the interests of the amenities of the locality and occupiers of adjoining property.
5 The ground floor coffee bar/restaurant shall not be serviced except through the building, and before the development is commenced details of such service access shall have been submitted and approved by the Local Planning Authority.
In the interests of traffic safety and the amenities of the locality.
6 Before the any facing materials are installed full details of the following shall first have been submitted to and approved by the Local Planning Authority.
(a) Glazing, (b) Aerofoil fins (c) Cladding panels (d) Ventilation extracts (e) Car park screens (f) Eaves detail and support structure to roof of wing
In order to ensure an appropriate quality of development.
7 Before any of the following are installed large scale details thereof at a scale of at least 1:20 shall first have been submitted to and approved by the Local Planning Authority:
(a) Sunboxes (b) Cladding to slab edges (c) Ventilation extracts (d) Eaves detail and support structure to roof of wing
In order to ensure an appropriate quality of development.
8 Before any of the following are installed full size samples thereof shall first have been provided on site and approved by the Local Planning Authority:
(a) Sunboxes (b) Clear and diffuse glazing system (c) Aerofoil fins
136 (d) Cladding to slab edges
In order to ensure an appropriate quality of development.
9 Before the development is first occupied full details of all proposed external works and hard landscaping shall have been submitted to and approved by the Local Planning authority and the development shall not be used unless such external works and hard landscaping have been provided in accordance with such approved details and thereafter retained.
In the interests of the amenities of the locality.
10 Before the development is first occupied full details of all planting and soft landscaping shall have been submitted to and approved by the Local Planning Authority, and the development shall not be used unless such planting and soft landscaping have been provided in accordance with such approve details and thereafter retained.
In the interests of the amenities of the locality.
11 Notwithstanding the drawings hereby approved, the following Mobility Housing features shall be provided to the minimum sizes described in at least 25% of the residential flats:
(a) 1500 mm manoeuvring space in lift lobbies. (b) 1200 mm wide corridors with 300 mm wide panels at the side of corridor doors. (c) double doors to be 1600 mm wide set within an 1800 mm structural opening. (d) single doors to be 800 mm wide set within a 900 mm wide structural opening. (e) 1500 mm wheelchair turning circles in bathrooms.
In order to provide Mobility Housing accommodation in accordance with the Council's Supplementary Planning Guidance.
12 The residential accommodation hereby permitted shall not be occupied unless a scheme of sound attenuation works has been installed and thereafter retained. Such scheme of works shall:
a) Be based on the findings of an approved noise survey of the application site, including an approved method statement for the noise survey,
b) Be capable of achieving the following noise levels:
Bedrooms: Noise Rating Curve NR25 (2300 to 0700 hours), Living Rooms: Noise Rating Curve NR35 (0700 to 2300 hours), (Noise Rating Curves should be measured as a 15 minute linear Leq at the octave band centre frequencies 31.5 kHz to 8 kHz),
137 c) Include a system of alternative acoustically treated ventilation to all habitable rooms.
Before the scheme of sound attenuation works is installed full details thereof shall first have been submitted to and approved in writing by the Local Planning Authority.
In the interests of the amenities of the future occupiers of the building.
13 Before the use of the building for the purposes hereby permitted is commenced, written confirmation shall be given to the Local Planning Authority that the approved scheme of sound attenuation works has been installed in the building in full.
In the interests of the amenities of the locality and occupiers of adjoining property.
14 Before the use of the development is commenced, a Validation Test of the sound attenuation works shall have been carried out and the results submitted to and approved by the Local Planning Authority. Such Validation Test shall:
a) Be carried out in accordance with an approved method statement,
b) Demonstrate that the specified noise levels have been achieved. In the event that the specified noise levels have not been achieved, then notwithstanding the sound attenuation works thus far approved, a further scheme of sound attenuation works capable of achieving the specified noise levels and recommended by an acoustic consultant shall be submitted to and approved by the Local Planning Authority before the use of the development is commenced. Such further scheme of works shall be installed as approved in writing by the Local Planning Authority before the use is commenced and shall thereafter be retained.
In the interests of the amenities of the locality and occupiers of adjoining property.
15 No deliveries to the building shall be carried out between the hours of 2300 to 0700 hours Monday to Saturday and 2300 hours to 0900 hours Sundays and Public Holidays.
In the interests of the amenities of the locality and occupiers of adjoining property.
16 No movement, sorting or removal of waste bottles, materials or other articles, nor movement of skips or bins shall be carried on outside the building within the site of the development between 2300 hours and 0700 hours.
138 In the interests of the amenities of the locality and occupiers of adjoining property.
17 Notwithstanding the drawings hereby approved, the development shall not be used for the purposes hereby permitted unless a sustainable vegetated roof has been provided in accordance with details that shall first have been submitted to and approved by the LPA, and such sustainable vegetated roof shall thereafter be retained.
In the interests of sustainable development.
18 The development shall not be used unless wind turbines shown on the drawings hereby approved have been installed and thereafter used for their intended purpose, but before the development is occupied full details thereof shall have been submitted to and approved by the Local Planning Authority.
In the interests of sustainable development.
19 The development shall not be used except in accordance with a Refuse/Recycling Method Statement which shall first have been submitted to and approved by the Local Planning Authority before the development is occupied.Such Method Statement shall indicate:
(a) How the facilities will be managed and serviced (b) How occupiers of the proposed development will be encouraged to maximise the use of the proposed recycling facilities and reduce general waste arising.
In the event of the refuse area shown on the drawings hereby approved being inadequate for the purposes set out in the Method Statement then notwithstanding such drawings the Refuse/Recycling area required shall be revised in accordance with details that shall first have received the prior written approval of the LPA, and the revised Refuse/Recycling area shall be provided and thereafter retained.
In order to ensure that proper provision for refuse is made and to encourage the maximum use of recycling in the interests of protecting the environment.
20 Notwithstanding the cycle parking provision shown on the drawings, the development shall not be used unless increased provision has been provided and before the development is occupied revised details thereof shall have been submitted to and approved by the Local Planning Authority.
In the interests of sustainable travel.
21 The development shall not be used unless the footways and cycleways abutting the site have first been reconstructed in materials set out Part 3.3 of the Council’s Urban Design Compendium (Ring Road and Distributor Road specification).
139
In the interests of public realm enhancement.
22 The development shall not be used for the purposes hereby permitted unless Car Club parking facilities have been provided and thereafter retained but before such facilities are provided full details thereof shall have been submitted to and approved by the Local Planning Authority.
Attention is drawn to the following justifications:
1. The decision to grant planning permission and impose any conditions has been taken having regard to the policies and proposals in the Sheffield Unitary Development Plan set out below, and to all relevant material considerations, including Supplementary Planning Guidance.
BE3 - Views and Vistas in the City Centre BE5 - Building Design and Siting IB7 - Development in Business Areas IB9 - Conditions on Development in Industry and Business Areas H7 - Mobility Housing H12 - Housing Development in the City Centre
This informative is intended as a summary of the reasons for grant of planning permission.
Attention is drawn to the following directives:
1. You are advised that this permission relates only to the matters covered by the drawings and written material received on or after 29 May 2007 under Application No 07/02158/FUL and hereby approved subject to conditions and unilaterial planning obligation. All other aspects of the development in progress on site are covered by the planning permission dated 30 September 2004 (Application No 04/02532/FUL) whose implementation has already commenced.
2. You are advised that residential occupiers of the building should be informed in writing prior to occupation that:
(a) limited/no car parking provision is available on site for occupiers of the building, (b) resident's car parking permits will not be provided by the Council for any person living in the building.
140 Site Location
© Crown copyright. All rights reserved. 10018816. 2005
LOCATION AND PROPOSAL
Until earlier this year the site at the corner of Moore Street and St Mary’s Gate had been vacant since the Inner Ring Road was built in the late 1970’s. The main frontage is to the St Mary’s Gate footway and cycleway. At the north west corner it faces the footway, steps and ramps leading to the Moore Street subway. To the north it faces St Mary’s Square, a gated private access road from Young Street leading to adjoining office buildings. On the north-east boundary is a large office block, and at the south eastern end the site adjoins the former public Council car park now being developed for offices and hotel.
The previously approved building on the site is presently under construction. Vehicular access is from Young Street next to the former car park.
141
The proposal is as described above and also includes revised Mobility Housing details, revised sound attenuation measures and revised hard and soft landscaping.
HISTORY
Permission was granted in 2000 for a 120 bedroom hotel.
In 2003 permission was granted for 193 flats and 69 car parking spaces in a 19 storey tower with a 12/13 storey wing (App No 02/03264/FUL).
In 2004 a revised proposal was submitted for 205 flats and 74 parking spaces in a 21 storey tower with 13 storey wing, but then withdrawn (03/03799/FUL).
A further revised scheme was granted permission later that year for 263 flats, office, ground floor shop and 52 parking spaces in a 22 storey tower with 13 storey wing (04/02532/FUL).
In February 2007 the architects for the new owners submitted details in compliance with conditions, and work began on the 2004 scheme.
At the same time their architects submitted sketch proposals to (a) add a hotel to the top of the approved tower, which would be increased to 33-36 storeys, (b) to reclad the building in glass, and (c) to replace the approved curved façade to the tower with a facetted facade.
Meanwhile work on site commenced on the unauthorised facetted tower. Council officers visited the site on 9 May 2007 and told the builders to stop work, which they did. It transpired that the builders had been told to build the taller facetted tower, believing it to have permission.
The architects were advised that the taller tower would adversely affect the city’s skyline and would compete with existing landmarks. It would not receive officer support.
The architects confirmed that the curved façade would be built after all in compliance with the approved drawings, and supplied photographs showing that this work was in progress. The curved façade is now visible on site.
REPRESENTATIONS
3 Objections received from individuals: (1) Wasted opportunity, (2) 36 storey building would be of good quality and would fit the site, (3) 36 storey building would help compete with Leeds and Manchester, (4) Tall building of over 30 storeys would comply with Council’s tall buildings policy.
Objection received from South Yorkshire Passenger Transport Executive to additional car parking: (5) Unnecessary, (6) Fundamentally changes basis of
142 original permission, (7) Will reduce site’s ability to reduce car use and promote public transport, (8) Will exacerbate traffic congestion nearby.
ASSESSMENT
Policy
The site lies within a Business Area in the Unitary Development Plan. Policy IB7 lists Housing as acceptable at upper levels in the City Centre, and small shops as acceptable. Food and Drink uses (former Use Class A3) are acceptable. Policy IB9 requires amongst other things that development should not prejudice the dominance of industry and business in this area, and should not cause residents to suffer from unacceptable living conditions.
Policy BE5 encourages original architecture provided that (a) the new complements the scale, form and style of surrounding buildings, (b) a co-ordinated approach is taken where there is more than one building, (c) varied materials are used in large scale development with the overall mass broken down, (d) special architectural treatment is given to corner sites, (e) full advantage is taken of natural and built features.
Policy BE3 requires that development should not damage the traditional City Centre skyline or views or vistas important to the city’s character.
The site falls within a potential tall building zone in the Urban Design Compendium. The Compendium requires detailed urban design analysis of a proposed tall building using montages to check its effect upon the city skyline and any important views.
Policy H7 encourages a minimum of 25% of new housing to be Mobility Housing. Policy H12 promotes housing in the City centre in new sustainable communities in areas that would not suffer from unacceptable living conditions including air pollution, noise, other nuisance or risk to health and safety.
Land Use
The proposed coffee bar/restaurant (Class A3) complies with Council planning policies. Since the 2004 permission national planning policy has been changed by Planning Policy Statement 6, which requires out-of-centre uses such as shops and cafes to satisfy tests of need, scale, sequential approach, impact and accessibility.
The proposal is considered to satisfy local need brought about by the residential population in the development. It would have no significant impact on the vitality of the City Centre. The Class A3 use would make the unit more likely to be occupied, providing an interesting ground floor frontage.
Conditions are recommended covering fume extraction, servicing from within the building, standard opening hours up to 2330 hours, noise breakout to the street, and times of servicing and refuse disposal.
143 Additional Height
The extra 1 metre height to the ground floor will improve the proportions of the building when viewed from the street. The extra height at roof level is insignificant.
Design and Materials
The previously approved facing bricks, rainscreen cladding and aluminium window frames are to be replaced with frameless glazing on all elevations, relieved by aerofoil shaped fins. Window areas will be clear glazed and wall areas faced in diffuse glazing, creating a patterned effect overall.
Each of the former balconies is to be replaced with a sunbox comprising a glazed shelter with louvred openings. Ducted ventilation extracts will be located unobtrusively beneath the soffits.
The tower will be glazed almost flush with the floor slabs creating a smoother appearance, whilst the wing will have the glazed walls set back from the sunboxes created a more varied effect and successfully introducing a subtle distinction between the tower and the wing, a considerable improvement over the 2004 permission.
Modelling to the tower will be provided by glazing being recessed slightly from the face of the floor slabs, with the slab edges themselves being clad either in matching glazing or curved stainless steel to follow the curved slabs.
The detailed design of the glazing is still evolving and is covered by conditions.
The car park screens to St Mary’s Gate are to be in overlapping glazed panels. At the rear the car park wall is to be in grilles or louvers to allow ventilation possibly with solid cladding panels. Details are required by condition.
The top floor to the wing is set well back with an oversailing roof, creating an improved eaves treatment compared with the 2004 scheme. Design of the supports, whether cantilever or other structural elements is under discussion and covered by condition.
A scheme of lighting is under consideration.
Landscaping
The approved scheme of external works of 2004 including high quality stone paving is no longer proposed. A scheme of equivalent quality is required together with suitable tree or other planting, and this is covered by condition.
Mobility Housing
The revised flat layouts include revised mobility layouts. Provision is above the 25% minimum required, but there are details to resolve over the layout of the space provided. This is covered by condition.
144
Noise
The revised noise report submitted with the application proposes alternative ducted ventilation from the wet areas only instead of from all habitable rooms as required by the 2004 permission. This is not considered acceptable. The required sound attenuation is covered by condition.
Sustainability
No green roof is shown on the submitted drawings. Green roofs have become a practical requirement since the permission of 2004, and are considered to be proving their worth in restricting surface water run-off and improving biodiversity. This requirement is confirmed by condition.
Wind turbines are indicated on the submitted drawings and their provision and use is also confirmed by condition.
Public Art
A contribution of £30,000 has been secured by unilateral planning obligation under Section 106 towards the Council’s project fund for the amenity lighting of the Moore Street substation opposite. This is welcome, and replaces the public art car park grilles previously approved.
Refuse and Recycling
The bin store on upper ground level is bigger than previously approved. It remains to ensure that current refuse and recycling requirements can be accommodated, and this is confirmed by condition.
Highways
The additional car parking to be accommodated in an additional lower ground floor, brings the number of spaces up to 92 for a total of 263 flats. The development still has a large car free element, and the proposed parking levels are satisfactory.
Disabled parking is increased to 7 spaces from the 4 previously approved. These are well placed close to the lift.
Cycle parking is slightly reduced from 32 to 22 cycles. However, more spaces could be fitted into the secure rooms shown, and this is covered by condition.
Since the 2004 permission the Urban Design Compendium has become applicable. The applicant has agreed to resurface the footway and cycleway adjoining the site in the Inner Ring Road palette of materials, and this is covered by condition.
No part of the building projects over the footway. The first floor curved facades project over the ground level within the site at a height of 4 metres.
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The City Centre Car Club is in operation. The required parking provision is covered by condition.
The applicant has agreed to a financial contribution of £13,750 towards the City Centre “Connect” signage scheme, and this is secured by a unilateral planning obligation under Section 106.
RESPONSE TO REPRESENTATIONS
Objections (1)-(2): The 33-36 storey building proposed pre-application would not fit the site. Analysis shows it would unacceptably break the city’s skyline in important distant views, and be of excessive bulk at lower levels; (3) Appropriate scale, bulk and height on this site is more important than competing with other cities for its own sake; (4) The 33-36 storey scheme does not comply with the Urban Design Compendium guidance as it fails a skyline and distant view analysis.
Objection (5): Not relevant, (6) Parking not materially different from 2004 permission, (7)-(8) Not significantly.
CONCLUSION
The revised facing materials are a notable improvement in quality and are considered welcome. The coffee bar/restaurant is also preferred, and the remaining revisions are considered acceptable.
Sustainability improvements are required by condition to bring the permission up to date, and in this form the revisions can be confidently supported.
Quality needs to be maintained in mobility housing, sound attenuation and hard and soft landscaping, and these are covered by conditions.
RECOMMENDATION
Grant, subject to the recommended conditions, and subject to the owner submitting a Planning Obligation under Section 106 with the following Heads of Terms:
(a) A financial contribution of £30,000 towards public art in the vicinity of the site (b) A financial contribution of £13,750 towards Sheffield Connect signage in the vicinity of the site (c) The above sums being increased in line with inflation if the development is delayed.
146
Case Number 07/02194/FUL
Application Type A Full Planning Application
Proposal Alterations to form 4 apartments
Location Site Of 201 And 203 Sharrow Lane Sheffield S11 8AN
Date Received 29/05/2007
Team SOUTH
Applicant/Agent Space Studio
Recommendation Grant Conditionally
Subject to:
1 The development shall be begun not later than the expiration of three years from the date of this decision.
In order to comply with the requirements of the Town and Country Planning Act.
2 Details, specifications and finishes of all new external doors, including frame section sizes, reveal depths and any mouldings and architraves at a minimum of 1:20 scale shall be approved in writing by the Local Planning Authority prior to installation. Thereafter, the new doors shall be installed in accordance with the approved details.
In order to ensure an appropriate quality of development.
3 The windows shall consist of timber frames with timber opening casements. The glazing pattern, the thickness and profile of the frame and glazing bars and the reveal depth shall match those of the existing windows in the property and the windows shall be finished in gloss paint
In order to ensure an appropriate quality of development.
4 All the rainwater gutters, downpipes and external plumbing shall be of cast iron or cast aluminium construction and painted black unless otherwise agreed in writing by the Local Planning Authority. Gutters shall be fixed by means of hangers and brackets and no fascia boards shall be used.
In order to ensure an appropriate quality of development.
147 5 Before the development is commenced, samples of the proposed natural slate roofing materials and through coloured render shall have been submitted to and approved in writing by the Local Planning Authority. The development shall then be carried out in accordance with the approved details.
In order to ensure an appropriate quality of development.
6 Before the development is commenced, full details of the proposed restoration/treatment of the former shop doorway, including fanlight, at a minimum 1:20 scale shall have been submitted to and approved in writing by the Local Planning Authority. The development shall then be carried out in accordance with the approved details.
In order to ensure an appropriate quality of development.
7 Before the development is commenced, samples of the proposed surfacing materials to the rear garden area shall have been submitted to and approved in writing by the Local Planning Authority. The development shall then be carried out in accordance with the approved details.
In order to ensure an appropriate quality of development.
8 Chimney stacks and pots shall be retained and, where repaired, should be reinstated to their original appearance using materials to match existing unless otherwise agreed in writing by the Local Planning Authority.
In order to ensure an appropriate quality of development.
Attention is drawn to the following justifications:
1. The decision to grant planning permission and impose any conditions has been taken having regard to the policies and proposals in the Sheffield Unitary Development Plan set out below, and to all relevant material considerations, including Supplementary Planning Guidance.
H5 - Housing for People on Low Incomes H11 - Development in Housing Areas in Nether Edge and Broomhall H14 - Conditions on Development in Housing Areas BE15 - Areas and Buildings of Special Architectural and Historic Interest BE16 - Development in Conservation Areas
This informative is intended as a summary of the reasons for grant of planning permission.
148 Site Location
© Crown copyright. All rights reserved. 10018816. 2005
LOCATION AND PROPOSAL
The site is a brick built Victorian former retail shop with living accommodation to side and rear and two floors of living accommodation above at the junction of Sharrow Lane with Priory Road. The building is within a terrace of 5 properties all of which remain their traditional appearance.
The building is currently in use as shared living accommodation comprising:
Ground floor – 2 living rooms (including one behind the boarded up shop front), kitchen and bedroom
149 First floor – living room, kitchen, 2 bedrooms and bathroom
Second floor – 4 bedrooms and bathroom
A rear external stairway gives access to the first floor. There is a walled rear yard area.
The site lies within the Nether Edge Conservation Area and is the subject of an Article 4 Direction which restricts the scope of ‘permitted development’.
The application is for alterations to form 4 flats (2 x 1 bed on the ground floor and 1 x 2 bed on each of the two upper floors). External alterations are restricted to the insertion of one sash window within each of the two shop front elevations, infilling of the remainder of the former display windows with render, bricking up of a doorway in the rear elevation of the building and formation of a new rear doorway beneath the existing external stairway. The remainder of the original shop front is to be retained. The building is to be re-roofed (currently in progress) and the existing original sash windows are to be made good and painted.
The application has been amended to alter the render treatment to the shop front and to retain/replace the former shop doorway and fanlight which was previously proposed to be blocked up and rendered.
RELEVANT PLANNING HISTORY
None relating to the application site.
Planning permission to convert Nos205 and 207 Sharrow Lane into 4 flats was granted in 1977.
REPRESENTATIONS
None received.
PLANNING ASSESSMENT
Policy
The site lies within the Nether Edge Conservation Area and the Nether Edge Housing Area as defined in the adopted Sheffield Unitary Development Plan (UDP). The following UDP policies are most relevant in assessing the merits of the proposals:
H5 (Flats, Bed-Sitters and Shared Housing) H11 (Development in Housing Areas in Nether Edge and Broomhall) H14 (Conditions on Development in Housing Areas) BE15 (Areas and Buildings of Special Architectural or Historic Interest) BE16 (Development in Conservation Areas)
Principle of Proposed Development
150
It is not clear what the lawful use of the building is at present. There is no record of any permission for change of use from a retail shop at ground floor level and no record of any permission for a house in multiple occupation. It is not known when the shop was last in use as a shop.
Nevertheless, the proposed use of the building for 3 flats (Class C3) represents a preferred use in accordance with UDP Policy H11 and is therefore acceptable in principle.
Conservation and Design
UDP Policies BE15 and BE16 seek to preserve or enhance the character and appearance of Conservation Areas and Policy H14(a) seeks to ensure that new development in Housing Areas is well designed and in scale and character with neighbouring buildings.
The terrace of properties positively contributes to the character and appearance of the Nether Edge Conservation Area and generally retains its original appearance. The front elevations are very similar in appearance although the depth of buildings, rear elevations and roof forms are different. The application site is the largest building in the terrace.
The proposals will not significantly alter the external appearance of the building. Consideration, in consultation with Conservation officers, was given to infilling the remainder of the former shop display windows with brickwork. However, this was eventually dismissed by officers due to the anticipated difficulties in finding a suitable brick. The proposed render treatment has been amended from a white finish to a through-coloured terracotta finish which is considered to be appropriate to the building and the Nether Edge Conservation Area. The applicant was also agreeable to the suggestion of opening up the former shop doorway. The doorway will not be functional.
The applicant has also amended the application to indicate re-roofing of the building in natural slate, as opposed to the artificial slate originally intended, and retention of a chimney stack that was originally identified for removal.
The bricking up of one doorway and creation of another on the rear elevation of the building is acceptable and will not be visible outside the site due to the 2m high screen wall to the boundary with Priory Road.
Subject to appropriate conditions, the proposals comply with Policies BE15, BE16 and H14(a).
Amenity
The building readily lends itself to the proposed conversion with minimal subdivision at first floor level to permit circulation and formation of a bathroom. Accommodation to the upper floors is restricted to bedrooms immediately adjoining
151 the party wall of the adjoining dwelling and no new window openings or additional overlooking of the dwellings to the rear in Priory Avenue will result.
The Environmental Protection Service has recommended that enhanced glazing treatment is considered to protect the Sharrow Lane elevation from traffic noise. However, the accommodation has not significantly altered at ground floor level and enhanced glazing may detract from the appearance of the terrace. Sharrow Lane is not particularly busy at night and there are other dwellings opposite and adjoining the site. On balance, this requirement is not considered necessary in this particular location.
The rear courtyard area provides approximately 24m2 of private shared amenity space for residents. The number of occupants is unlikely to increase as a result of the proposed development and, overall, it is considered that adequate living conditions will be provided/maintained in accordance with Policies H5 and H14.
Highways
There is no off-street parking provision proposed to serve the flats and none can reasonably be provided. Ideally, one space per flat should be provided. Any provision in the yard area would result in the loss of the original boundary wall and would remove the majority of amenity space. This would be detrimental to the character and appearance of the Conservation Area.
The Highway Authority have confirmed no objections to the proposals.
SUMMARY AND RECOMMENDATION
The proposed use as 4 flats represents a preferred use in policy terms. The alterations can be carried out without major structural works and the original features of the building are to be retained. The infill work proposed to the former shop front is considered appropriate and the character and appearance of the Nether Edge Conservation Area will be preserved.
Adequate living conditions for future occupiers and occupiers of neighbouring properties can be provided/maintained.
The proposals comply with relevant UDP policies and it is recommended that planning permission is granted subject to conditions.
152
Case Number 07/02189/FUL
Application Type A Full Planning Application
Proposal Erection of buildings for use as warehouse (Use Class B8) and a builders merchants, including 2.5 kw wind turbine, open storage areas, access/boundary treatment works, associated car parking and landscaping (AMENDED DESCRIPTION)
Location Keyline Builders Merchants 515 Queens Road Sheffield S2 4DS
Date Received 01/06/2007
Team SOUTH
Applicant/Agent Atisreal
Recommendation To Report
Subject to:
1 The development shall be begun not later than the expiration of three years from the date of this decision.
In order to comply with the requirements of the Town and Country Planning Act.
2 Before the development is commenced, details of all proposed external materials and finishes, including windows, shall have been submitted to and approved in writing by the Local Planning Authority. Thereafter, the development shall be carried out in accordance with the approved details.
In order to ensure an appropriate quality of development.
3 Before the development is commenced samples of all proposed external materials and finishes, including windows, shall be submitted to and approved in writing by the Local Planning Authority. Thereafter, the development shall be carried out in accordance with the approved details.
In order to ensure an appropriate quality of development.
4 The development shall not be begun until the improvements (which expression shall include traffic control, pedestrian and cycle safety measures) to the highways listed below have either;
153
a) been carried out; or
b) details have been submitted to and approved by the Local Planning Authority of arrangements which have been entered into which will secure that such improvement works will be carried out before the development is brought into use.
Highway Improvements:
Queens Road (formation of new access and associated Traffic Regulation Orders and alterations to existing highway signing and lining).
To enable the above-mentioned highways to accommodate the increase in traffic, which, in the opinion of the Local Planning Authority, will be generated by the development.
5 Prior to the improvement works indicated in the preceding condition being carried out, full details of these improvement works shall have been submitted to and approved in writing by the Local Planning Authority.
In the interests of traffic safety and the amenities of the locality.
6 The new buildings shall not be used unless all redundant access have been permanently stopped up and reinstated to , and means of vehicular access shall be restricted solely to those access points indicated in the approved plans.
In the interests of traffic safety and the amenities of the locality.
7 Before the development is commenced, details of the means of ingress and egress for vehicles engaged in the construction of the development shall have been submitted to and approved in writing by the Local Planning Authority. Such details shall include the arrangements for restricting the vehicles to the approved ingress and egress points. Ingress and egress for such vehicles shall be obtained only at the approved points.
In the interests of traffic safety and the amenities of the locality.
8 At all times that being carried out equipment shall be provided to the satisfaction of the Local Planning Authority for the effective cleaning of the wheels and bodies of vehicles leaving the site so as to prevent the depositing of mud and waste on the highway but before the development is commenced full details of such equipment shall have been submitted to and approved by the Local Planning Authority. When the above-mentioned equipment has been provided thereafter such equipment shall be used for the sole purpose intended in all instances and be properly maintained.
In the interests of the safety of road users.
154 9 The car and cycle parking indicated on the approved plans shall be provided for each new building, before the use of each new building is commenced.
In the interests of traffic safety and the amenities of the locality.
10 Before any development work commences, a dilapidation survey shall be jointly carried out and agreed with the LPA and any remedial works required as a result of the construction of the development, shall be undertaken to the satisfaction of the LPA, prior to the occupation of each phase of the development.
In the interests of traffic safety and the amenities of the locality.
11 Before each phase of the development is commenced, full details of the proposed, gates, fences, walls, steps, paths, cycleways, hardstandings, etc, shall have been submitted to and approved by the LPA.
In the interests of the amenities of the locality.
12 Before any work on site is commenced, a landscape scheme for the site shall have been submitted to and approved by the Local Planning Authority. The scheme shall be carried out in accordance with the approved details within 1 month of the occupation of the development or within an alternative timescale to be first agreed in writing with the Local Planning Authority. When the above-mentioned landscaping has been carried out, thereafter the landscaped areas shall be retained. The landscaped areas shall be cultivated and maintained for 5 years from the date of implementation and any failures within that 5 year period shall be replaced in accordance with the approved details unless otherwise authorised in writing.
In the interests of the amenities of the locality.
13 The proposed footpath, cycleway, fencing, riverside wall repairs, Japanese knotweed removal and hard and soft landscaping, shall be carried out for each phase of the development, in accordance with the approved plans and details, within 1 month of the occupation of each phase and the landscaped areas shall thereafter be cultivated and maintained for 5 years, or until adoption, in the case of the riverside path and cycleway and any failures within that 5 year time period shall be replaced.
In the interests of the amenities of the locality.
14 No servicing involving large vehicles, shall take place between 11pm and 7am on any day.
In the interests of the amenities of the locality and occupiers of adjoining property.
155 15 Noise levels from plant and machinery, including the wind turbine, shall not exceed 10dB below background levels at the boundary when measured as LA90.
In the interests of the amenities of the locality and occupiers of adjoining property.
16 Before the development is commenced, the additional site investigations, mentioned in the site investigation report, shall have been carried out and details of any remediation measures, necessary to avoid the leaching of contaminants into the river, shall have been submitted to and approved by the LPA and all the approved remediation measures proposed in the phase 2 report shall have been carried out.
In order to protect the health and safety of future occupiers and users of the site.
17 The development of the site, shall not be commenced during the bird breeding season, between 31st March and 31st of August .
To avoid undue disturbance to birds, nesting along the riverside.
18 Before the development is commenced, full details of the proposed boundary treatment, including the provision of a 3 metres high brick boundary wall, to provide screening and sound attenuation, for the adjoining properties on Queens Road and proposals to secure the site boundary, during demolition works , shall have been submitted to and approved by the LPA, and such works as are agreed shall be provided, in accordance with the phasing details, to be submitted therewith.
In the interests of the amenities of the locality and occupiers of adjoining property.
19 Before the commencement of each phase of the development, full details of the external lighting proposed, for each site and for the riverside corridor, shall have been submitted to and approved by the LPA and such works as are agreed, shall have been provided before the use of each development phase is commenced.
In the interests of the amenities of the locality and occupiers of adjoining property.
20 The development shall provide rainwater harvesting for landscaping purposes and on site balancing, or other sustainable urban drainage works, sufficient to reduce the surface water runoff from the site by at least 20%.
To ensure satisfactory drainage arrangements.
156 21 The proposed wind turbine shall be provided in accordance with the approved plans before the use of the builders merchants warehouse is commenced, and thereafter retained.
In order to ensure that new development makes energy savings in the interests of mitigating the effects of climate change.
22 The proposed gates shall be set a minimum of 10 metres back from the back edge of the footpath on Queens Road.
In the interests of traffic safety and the amenities of the locality.
23 The shall not be used unless the access and facilities for people with disabilities shown on the plans have been provided in accordance with the approved plans and thereafter such access and facilities shall be retained.
To ensure ease of access and facilities for disabled persons at all times.
Attention is drawn to the following justifications:
1. The decision to grant planning permission and impose any conditions has been taken having regard to the policies and proposals in the Sheffield Unitary Development Plan set out below, and to all relevant material considerations, including Supplementary Planning Guidance.
IB6 - Development in Fringe Industry and Business Areas IB9 - Conditions on Development in Industry and Business Areas IB14 - Siting Industries and Sensitive Uses Near to Each Other BE5 - Building Design and Siting BE6 - Landscape Design BE7 - Design of Buildings Used by the Public GE17 - Rivers and Streams T21 - Car Parking
This informative is intended as a summary of the reasons for grant of planning permission.
Attention is drawn to the following directives:
1. The applicant is advised to contact the Council's Development Services, Land Drainage Group, 2-10 Carbrook Hall Road, Sheffield, S9 2DB (Telephone Sheffield 2735847) to seek approval for the proposed drainage arrangements, as soon as possible, prior to the commencement of development.
2. Formal consent for the discharge to the river and for the outfall structural design must be obtained from the Council's Development Services, Land Drainage Group, 2-10 Carbrook Hall Road, Sheffield, S9 2DB (Telephone Sheffield 2735847) before work on site commences.
157 3. The applicant should install any external lighting to the site to meet the guidance provided by the Institution of Lighting Engineers in their document "Guidance Notes for the Reduction of Light Pollution". This is to prevent obtrusive light causing disamenity to neighbours. The Guidance Notes are available from the Institute of Lighting Engineers, telephone number (01788) 576492 and fax number (01788) 540145.
4. The proposed development lies within a coal mining area. In the circumstances applicants should take account of any coal mining related hazards to stability in their proposals. Developers must also seek permission from the Coal Authority before undertaking any operations that involves entry into any coal or mines of coal, including coal mine shafts and adits and the implementation of site investigations or other works. Property specific summary information on any past, current and proposed surface and underground coal mining activity to affect the development can be obtained from the Coal Authority. The Coal Authority Mining Reports Service can be contacted on 0845 762 6848 or at www.coal.gov.uk.
5. Before the development is commenced, a dilapidation survey of the highways adjoining the site shall be jointly undertaken with the Council and the results of which agreed in writing with the Local Planning Authority. Any deterioration in the condition of the highway attributable to the construction works shall be rectified in accordance with a scheme of work to be agreed with the Local Planning Authority.
6. As the proposed development abuts the public highway you are advised to contact the Highways Co-ordination Group on Sheffield 2736677, prior to commencing works. The Co-ordinator will be able to advise you of any pre- commencement condition surveys, permits, permissions or licences you may require in order to carry out your works.
7. The development will require the issuing of a formal postal address(s) by the City Council. This will apply even if the development is an infill site. Contact Lynn Fox on Sheffield 2736127 for details. Failure to carry out this process at an early stage may result in statutory undertakers refusing to connect services. The agreed address must be clearly displayed at each individual property before occupation in order to ensure that the postal service can correctly locate each property of delivery purposes.
8. The applicant is advised that noise and vibration from demolition and construction sites can be controlled by Sheffield City Council under Section 60 of the Control of Pollution Act 1974. As a general rule, where residential occupiers are likely to be affected, it is expected that noisy works of demolition and construction will be carried out during normal working hours, i.e. 0800 to 1800 hours Monday to Friday, and 0800 to 1300 hours on Saturdays with no working on Sundays or Public Holidays. Further advice, including a copy of the Council's Code of Practice for Minimising Nuisance from Construction and Demolition Sites is available from the Environmental Protection Service, 2-10 Carbrook Hall Road, Sheffield, S9 2DB: Tel - 0114 2734651.
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9. To ensure that the road and/or footpaths on this development are constructed in accordance with the approved plans and specifications, the work will be inspected by representatives of the City Council. An inspection fee will be payable on commencement of the works. The fee is based on the rates used by the City Council, under the Advance Payments Code of the Highways Act 1980.
If you require any further information please contact Mr S A Turner on Sheffield (0114) 2734383.
10. Section 80 (2) of the Building Act 1984 requires that any person carrying out demolition work shall notify the local authority of their intention to do so. This applies if any building or structure is to be demolished in part or whole. (There are some exceptions to this including an internal part of an occupied building, a building with a cubic content of not more than 1750 cubic feet or where a greenhouse, conservatory, shed or pre-fabricated garage forms part of a larger building). Where demolition is proposed in City Centre and /or sensitive areas close to busy pedestrian routes, particular attention is drawn to the need to consult with Environmental Protection Services to agree suitable noise (including appropriate working hours) and dust suppression measures.
Form Dem 1 (Notice of Intention to Demolish) is available from Building Standards, DEL, Barkers Pool House, Burgess Street, Sheffield S1 2HF. Tel (0114) 2734170
Environmental Protection Services can be contacted at DEL, 2-10 Carbrook Hall Road, Sheffield, S9 2DB. Tel (0114) 2734651
159 Site Location
© Crown copyright. All rights reserved. 10018816. 2005
LOCATION AND PROPOSAL
The proposals involve the demolition of the existing, 20,000 ft² Keyline, wholesale and retail, builders merchant’s warehouse, at 515, Queens Road, Sheffield, (which is on a 1.4 hectare site) and the consolidation of the use on half of the site.
A new 10,000 ft² builders merchants warehouse is to be erected (52m long x 17m deep x 7.8m high to the ridge and 6.4m high to the eaves).
The existing open storage facilities are to be retained with a new access, turning facilities and layout and 7 car parking spaces are to be provided, including 2 spaces, suitable for disabled/mother and baby use.
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The proposals for the other half of the site, involve the erection of an ‘L’ shaped, 90,000 ft², Big Yellow, self storage facility, (52m wide x 29m - 59m deep x 12m high), on a 23,350 ft², footprint, together with loading / unloading bays, turning facilities and 8 car parking spaces, (including 2 spaces, suitable for disabled / mother and baby use).
The site will share the proposed new access/egress, with the builders merchants.
The proposals include frontage landscaping, along Queens Road, with security fencing to the rear and the provision of a new 5m wide, riverside walk/cycleway, balustrading, fencing and landscaping, alongside the river Sheaf.
A new access pathway is to be provided, to the rear of existing housing, on Myrtle Road, together with an environmental buffer of trees and shrubs.
The proposals include the provision of a 2.5 KW wind turbine, (WES5, Tulippo model), with 2.5 m blades, on a 12 metre high mast, to provide some renewable energy, for the proposed new buildings. This would be located at the rear of the site, next to the river and away from houses.
The development of the site will be phased, to provide the new access and the builders merchants first, before commencing work on the Big Yellow site.
SUMMARY OF REPRESENTATIONS
2 Letters were received on behalf of the residents of 455, 457 and 461, Queens Road, who have a few concerns, as follows;
The demolition of the builders merchants, will affect their rear boundary walls and outbuildings and a replacement, brick boundary wall, at least 3 metres high, should be provided and should continue along the rear / side boundaries of 457 and 461, to ensure that these properties do not suffer loss of privacy and security, from the new riverside walk.
Conditions should be applied to restrict working hours and dust emissions, during demolition and construction, to limit noise from the wind turbine and to ensure that details of any external lighting are submitted for approval. Proposals to secure the garden boundaries during demolition, should also be required.
Several cars, which currently fly park, on the builders merchant’s driveway, will have to relocate onto nearby streets, to form the riverside footpath.
Letters were received from BT, NATS, Sheffield Airport and the Joint Radio Company, to say that they have no objections to the proposed wind turbine.
A letter was received from Network Rail, giving guidance for safe development near to railways.
The Environment Agency, object to the proposals on the grounds that.
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Further justification is required for the proposals, which are within a category 3, regular flooding zone.
The flood risk assessment, failed to take into account a channel upstream of the site, which could cause flooding.
If these issues are resolved, conditions are required to secure, on site balancing, sustainable urban drainage systems, a 20% reduction in surface water run off, site decontamination to prevent water pollution, details of a wildlife corridor alongside the river, native tree planting and the removal of the Japanese knotweed from the river frontage. The Environment Agency are confident that the outstanding issues can be resolved prior to determination and the matter will be set out in a Supplementary Report
PLANNING ASSESSMENT
Policy
The site is allocated for Fringe Industry and Business Purposes, in the Sheffield Unitary Development Plan, 1998 and warehouses are a preferred use, under policy IB6, so there are no objections to the proposed Big Yellow self storage use.
Builders merchants with open storage, are unacceptable uses, under policy IB6. However, the site has been in use as a builder’s merchants for many years and the proposed developments will concentrate this use, onto half of the existing site. The proposals are therefore considered to be acceptable, as an improvement to the current situation.
Under policies IB9 and IB14 the proposed development must not cause nearby residents to suffer from unacceptable conditions and an environmental buffer is required, between industry and housing.
Environment Protection Issues
The proposed wind turbine sited at the rear of the site close to the river emits only 35 dBA above background noise levels, at a distance of 20 metres, away from the mast and operates at wind-speeds as low as 3 metres / second. The nearest housing is 60 metres away and should not experience any undue noise problems at this distance.
The proposals will improve the outlook for the existing frontage housing, on Queens Road, by demolishing the existing builders merchant’s and relocating the new building 39 metres, further away. A 3m high brick wall, is to be provided to the boundary, for screening and sound attenuation.
The site has been a concrete works in the past and a 600mm capping layer, is to be applied over the site, to avoid contamination. A radon and methane resistant membrane, is to be provided beneath the buildings.
162 Further testing is needed to ensure that there is no leachate, from the site, into the river Sheaf and this will be conditioned accordingly.
The site did not flood in the recent flood. The proposals will repair the riverside wall and raise the site level 600mm. There are outstanding flooding issues currently under consideration by the Environment Agency, and it is anticipated that these will be satisfactorily resolved. Members will be advised of the outcome of this at the Area Board meeting.
Conditions are proposed to limit the operating hours of the Big Yellow warehouse, to 7 am until 11 pm, to avoid noise disturbance at night and to limit noise levels from plant and machinery, at these sites, to no more than 10dB below background levels, at the site boundary.
Design and Impact
The proposed builders merchants warehouse, will have a blue brick base, grey metal clad walls, 6 blue roller shuttered, vehicular bays and a dark grey, profiled metal roof. It will be 57 metres away from Queens Road and will be screened, for the most part, by the frontage housing. It is considered to be acceptable within the street-scene.
The existing builders merchant’s warehouse, is only 9 metres away, from the rear elevations, of housing on Queens Road. The proposed new warehouse, will be 47 metres away, improving light and outlook thereto.
Much of the site will remain a concrete, open storage area, for building materials, as existing and a 3m high, brick boundary wall, will be provided, to ensure privacy and sound attenuation, for the housing.
The open storage area, will be screened at the site access, by a 2.1 metre high, black weldmesh security fence, with trees and planters, in front of it.
The other half of the site, is to be developed as a Big Yellow warehouse, with a blue brick base and grey metal cladding, with a grey canopy and white cladding, to highlight the entrance. The front elevation, to Queens Road, has yellow cladding and terracotta panels, which turn the corner, onto Myrtle Road. Yellow, is the signature colour of Big Yellow and the contemporary design proposed, makes this feasible, even in such a prominent location.
The proposed Big Yellow warehouse, will be 17 to 22 metres away, from the rear elevation of housing on Myrtle Road. The housing is built above the arches, of the Myrtle Road bridge and the proposed warehouse ridge height, will line through with the ridge height of the housing at the top of the bridge.
The light grey roof curves upwards, from an eaves height of 6.8 metres, to a ridge height of 12 metres and a buffer of trees and tall shrubs is proposed between the housing and the warehouse, to help reduce the impact.
163 The block paved, vehicular courtyard to the Big Yellow warehouse, is 36 metres away from the housing, on the far side of the building and should not cause undue noise disturbance.
The site will have 2.1m high black weldmesh, security fence, with trees and landscaping, for screening, on the Queens Road frontage.
The proposed warehouse buildings are designed with sustainability in mind and will have good insulation, energy efficient lighting, a renewable energy supplier and roof water harvesting for landscape watering purposes.
A 2.5KW, low noise, urban wind turbine, is proposed, in pale grey, with 3 x 2.5 m blades, on a 12 metre high mast. It will produce around 8000 kwh / year, at an urban wind-speed of 5.5 metres per second.
It will be located at the rear of the site, close to the riverside walk and will be screened from Queens Road by frontage housing. It will be 60 metres away from the nearest housing and should not cause undue noise disturbance. It will provide renewable energy for the new buildings and is welcomed.
Landscaping
The proposals include the provision of a new 5 metre wide corridor, for a riverside walk and cycleway. This will have the standard riverside balustrade alongside the river and a 2.4m high black weldmesh fence, on the other side, for site enclosure. The riverside corridor, will widen out, into a landscaped area, on the Big Yellow part of the site.
The riverside walk will terminate at the bridge on Myrtle Road, but may be continued, if the walk is completed along adjoining sites, in the future.
The riverside retaining wall, is to be repaired and a financial contribution of £10,000 is to be made for the provision of a fish pass, to an existing weir, alongside the site. This will need to be secured via a planning obligation under Section 106 of the Town and Country Planning Act.
Japanese knotweed, a notifiable weed, alongside the river, is to be removed.
Access issues
The site is sustainably located, on a bus route, close to the city centre and all facilities. The proposals will provide disabled and mother and baby, car parking spaces, together with level access, automatic doors, lifts, 1200mm min aisle widths and a low section to the service counters, with hearing loops.
A disabled toilet is to be provided for staff use, but no customer toilet facilities are proposed.
The proposals are considered to be satisfactory in access terms.
164 Highways
The proposals will provide 7 car parking spaces and several cycle parking spaces, for the builder’s merchants and 8 car parking spaces and 6 cycle parking spaces, for the Big Yellow, self storage facility.
The proposals will replace a 20,000 ft ² builders merchant’s warehouse, with a smaller warehouse, only 10,000 ft ², together with a Big Yellow self storage unit and the Traffic Assessment indicates that there will be no more than 27 vehicles per hour, arriving and departing from the site.
Given the overall volume of traffic using Queens Road, approximately 1500 vehicles per hour , it is considered that traffic generation from the proposals, will not materially affect existing traffic volumes.
The proposals will provide a new shared, left in, left out access off Queens Road, improving vehicular safety at the site. A Traffic Regulation Order is required, to prevent cars turning right into this access and this is to be conditioned accordingly.
The proposed new riverside footway / cycleway is welcomed and will be adopted upon completion.
RESPONSE TO REPRESENTATIONS
A 3m high boundary wall is to be provided between the site and housing on Queens Road, to ensure screening and sound attenuation. The wall will continue part way along the side boundaries of 455 and 461, Queens Road, as requested.
Conditions to restrict working hours during demolition and construction and to limit noise levels from the wind turbine are recommended, as requested.
The car parking on the builder’s merchants access, is fly parking, which has enjoyed borrowed amenity from the site and will have to relocate elsewhere.
The developer is working with the Environment Agency, to satisfy their concerns and will provide justification for the development, a more accurate flood risk assessment and remediation proposals, before the Area Board meeting. Conditions are recommended, to cover areas of concern.
SUMMARY AND RECOMMENDATION
The proposals involve the demolition of the existing Keyline, builders merchant’s buildings, at 515 Queens Road and the erection of a replacement builders merchant’s warehouse, on part of the site.
The builder’s yard, which includes open storage, is to be consolidated onto half of the existing site and the other half, is to be developed as a Big Yellow, self-storage facility.
165 The proposals include the provision of a new shared access, with loading / unloading and turning facilities, improving vehicular safety at the site. Satisfactory car and cycle parking accommodation, is proposed for both uses.
A 2.5Kw wind turbine, on a 12 metre mast, is proposed, to provide renewable energy for the new buildings. It is a low noise turbine, 60 metres away from housing and should not cause undue noise problems, for nearby residents.
The existing builders merchant’s buildings are only 9 metres away from housing on Queens Road. The new building will be 47 metres away, improving light and outlook for the housing. A 3m high boundary wall is to be provided, to ensure sound attenuation and screening from the builder’s yard.
The site is allocated for fringe Industry and business purposes and there are no policy objections to the proposals, which are a preferred use.
The traffic generated by the proposals, is minor compared with overall traffic flows on Queens Road and there are no highway objections to the proposals, subject to appropriate conditions.
The proposals include the provision of a riverside walk and cycleway, together with landscaping and repairs to the riverside retaining wall. A financial contribution of £10,000 is to be made towards the provision of a fish pass, to a weir alongside the site and Japanese knotweed, a notifiable weed, alongside the river, is to be removed.
A landscaped buffer, of trees and tall shrubs, is to be provided, between the Big Yellow warehouse and the housing on Myrtle Road, together with a rear access path, for the benefit of the housing.
Overall the height, scale and massing, of the proposed buildings, although large, is considered to be in keeping with many of the surrounding uses, which include retail warehousing and industrial and commercial uses.
It is recommended that subject to satisfactory resolution of the flood risk issue, the proposals are approved subject to appropriate conditions and the submission of a planning obligation controlling the submission of the financial contribution for the fish pass.
Recommendation: To Report
HEADS OF TERMS FOR LEGAL AGREEMENT
On or before the commencement of development the owner shall pay the sum of £10,000 to the City Council to be used towards the construction of a fish pass within the River Sheaf adjacent to the site.
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