Planning Statement
Land North of Stevenage
Bellway Homes & Miller Homes
savills.co.uk
Planning Statement
Land North of Stevenage
Contents
1. Introduction 1 2. Background 4 3. The Proposed Development 10 4. Planning Policy Context 22 5. Material Planning Considerations 27 6. Conclusion 57
Appendices
Appendix 1 Scoping Opinion Appendix 2 Pre-Application Advice from Stevenage Borough Council
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1. Introduction
1.1 This Planning Statement has been prepared in support of an outline planning application with access for approval submitted to Stevenage Borough Council (SBC) by Bellway Homes and Miller Homes (the applicant) for residential-led development on the Land North of Stevenage (the site).
1.2 The application site is located to the north of Stevenage town centre and extends to 74.71 hectares (ha). It is situated to the east of North Road, northwest of residential dwellings located in Granby Road and Chancellors Road, and west of Weston Road and Great Ashby Way. To the north are agricultural fields which are proposed for residential development of 900 units within the emerging North Hertfordshire Local Plan.
1.3 The application proposes a sustainable residential extension to Stevenage which will include the provision of up to 800 new dwellings alongside a new primary school and local centre comprising flexible retail and community space. In addition, the proposals include the creation of an extensive new public open space comprising approximately 38 ha of meadowland.
1.4 The site is allocated for residential development within the SBC emerging Local Plan. The Local Plan has been subject to Examination in Public in early 2017 and Main Modifications were consulted upon in late summer 2017. The Inspector’s Report was received in October 2017, concluding that the Plan is sound subject to the main modifications previously consulted upon and amendments to the wording of four of these modifications.
1.5 The development of the outline planning application has been subject to extensive engagement with the local planning authority, including a series of pre-application meetings secured through a Planning Performance Agreement. The applicant has engaged with the local community including holding an exhibition about the proposals in November 2017. The applicant has also met with Council Members.
Description of Development
1.6 The application seeks outline planning permission with access for approval as follows:
“Outline planning application with access for approval for the urban extension to the north of Stevenage, comprising erection of new buildings ranging from 2 to 4 storeys providing up to 800 residential units (Use Class C3); creation of a new local centre including provision of up to 1,800 sqm of flexible commercial floorspace (A1 / A2 / A3 / A4 / B1 / D1 / D2 Use Classes); provision of up to a 2FE Primary School (Use Class D1); provision of landscaped communal amenity space including children’s play space; creation of new public open space comprising approximately 38 hectares; together with associated highways, landscaping, drainage and utilities works.”
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Environmental Impact Assessment
1.7 In accordance with the Town and Country Planning (Environmental Impact Assessment) (England) Regulations (As Amended) 2015 (EIA Regulations), a formal request for a Screening Opinion was not submitted as the applicant considered that it would be prudent to undertake an EIA for the proposed development.
1.8 A Scoping Report was submitted to the Council on 5 September 2016 with the formal Scoping Opinion issued by the Council on 15 November 2016 (Ref: 16/00635/PREAPP), which is provided at Appendix 1. The applicant has regularly liaised with the Council in relation to ensuring the cumulative development to be assessed is up to date. The following topics are therefore addressed in the accompanying Environmental Statement (and referred to where relevant throughout this Planning Statement):
. Transport and Access prepared by WSP Parsons Brinkerhoff;
. Air Quality prepared by WSP Parsons Brinkerhoff;
. Noise prepared by WSP Parsons Brinkerhoff;
. Drainage and Flood Risk prepared by WSP Parsons Brinkerhoff;
. Biodiversity prepared by Nicholas Pearson Associates;
. Landscape and Visual prepared by Nicholas Pearson Associates;
. Cultural Heritage prepared by Woodhall Planning and Conservation Ltd;
. Below Ground Archaeology prepared by CgMS;
. Agricultural Land and the Effect on Farming Operations prepared by Reading Agricultural College; and
. Socio-economics Effects prepared by Savills.
Supporting Documents
1.9 This Planning Statement should be read in conjunction with the accompanying plans and drawings submitted as part of the application, as well as the following documents which have been prepared to address the full range of material planning considerations:
. Parameter Plans prepared by Savills;
. Design and Access Statement prepared by Savills with input from Nicholas Pearson Associates and DHA Architects;
. Design Code prepared by Savills with input from Nicholas Pearson Associates and DHA Architects;
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. Environmental Statement prepared by Savills comprising:
o Volume 1 – Non Technical Summary
o Volume 2 – Main Report addressing the topics highlighted at paragraph 1.8
o Volume 3 – Appendices
. Sustainability and Energy Statement prepared by Abbey Consultants;
. Transport Assessment prepared by WSP Parsons Brinkerhoff;
. Residential Travel Plan prepared by WSP Parsons Brinkerhoff;
. Heritage Statement prepared by Woodhall Planning and Conservation Ltd;
. Education Statement prepared by Education Property Consultancy Ltd;
. Arboricultural Implications Assessment and Tree Survey prepared by Ian Keen Limited; and
. Statement of Community Engagement prepared by Iceni.
Structure of the Statement
1.10 The structure of this Planning Statement is as follows:
. Section 2 (Background) provides the background to the proposals;
. Section 3 (The Proposed Development) details the development proposals;
. Section 4 (Planning Policy Context) sets out the relevant planning policy framework;
. Section 5 (Material Planning Considerations) sets out the material planning considerations arising from the application proposals; and
. Our conclusions are provided in Section 6 (Conclusion).
1.11 The appendices referred to in the text are contained at the end of the statement.
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2. Background
2.1 This section provides a brief description of the site and the immediate surrounding area, together with a summary of the relevant planning history.
The Applicant
2.2 The applicants are Bellway Homes and Miller Homes; two established house builders. Both have extensive experience of construction and property development and of working in partnership with local authorities and affordable housing providers. They are committed to innovation in both construction and design and are keen to ensure that the schemes they develop create sustainable, attractive, and desirable places for people to live and work.
The Site and Surrounding Area
2.3 The site is located to the north of Stevenage and extends to 74.71 hectares (ha). A site location plan is shown in Figure 2.1 below.
Figure 2.1: Site Location Plan
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2.4 The site is agricultural land comprising a number of arable fields with semi-mature hedgerows and shelterbelts of trees. The site undulates with a ridgeline running along the northern boundary of the site with tree planting. A 440kv overhead electricity line and pylons run across the middle of the site. To the north of this line within the site is a 132kv overhead electricity line and associated pylons.
2.5 The northern boundary of the site comprises the borough boundary with North Hertfordshire District Council (NHDC). This site is identified in the emerging NHDC Local Plan for residential development for 900 units. Croudace Homes have a vested interest in this land and have been in pre-application discussions with NHDC. Beyond the Croudace land is the village of Graveley.
2.6 The site is bound by North Road to the west, beyond which lies a garden centre (Stevenage Wyevale) and the Stevenage Town Rugby Club. The Rugby Club has a site allocation for 149 residential units within the SBC Local Plan.
2.7 Along the south western boundary of the site is a public footpath and bridleway. Footpaths also run across the site towards the land to the north. To the southwest of the site are residential dwellings on Granby Road and Chancellors Road. The dwellings typically comprise two storey, semi / detached houses with front and rear gardens and driveways.
2.8 To the south of the site is St Nicholas Church which is Grade I Listed. There are also a number of other listed buildings in this area at the south of the site including The Old Bury (Grade II*), Moonhill (Grade II) and Dominic Cottage (Grade II).
2.9 At the southeast of the site is Weston Road Cemetery and Rooks Nest Farm which comprises a number of listed buildings; Rooks Nest House (Grade I), Rooks Nest Farmhouse (Grade II) and the L- Shaped Outbuilding West of Rooks Nest Farmhouse (Grade II).
2.10 Weston Road and Great Ashby Way are located to the east of the site. A mix of residential dwelling typologies are located along these roads, comprising predominantly detached houses.
2.11 The site is located approximately 2.7 km north of Stevenage National Rail Station which provides services to London Kings Cross (19 minutes), Cambridge (38 minutes) and Peterborough (30 minutes), amongst others. There are also a number of services to locations across Hertfordshire, including Hitchin (5 minutes), Letchworth Garden City (10 minutes), Baldock (14 minutes) and Royston (22 minutes).
2.12 The closest bus stops to the site are located at the northwest corner of the site on North Road and provide services towards Grange Estate (northbound) and Stevenage town centre (southbound).
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2.13 North Road (B197) to the west of the site connects to Graveley Road (B197) to the north west which in turn connects to Junction 8 of the A1(M) Motorway, 0.6 miles to the west of the site. The A1(M) provides access to London to the south and to the wider motorway network.
2.14 The south eastern part of the site and the land adjoining the south eastern and south western boundaries is located within the St. Nicholas’ Church and Rectory Lane Conservation Area. The Conservation Area was originally designated in 1982 and it was expanded in December 2007 to include the southern part of the application site. This part of the Conservation Area is also known locally as ‘Forster Country’ due to its connections with E. M. Forster who used Rooks Nest House as a basis for the novel ‘Howard’s End’ located immediately to the east of the site.
2.15 The site is located in Flood Zone 1.
2.16 The site is within the Green Belt; however the area for residential development proposed is consistent with the release of Green Belt land proposed through the emerging Local Plan which is at an advanced stage. The eastern part of the site will be retained as Green Belt land.
2.17 The site is well located in close proximity to community facilities. Approximately 700 metres to the west of the site off the A602 is a Sainsbury’s supermarket and petrol station. Stevenage town centre is located approximately 2.5 km south of the site and provides a range of retail, leisure and community facilities including supermarkets, a cinema, theatre and gym.
2.18 With regards to local educational facilities, The John Henry Newman Secondary School is located approximately 700 metres to the southwest of the site off the A602. Giles Junior School and The Leys Primary and Nursery School are located within the St Nicholas neighbourhood approximately 1 km to the east of the site.
2.19 In terms of healthcare facilities, Canterbury Way surgery is located 850 metres to the east of the site. In addition, Lister Hospital is located directly southwest of the site (150 metres away).
2.20 The site is well located in relation to existing public open spaces including Canterbury Park (150 metres east).
Planning History
2.21 There have been no planning applications proposing the redevelopment of the site to date. However, the site has a protracted history within local and regional planning policy which is set out in detail in Section 4.
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Pre-Application Consultation
2.22 Prior to the submission of this planning application, the applicant has been involved in extensive pre- application discussions with SBC as well as local residents, Members and key stakeholders. The engagement with each is summarised below and this is supported by the Statement of Community Engagement prepared by Iceni.
Stevenage Borough Council
2.23 As stated above, the applicant has been in discussions with Council Officers regarding the development potential of the site for a number of years. Further detail of the previous promotion of the site is provided in Section 4.
2.24 The applicants have entered into a Planning Performance Agreement with the Council and have undertaken extensive formal pre-application discussions since August 2016 on the emerging proposals. This pre-application consultation has informed the design process and has included advice from the Council’s Open Spaces and Parks and Housing Departments. A copy of the formal pre- application advice is provided at Appendix 2 which confirms the proposed scheme is broadly acceptable.
Hertfordshire County Council
2.25 WSP, the applicants Transport Consultants, has undertaken pre-application discussions with HCC’s Highways Department in relation to the scope of the Transport Assessment, the impact of the proposed development using the transport models and the proposed package of mitigation measures. The Transport Assessment also addresses discussions held at the Examination in Public hearing sessions.
2.26 Pre-application advice has been received from HCC’s Developer Services in relation to the educational requirements for the site.
2.27 A pre-application advice request has been submitted to the Lead Local Flood Authority (LLFA) in relation to the proposed drainage strategy.
Other Key Stakeholders
2.28 Formal responses were provided to the Scoping Opinion request by a number of statutory stakeholders including Highways England, The Environment Agency and Historic England. The advice provided in response to the Scoping Report has informed the Environmental Statement.
SBC Councillors
2.29 A presentation to Councillors was given in January 2016.
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2.30 Letters providing an introduction to the applications and the proposals, as well as an offer of a meeting, were sent to a number of local Councillors as well as the Member of Parliament for Stevenage on 4 November 2016.
2.31 The Ward Members attended a briefing with the Project Team on 28 November 2016 where the proposals were presented and discussed. Since then, the project team have continued to keep in contact with the Councillors.
2.32 A number of Members of the Council attended a pre-exhibition briefing on 30 November 2016. The project team presented the proposals in detail and invited questioning.
2.33 In addition, the project team has been in correspondence with the North Hertfordshire Chesfield Ward Councillor and the Great Ashby Community Council. The project team continue to keep both stakeholders updated on the application’s progression.
Local Residents and Community Groups
2.34 The applicants have undertaken an extensive programme of pre-application consultation with the local community including local residents and community groups. Full details of the consultation activities undertaken, the comments received and the applicants’ response is provided within the Statement of Community Engagement prepared by Iceni in support of this application.
2.35 This included a newsletter, public exhibition on 30 November 2016 in two venues in the vicinity of the site, where the emerging scheme was displayed and feedback invited. Approximately 180 members of the public attended the exhibition and 39 feedback forms were completed. Much of the feedback related to perceived transport issues, as well as concerns regarding development in the Green Belt, the adjacent site allocation, flooding and drainage and infrastructure capacity, all of which the applicant has sought to address throughout this submission.
2.36 In addition, a canvassing session was held on 2 December 2016 in Stevenage Town Centre to raise awareness and gather support for the proposals from local residents. 12 canvassing cards were collected from members of the public expressing support for the proposals.
2.37 A dedicated website was set up to allow those who are interested to review the proposals and submit their views, as well as a telephone hotline and email address.
2.38 In addition, the applicant has been proactive in seeking the views and comments of the Friends of Forster Country, Graveley Against SNAP Proposal (GASP) and Campaign to Protect Rural England (CPRE) Hertfordshire.
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2.39 There have been no significant changes to the proposals since they were previously presented and as such it was not considered necessary or appropriate to hold a further formal consultation event. The application website has however been updated to confirm the submission of the application.
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3. The Proposed Development
3.1 This application seeks outline planning permission for a sustainable residential extension to Stevenage. The proposals comprise the provision of up to 800 new dwellings as well as a new primary school and local centre including flexible retail and community space (Use Classes A1 / A2 / A3 / A4 / B1 / D1 / D2). In addition, the proposals involve the creation of an extensive new public open space comprising approximately 38 ha of meadowland.
3.2 Outline planning permission with access for approval, is sought for the whole site. All other matters are reserved for later approval. The application is supported by an Illustrative Masterplan.
3.3 A Design Code, including an Illustrative Layout has been prepared for the area within the conservation area (Parcel E). These provide detailed design parameters to ensure that an appropriate and high quality form of development will be secured that is complementary to its conservation area designation.
3.4 Full details of the application scheme are set out in the Design and Access Statement, Design Code and Parameter Plans prepared by Savills Urban Design in support of this application. This section provides a brief summary of the application proposals.
Masterplan
3.5 The indicative masterplan has been developed following careful analysis of the opportunities and constraints presented by the site. In addition, the proposals have been refined in response to Officers comments received throughout the extensive discussions over a number of years in relation to the development of the site. Importantly, through these discussions the quantum of development sought by the applicant within the conservation area has been significantly reduced. In addition, community facilities including the primary school have been incorporated.
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Figure 3.1: Land Use and Access Parameter Plan
Indicative Layout
3.6 The area identified for development has largely been guided by the need to respond to the conservation area designation in the eastern part of the site. The proposed built development will therefore be restricted to the western part of the site with the eastern part of the site to become publically accessible open space (to be known as St Nicholas’ Meadows). The open space at the eastern part of the site will appropriately preserve the setting of the listed buildings to the east of the site and will ensure the retention of views across this part of the site towards the Church of St Nicholas.
3.7 The most eastern residential parcel – Parcel E (known as St Nicholas’ End), which is within the conservation area has been sensitively designed in more detail to demonstrate that the edge of the conservation area is preserved and enhanced; further details of the proposals for this part of the site are provided below. An Illustrative Layout and Design Code has been prepared to ensure robust guidelines are in place for the development of Parcel E.
3.8 The primary access to the residential development is to be provided from North Road which bounds the site to the west. Two vehicular access points are proposed; these will form the primary access road
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through the site off which the remainder of the road network for the site will be formed. Further details of access are provided below.
3.9 The layout of the development parcels across the western part of the site has had to accommodate the 440kv electricity pylons within the site; as such a landscape corridor is proposed running east-west through the western part of the site beneath the pylons. Roads and footpaths will also pass through this area. The masterplan has been prepared enabling the grounding of the 132 kv cables with new terminal towers to be provided.
3.10 The proposed layout will also incorporate the retention of the existing public rights of way that traverse the site.
3.11 The northern part of the site has been identified as the most suitable location to provide the new school and neighbourhood centre; this will allow the future expansion of the facilities if the land to the north of the application site, allocated for development within the emerging NHDC Local Plan, comes forward.
3.12 The development has been designed with an emphasis on place marking and creating a pedestrian friendly, neighbourhood environment. This is achieved through incorporating a traditional perimeter block approach in form with strong building lines along primary streets and framing open spaces to promote legibility and connectivity. Safety and security will be maximised by properties overlooking the street, providing active frontages and encouraging natural surveillance. The prominence of key focal points within the townscape will be emphasised through detailed architectural design of individual buildings at Reserved Matters stage.
Proposed Heights
3.13 The proposals will provide a range of heights, reflective of the location of the different development parcels within the site. This is shown on the parameter plan (Drawing No. UD04 Rev I) (extract at Figure 3.2 below) and is summarised as follows:
. 2 storey (9.5 m max ridge height from finished ground level) buildings will be located across the majority of the eastern part of the residential development area, adjacent to the public open space and southern boundary;
. 3 storey (11 m max ridge height from finished ground level) buildings will be located in parts of the northwest part of the site, predominantly along primary and secondary access routes;
. 4 storey (12.5 m max ridge height from finished ground level) buildings will be located in a small portion of the site at the west of the site, adjacent to North Road, marking the main entrance of the site;
. The primary school building will rise to a maximum ridge height of 8.5 metres from finished ground level; and
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. The buildings within the local centre will rise to a maximum ridge height of 10 metres from finished ground level.
Figure 3.2: Building Heights Parameter Plan
Residential Density
3.14 The proposals will provide a range of densities, reflective of the location of the different development parcels within the site. This is shown on the parameter plan (Drawing No. UD03 Rev I) (extract at Figure 3.3 below) and is summarised as follows:
. High density areas of 35 – 50 dwellings per hectare will be located to the west of the site;
. Medium density areas of 25 – 35 dwellings per hectare will be located towards the centre of the residential development area;
. Low density areas of 15 – 25 dwellings per hectare will be located within the eastern part of the residential development area, adjacent to the public open space; and
. Flatted residential dwellings with a density of up to 50 dwellings per hectare will be provided within the local centre at the north of the site.
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Figure 3.3: Density Parameter Plan
Character Areas
3.15 The proposals comprise a number of character areas across the site, characterised by the density and height parameters as set out above. The ‘West End Neighbourhoods’ in the western parts of the site comprise higher density development, close to existing and proposed facilities. Buildings will predominantly rise to three and four storeys and comprise flats, terraced and semi-detached dwellings with narrow set backs from the street to provide a strong building line along the primary routes.
3.16 The ‘Central Neighbourhoods’ across the majority of the residential development will have a suburban character and a looser pattern of development. Dwellings will comprise predominantly two storey dwellings and a mix of terraced, semi-detached and detached dwellings. The open spaces within these parts of the site will add to their unique neighbourhood character.
3.17 The final character area comprises St Nicholas’ End; the most eastern parcel of the residential development, the details of which are provided below.
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St Nicholas’ End
3.18 This comprises the most eastern residential development parcel, the majority of which is located within the conservation area. As set out above, this parcel has been sensitively designed in more detail to ensure that the edge of the conservation area is preserved and enhanced. Given the siting of this part of the development with the conservation area, a Design Code has been prepared by Savills Urban Design and submitted in support of this application to demonstrate in more detail the approach towards development here.
3.19 This part of the site has been designed to reflect its location within the conservation area and to be sensitive to the historic character of the surrounding area. Along the eastern boundary, adjacent to St Nicholas’ Meadows, an extensive tree and landscape buffer zone will be provided to provide visual screening of the development from the public open space and the wider conservation area. This neighbourhood will integrate with the rural character through the provision of a significant high quality, landscaped, public open space to the east.
3.20 The layout comprises an informal but traditional pattern and will be of a low density. Buildings will be located along the movement routes with varied set backs to create interest within the street scene and opportunities for green spaces. The streets and lanes through this part of the site will predominantly comprise shared surface spaces and will be characterised through significant tree and shrub planting.
3.21 Dwellings will comprise two storey buildings and predominantly detached and semi-detached homes. In this part of the site there has been a focus on the provision of larger, aspirational houses which benefit from a unique character and setting.
Residential Accommodation
3.22 The application seeks to provide up to 800 residential units and will include a broad range of dwelling types and sizes in different locations and neighbourhoods across the site. An indicative residential mix is set out in Table 3.1 below.
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Table 3.1: Indicative Residential Unit Mix
Unit Size Private Affordable
1 and 2 bed flats Up to 15% 60% 2 bed houses Up to 30% 25% 3 bed houses Up to 70% 10% 4+ bed houses Up to 20% 5% Aspirational (4+ bed) houses Up to 5% of combined Private 0 and Affordable provision
3.23 The proposed residential unit mix has been developed having regard to the general principles established by the Council’s preferred housing mix set out in their Strategic Housing Market Assessment and discussions with the Housing Department. The proposals will provide a range of dwellings to suit a variety of household sizes and meet local housing needs, and has been developed through pre-application discussions with SBC housing and planning officers. In order to allow for flexibility in developing the detailed design at Reserved Matters stage an ‘up to’ percentage for each private unit type is proposed. The percentage of affordable housing by unit mix has however been fixed to provide certainty for the local authority and affordable housing providers. The percentage figures for affordable housing provided in the table above reflect the agreed basis of provision with Officers at SBC.
3.24 The proposals will provide a range of family sized dwellings, including three, four and five bedroom houses, as well as smaller one and two bedroom houses and apartments which will provide opportunities for young professional, single occupiers and couples to make their step onto the property ladder as first time buyers. Furthermore, 1% of units will be provided for self build purposes and 5% as aspirational homes.
3.25 The proposed development will deliver 30% affordable housing, comprising an mix of affordable rent (70%) and intermediate (30%) homes to meet a variety of local needs. The affordable housing will be located throughout the scheme in order to ensure the creation of a mixed and balanced sustainable community.
Non-Residential Uses
3.26 The application proposals include the provision of up to 1,800sqm of flexible commercial space (A1 / A2 / A3 / A4 / B1 / D1 / D2 Use Classes) within the new local centre, which will include space to accommodate a GP surgery if there is an identified need. Through locating this centre in the northern
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part of the site, the intention is that the local centre could be expanded in the future if the development site to the north is brought forward.
3.27 The application makes provision for 1.56 ha of serviced land to enable the delivery of a primary school providing school places for pupil yield associated with the development. The proposed development generates a peak pupil demand requiring provision for up to 1.5 FE of school places but it is acknowledged that the Local Education Authority may wish to provide a full 2FE school as a more efficient way to address demand created from other housing land allocations proposed in the Local Plan. Therefore additional land (0.44ha) required to increase the school site to 2FE is safeguarded within the scheme should the Local Education Authority wish to deliver a larger school. In addition, should further development come forward on the NHDC site adjacent to the north, the location of the school allows for this to be expanded to comprise a 3 FE school.
Amenity Space and Landscaping
3.28 A number of landscaped open spaces will be provided as part of the proposals. Overall the landscape strategy will create a network of green spaces, corridors and links across the site and connecting into the wider surrounding area. Most significant is the creation of St Nicholas’ Meadows in the eastern part of the site which will comprise approximately 38 hectares of meadowland. Further details of the proposals for this part of the site are provided below.
Figure 3.4: Green Infrastructure Plan
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3.29 As set out above, the layout of the residential parcels has taken account of the 440kv electricity pylons which run east-west through the site; this provides an opportunity for the creation of a landscaped corridor through the site. This will provide a high quality green outlook for the dwellings fronting onto this corridor as well as adding to the character, appearance and quality of the new residential neighbourhoods and the experience for new residents. This area will also contain drainage basins which form an important part of the drainage strategy for the site. The planting in this area will create both wet and dry habitats which will enhance the biodiversity of the site.
3.30 At the west of the site adjacent to North Road, green space will enhance the main entrance to the site. This will incorporate attenuation features as well as native woodland tree and scrub planting.
3.31 At the boundaries of the site, existing shelter belts, hedgerows and ditches will be retained and additional planting is proposed, including new copses, hedgerows and trees, to reinforce the structure and provide enhanced visual containment.
3.32 Along the southern site boundary specifically, a new hedgerow with trees is proposed to assist in screening views from existing houses, ensuring retained privacy and amenity to the existing residential dwellings to the adjacent properties to the south of the site. In addition this will provide an appropriate setting to the footpath to the south of the site to create a dark corridor for use by bats. A second dark corridor for bats would be retained along the shelterbelt along the northern site boundary.
3.33 In terms of play space, a Multi-Use Games Area (MUGA) and children’s play equipment would be provided on the western development part of the site to the north of the landscaped corridor.
St Nicholas’ Meadows
3.34 The proposals for St Nicholas’ Meadows seek to restore the pattern of fields and more natural habitats which would have existed in the late 19th Century when E.M. Forster was writing about Rooks Nest House. This approach reflects the aspirations of the Council and is in keeping with the Conservation Area Management Plan. The proposals for the restoration and management of this landscape have been developed in accordance with heritage and landscape advice to ensure the preservation and enhancement of the setting of the conservation area and listed buildings within the surrounding area.
3.35 In addition, maintaining significant open space in this location is essential to ensuring the connection to a green infrastructure network which extends to the Old Town to the south. This high quality open space will provide informal public amenity space. The proposals integrate existing public rights of way, as well as providing new permissive paths, which will allow people to enjoy the landscape and easily move through the space and connect into surrounding areas.
3.36 This area will provide an enhanced habitat to support wildlife and increase biodiversity value. The proposals seek to create a new meadow habitat through extensive new planting, including copse and
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hedgerow planting. Planting along the eastern edge will be implemented at an early stage in the development phasing to allow the natural habitats and landscape to develop and mature as early as possible during the construction process.
3.37 In addition, further copses plus new hedgerows reinstated on historic field boundaries and an orchard would be planted within those fields closest to Rooks Nest House. The proposed orchard reflects the landscape shown in historic maps and will also assist in screening the development from the more sensitive locations around the site.
Access
3.38 This application seeks approval for access to the site. Vehicular access to the site is proposed to be provided from North Road, to the west of the site, via two new junctions. The primary access road will form a loop within the residential development between the two main access points, from which the rest of the road network will extend to provide permeable access to all parts of the site. The primary access road will continue towards the northern boundary and can be extended if the development to the north comes forward, ensuring permeable access throughout both development sites. The southern most junction could be made emergency vehicles / public transport / cyclists only, should the development to the north come forward, ensuring only two main vehicular accesses are provided onto North Road. This would be fully tested as part of a planning application for the land to the north. Furthermore, the primary road network has been designed to ensure ease of connection with the site to the north in the future.
3.39 The highways network within the site seeks to encourage pedestrian movement. The streets will be well overlooked by the proposed new buildings, providing a good sense of enclosure and security.
3.40 A bus route will be provided along the primary access route through the site. This could also be extended northwards if the residential development on the adjacent site to the north comes forward.
3.41 The primary access route will also incorporate dedicated cycleways and footpaths, and junctions will be designed to give priority to cyclists as opposed to cars. In addition, a new cycle link being provided along North Road down to Corey Mills Lane will improve cycle access to the site from the town centre and wider area.
3.42 Main streets and secondary access routes would lead off the primary access routes, leading to lanes and private drives. Secondary streets will comprise formal streets which will continue the approach of regular tree planting and lighting from the primary streets. Tertiary and shared streets will be more informal, with priority given to pedestrians and cyclists, and will provide access to many of the new homes. Finally, green lanes will provide access at the development edge with access for pedestrians and cyclists only, marked with more planting and buildings of varying set backs.
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3.43 The proposals seek to retain the existing network of public rights of way, and will provide additional footpath and cycle links both within the site and from the site to the surrounding areas. This will provide permeability and continuity between the site and existing surrounding footpath network.
3.44 Vehicle and cycle parking will be provided on site in line with the Parking Standards SPD (2012). Full details of car and cycle provision will be provided at the Reserved Matters stage; however it will be provided in accordance with the Parking Standards SPD (2012) in place at the time of the outline planning permission. Vehicle parking will be incorporated into the residential areas in a variety of typologies including on-street, on-plot and within parking squares. On-street car parking is preferable along key routes as this reduces the need for vehicular crossovers of pedestrian routes. Parking squares will be provided within the higher density areas of the scheme. In all locations, parking areas will be sufficiently overlooked to ensure safety and security.
Sustainability and Energy
3.45 A ‘fabric first’ approach will be adopted to ensure sustainable and energy efficient homes. This will include the incorporation of energy efficient heating systems and insulation to ensure a reduction in carbon dioxide emissions. Full details of sustainable design will be set out at the Reserved Matters stage of the planning process.
Phasing
3.46 It is anticipated that the site will be developed in phases with construction of the development beginning in the west of the site adjacent to North Road, and moving eastwards across the site. As mentioned above, planting along the eastern boundary of the residential development, will be delivered early in the construction programme to allow new landscaped areas to establish before construction of new buildings in this part of the site commences.
Key Planning Benefits
3.47 By way of a summary, the proposals will provide a wide range of planning benefits for the site and surrounding area, as set out below:
. The proposed development of the site will deliver a comprehensive new sustainable development in line with the site allocation within the advanced emerging Local Plan. This should be afforded significant weight.
. The proposals will provide up to 800 new homes which will meet identified local needs, comprising a range of dwelling types and sizes and including affordable housing (30%).
. The proposals will provide complementary non-residential uses for the benefit of existing and new residents.
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. The proposals are design-led and have evolved through detailed pre-application discussions with officers and extensive community and stakeholder engagement to provide a high quality design response to the constraints and opportunities of the site.
. The proposals include the delivery of 38 hectares of public open space in the form of St Nicholas’ Meadows for the benefit of new and existing residents. The proposals seek to reintroduce elements of the historic landscape in order to preserve and enhance the conservation area.
. The retention and incorporation of the existing public rights of way and providing enhanced public access to St Nicholas’ Meadows.
. The proposals will provide a range of high quality landscaped spaces across the site which will enhance local habitats and biodiversity.
. The proposals include the provision of a new primary school and local centre with the ability for further expansion should additional development to the north of the site come forward in the future.
. The proposed development will also generate a range of financial benefits including New Homes Bonus, Council Tax generation and other site specific planning obligations.
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4. Planning Policy Context
4.1 The redevelopment proposals have taken account of relevant national and local planning policy. This section of the Planning Statement sets out a brief summary of the relevant planning policy documents and the following section demonstrates compliance with these policies.
4.2 In accordance with Section 38(6) of The Planning and Compulsory Purchase Act (2004), planning applications should be determined in accordance with the development plan unless other material considerations indicate otherwise.
4.3 The development plan currently comprises the Saved Policies of The Stevenage District Plan Second Review (adopted December 2004, saved December 2007).
4.4 Significantly, SBC has prepared a new Local Plan which was submitted to the Secretary of State in July 2016 and the Examination in Public concluded in March 2017. Main modifications to the plan were consulted upon in July 2017 and the Inspector’s Report was issued in October 2017. The Inspector concluded that the Plan was sound subject incorporating four amendments to the main modifications consulted upon in July 2017. The Council is intending to adopt the Local Plan at the earliest opportunity and following the issue of a holding direction by the Secretary of State is awaiting permission to proceed with adoption. Notwithstanding this, given the advance stage of preparation of the emerging Local Plan, significant weight can be afforded to the policies and it therefore comprises an important material consideration in the decision making process. Once the Local Plan is adopted this application will be determined in accordance with the relevant policies.
National Planning Policy
4.5 At the national level, the Government published its National Planning Policy Framework (NPPF) on 27 March 2012. The NPPF provides an overarching framework for the production of local policy documents and at the heart of this document is a presumption in favour of sustainable development.
4.6 In accordance with the NPPF, sustainable development should be seen as a ‘golden thread’ running through both plan-making and decision-taking and sets out twelve core land-use planning principles (Paragraph 17) which should underpin plan-making and decision-taking, and which planning should achieve. In accordance with Paragraph 14 of the NPPF, for decision-taking, this means:
. “approving development proposals that accord with the development plan without delay; and
. where the development plan is absent, silent or relevant policies are out of date, granting permission unless:
o any adverse impacts of doing so would significantly and demonstrably outweigh the benefits, when assessed against the policies in this Framework taken as a whole; or
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o specific policies in this Framework indicate development should be restricted.”
4.7 In addition, Paragraph 10 sets out that plans and decisions should take into account local circumstances, so that they respond to the different opportunities for achieving sustainable development in different areas.
4.8 The Government expects the planning system to deliver the homes, business, infrastructure and thriving local places that the country needs, while protecting and enhancing the natural and historic environment.
4.9 The Government published the Planning Policy Guidance (PPG) notes in March 2014. The PPG notes support the NPPF and provide high level guidance with regard to specific planning issues and processes. The PPG notes are referenced where applicable throughout this document.
Regional Planning Policy
4.10 It is important to note that, whilst now revoked, The East of England Plan Regional Spatial Strategy (RSS) (2008) identified the provision of a sustainable urban extension to the north and west of Stevenage (Policy SV1 and SS7) to deliver 9,600 dwellings between April 2001 to March 2021 (Policy H1), including land in SBC and NHDC.
4.11 SBC and NHDC began the preparation of a joint masterplan, known as the Stevenage and North Hertfordshire Action Plan (SNAP) to guide the expansion of Stevenage to the north as well as the west. An Issues and Options document was published for consultation in November 2007. The applicants sought to work with both SBC and NHDC in developing the initial thinking of the SNAP. Further work on the SNAP was ceased in 2010 following the abandonment of the Core Strategy being prepared by SBC at the time.
Local Planning Policy
4.12 The Stevenage District Plan Second Review (“the District Plan”) was adopted in December 2004. The current statutory development plan for Stevenage comprises the policies of the District Plan which were saved in December 2007. The adopted Policies Map identifies the site as being within the designated Green Belt.
4.13 Between the years of 2007 and 2010 SBC were seeking to prepare a Core Strategy. In May 2010, just before the announcement of the abolition of regional spatial strategies, the Core Strategy and other Development Plan Documents were submitted for examination. This proposed the allocation of the application site for residential development in accordance with RSS requirements.
4.14 In considering the Core Strategy Submission, the Inspector advised SBC in November 2010 that it failed to meet the statutory requirements of soundness. It was considered unsound because the
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housing numbers reliant upon growth in NHDC, which had been called into question, following the decision to revoke the RSS.
4.15 SBC has since prepared a new Local Plan. Initial consultation was undertaken in June – July 2013. Further work was undertaken in relation to the housing target for the District with consultation undertaken in June – July 2015. The Publication Local Plan was published for consultation during January – February 2016. This allocates the site as an urban extension for the development of approximately 800 dwellings. The applicant has submitted representations to the Local Plan throughout the process supporting allocation of the site for residential development.
4.16 The Local Plan was submitted to the Secretary of State in July 2016. The Examination in Public was undertaken between January and March 2017 and the applicant had an extensive involvement through the preparation of Matters Statements and attendance at a number of the Hearing Sessions.
4.17 Following the Examination, SBC proposed a number of Modifications which were consulted on between July and September 2017. No significant amendments were made to the proposed allocation for this site. The Inspector’s Report was issued in October 2017 and subject to amendments to the wording of four of the main modifications, the Plan meets the criteria for soundness in the NPPF. The Council is preparing to adopt the Local Plan at the earliest opportunity and is awaiting permission to do so following the issue of a holding direction on the adoption of the Plan by the Secretary of State.
4.18 Notwithstanding the above, given the advance stage of preparation of the emerging Local Plan, significant weight should be afforded to the policies contained within it and it does comprises an important material planning consideration.
4.19 The emerging Local Plan (incorporating SBC modifications) releases part of the site from the Green Belt designation. That part of the allocation that is to be removed from the Green Belt is entirely consistent with the part of the application site that is proposed for development. The area covered by the proposed public open space lies within the land to be retained as Green Belt. The details of the site allocation are set out below:
Policy HO3: North of Stevenage
Land to the North of Stevenage, as defined by the proposals map, is allocated for the development of approximately 800 dwellings.
A Masterplan for the whole site will need to be submitted as part of an outline planning application. The Masterplan must be approved prior to the submission of detailed development proposals for the site.
Development proposals will be permitted where the following criteria are met:
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a. The applicant can demonstrate that development can be expanded beyond the Borough boundary, and fully integrated with a wider, cross-boundary scheme;
b. Satisfactory vehicular access is provided. At least two access points to and from the site will be required, which link effectively into the existing road, cycleway and pedestrian networks;
c. The scheme is designed to encourage the use of sustainable modes of transport;
d. At least 5% aspirational homes are provided in line with Policy HO9;
e. Plots to accommodate at least 1% new homes are made available for self-build purposes;
f. 30% affordable housing is provided in line with policy HO7;
g. Provision for supported or sheltered housing is made in line with Policy HO10;
h. Local facilities to serve the community are incorporated, including a GP surgery, subject to demand;
i. A primary school is provided in line with the most up-to-date evidence of need;
j. A skate park or MUGA for children is provided on-site;
k. A full archaeological assessment is undertaken;
l. A full flood risk assessment is undertaken;
m. The proposal seeks to preserve or enhance the conservation area, including the setting of adjacent listed buildings. The following mitigation measures should be incorporated;
i. As much of the requirement for aspirational homes (criteria d) as possible should be met on the part of the site that lies within the conservation area. Development within this area should also be heavily landscaped to reduce the visual impact of development;
ii. Existing hedgerows should be maintained and additional screening implemented to reduce the visual impact of the development;
iii. Tall buildings will not be permitted. Building heights will be a maximum of two storeys within the eastern part of the site;
iv. No vehicular access to the site will be permitted from the east of the site, across the open fields;
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v. Existing Public Rights of Way are retained and designed into the development, where possible, and diverted where necessary; and
vi. Building styles and layout within the conservation area to the east of the site should reflect the key features of the conservation area.
n. The scheme incorporates a network of green infrastructure, with an emphasis on high quality landscaping within and around the development to reduce the impact of the development on the surrounding greenfield / Green Belt land; and
o. An appropriate buffer around existing power lines is incorporated;
p. Electric car charging points are provided at an easily accessible location within the site.
As part of any development proposal, we will the open space to the east of the boundary to be retained as such, either via a Legal Agreement or through the transfer of land to the Borough Council.
Figure 4.1: Proposals Map Extract
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5. Material Planning Considerations
5.1 This section of the Planning Statement sets out the main planning issues arising from the application proposals with reference to the planning policy framework set out in the previous chapter.
Principle of Development in the Green Belt
5.2 The site is currently designated as Green Belt, as shown on the Proposals Map which accompanies the District Plan (2004). However, in assessing the development proposals it is important to take note of NPPF Paragraph 83 which states that Green Belt boundaries can be reviewed through the preparation of a Local Plan. When reviewing Green Belt boundaries, Paragraph 84 sets out that Local Planning Authorities should take account of the need to promote sustainable patterns of development. Paragraph 85 sets out the considerations to be taken on board when reviewing Green Belt boundaries including to:
. ensure consistency with the Local Plan strategy for meeting identified requirements for sustainable development;
. not include land which it is unnecessary to keep permanently open; and
. define boundaries clearly, using physical features that are readily recognisable and likely to be permanent.
5.3 In accordance with the above, in preparing a new Local Plan SBC has reviewed the Green Belt boundaries around Stevenage and propose a number of amendments to accommodate their development needs. More specifically, Policy SP10 of the emerging Local Plan includes new boundaries that release land for development within the Plan period. The Proposals Map accompanying the Local Plan identifies the release of the western part of the site from the Green Belt, with the eastern part of the site, comprising more than 50% of the site area, remaining in the Green Belt. Further to this, Policy HO3 allocates the site for a residential-led redevelopment of approximately 800 units.
5.4 As set out in Section 4, the proposed removal of the site from the Green Belt is underpinned by an extensive policy and technical background including a historic commitment by SBC towards the allocation of land at North Stevenage for residential development. In addition, there has been a strategic approach with NHDC over a number of years towards the release of this site from the Green Belt. Paragraph 84 of the Inspector’s Report concludes that exceptional circumstances exist to justify part of the release of HO3 for residential-led development as follows:
In summary, there is a pressing need for housing within the Borough that cannot be met outside of the Green Belt. The value of the Green Belt has been thoroughly assessed by the Council and although it found that here a significant contribution comes from preventing the merging of settlements, there would still be a gap between settlements, even if the site in North Hertfordshire is allocated in their Plan and subsequently developed. Taking into account all of these factors I find
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that this site would be the most suitable, along with others, to meet the housing need in Stevenage. As such, exceptional circumstances exist to justify the release of this site from the Green Belt.
5.5 NPPF Paragraph 216 sets out that weight can be given to an emerging plan from the day of publication. The more advanced the preparation, the greater the weight that may be given to the policies. The Examination of the Local Plan has been completed, Modifications have been agreed and consulted upon and subject to these modifications the Inspector has found the plan sound. As such, the applicant has agreed with officers at SBC that planning application can be submitted prior to the formal adoption of the Local Plan.
5.6 The site allocation (Policy HO3) seeks the development of approximately 800 dwellings on the site; a major urban extension to Stevenage comprising a significant amount of the housing delivery during the plan period and in particular within the first five years. The proposals are entirely consistent with the emerging allocation, as set out through the following sections of this Planning Statement, and are therefore considered to be acceptable and in accordance with the Local Plan.
5.7 As noted above, the emerging Local Plan seeks to remove only the western part of the site from the Green Belt; the eastern part of the site, comprising more than 50% of the site, will remain in the Green Belt. This part of the site is proposed to be retained as open space and restored to its former historic layout to provide St Nicholas’ Meadows; a 38 ha publically accessible open space. The application does not propose any inappropriate development as defined in the NPPF, in particular no buildings are proposed to be erected within the Green Belt.
5.8 The proposals have been sensitively designed to incorporate low density housing and an extensive landscaped buffer zone along the eastern boundary with the public open space. As such there will be no material harm to the openness of the retained area of Green Belt as a result of the proposed development.
5.9 The proposals will be a significant improvement over and above the existing position whereby public access is limited to the existing public rights of way. This is wholly in accordance with Paragraph 81 of the NPPF which seeks to enhance the beneficial use of the Green Belt, including seeking opportunities to provide access; opportunities for outdoor sport and recreation; and retaining and enhancing landscapes, visual amenity and biodiversity.
Principle of Residential Development
5.10 The application comprises a residential-led scheme which seeks to provide up to 800 new dwellings.
5.11 The need for all forms of housing across the UK, particularly in the southeast, is well established. Overall the provision of new residential accommodation is recognised at the national and local level as a key planning objective.
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5.12 Delivering the homes that the country needs is a core planning principle within the NPPF. Paragraph 47 identifies measures to “boost significantly the supply of housing.” Local Plans should meet the objectively assessed need for housing in their area and local authorities are required to demonstrate a five year supply of deliverable land for housing. NPPF Paragraph 49 further states that, if the required housing land supply cannot be demonstrated, then the policies for the supply of housing in the adopted development plan are not considered to be up to date and housing applications should be considered in the context of the presumption in favour of sustainable development.
5.13 SBC is currently unable to demonstrate a five year supply of deliverable land for housing, as set out in SBC Annual Monitoring Report 2014 / 15 (AMR). In calculating the five year housing land supply position, the Council has included a deficit of 467 homes in the five years preceding the 2014 / 15 AMR, alongside a 20% buffer to account for persistent under delivery. It is understood that the position remains that the Council cannot demonstrate a five year housing land supply.
5.14 Whilst this position remains, the relevant policies for the supply of housing in the current development plan should not be considered up to date, in terms of NPPF Paragraph 49.
5.15 Notwithstanding the above, the Council will have a five year housing land supply on adoption of the Local Plan, including part of the HO3 allocation. The application proposals are taken into account in the five year housing land supply and will make a significant contribution to boosting the deliverable supply of housing land, making a contribution of more than 10% to the need for 7,600 new homes over the Local Plan period. The delivery of 800 units in accordance with the Policy HO3 allocation should therefore be afforded significant weight.
Principle of Proposed Non-Residential Uses
5.16 Whilst being a predominantly residential scheme, the development proposals include the provision of a number of other uses which will support the new community at the site, each of which are addressed in turn below.
Principle of a new Local Centre
5.17 The application proposals include the provision of up to 1,800 sqm of flexible commercial space (A1 / A2 / A3 / A4 / B1 / D1 / D2 Use Classes) within the new local centre proposed to be located in the northern part of the site.
5.18 The NPPF seeks the provision of shared space, community facilities and other services to enhance the sustainability of communities and residential environments.
5.19 Emerging Policy SP9 requires centres to be provided in significant new developments. Furthermore, where developments are planned to cross administrative boundaries, these should be planned to form a part of the larger scheme.
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5.20 Emerging Policy HO3 states that local facilities to serve the community are to be incorporated within the development proposals for the land North of Stevenage.
5.21 In accordance with the emerging site allocation, the proposals seek to provide a new local centre to serve the residents of the site, contributing to the creation of a sustainable community. The local centre is proposed to be located in the northern part of the site adjacent to the development site within North Hertfordshire District in order to be accessible to the wider community if development is brought forward in the future. The proposals therefore comply with the requirements of the emerging site allocation (Policy HO3) as well as the principles of the NPPF, Saved Policy TW4 and Emerging Policy SP9.
Main Town Centre Uses
5.22 The proposed commercial space within the new local centre could comprise main town centre uses, including A1 / A2 / A3 / A4 / B1 / D2 Use Classes.
5.23 NPPF Paragraph 24 requires the application of the sequential test to planning applications for main town centre uses that are not in an existing centre and are not in accordance with an up to date Local Plan.
5.24 Paragraph 26 of the NPPF requires an impact assessment for planning applications for retail, leisure and office developments that exceed 2,500 sqm, or any proportionate, locally set floorspace threshold, not in an existing centre and not in accordance with an up to date Local Plan. At the local level, emerging Policy TC13 seeks to set a threshold of 750 sqm for developments proposed within local centres.
5.25 Saved District Plan Policy TR14 states that a new neighbourhood shopping centre should be provided where new residential neighbourhoods are proposed in order to meet the needs of that development.
5.26 Emerging Policy TC11 seeks the provision of new convenience retail floorspace at an appropriate scale and in an appropriate accessible location, within the new neighbourhood North of Stevenage. The policy seeks a new local centre, comprising an anchor convenience store in the order of 500 sqm, together with related small-scale Use Class A1 shops, to meet the day-to-day needs of the residents of the new development. Policy TC11 goes on to state that the new local centre should be co-located with other community uses such as schools and / or health or community facilities.
5.27 In accordance with Saved Policy TR14 and emerging Policy TC11 as set out above, the proposals include the creation of a new local centre and make provision for new convenience retail floorspace. The proposals seek to provide a total of 1,800 sqm of flexible commercial floorspace which will enable the provision of an anchor convenience store and related small-scale Use Class A1 shops, as required by Policy TC11. In addition, the new retail centre has been designed to be located alongside other uses including the proposed new school, within the northern part of the site.
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5.28 Whilst the proposed quantum of floorspace is greater than the order of 500 sqm as stipulated in Policy TC11, it is important to note that the commercial space comprises a number of different uses, not all of which will be retail, to meet the needs of the residents of the new development. The proposals are therefore considered to be acceptable and will contribute to the creation of a sustainable community on the site.
5.29 Whilst emerging Policy TC13 requires an impact assessment for proposals greater than 750 sqm, an assessment of impact has not been undertaken in this case given that the provision of new convenience retail on the site is sought by emerging Policy TC11 and required by the emerging site allocation in emerging Policy HO3. In addition, it is of note that the adopted planning policy framework, the NPPF, sets a threshold of 2,500 sqm, which the proposals do not exceed. If considered appropriate, SBC could attach a condition to any grant of planning permission restricting the amount of floorspace within each of the specified non-residential Use Classes.
5.30 Furthermore, the proposals, through the creation of a significant number of new homes, will increase available retail and leisure spend in the local area. Since this will most likely be directed to Stevenage Town Centre, this will enhance the vitality and viability of the Town Centre and have a positive impact on the performance of individual operators.
5.31 In accordance with Paragraph 24 of the NPPF, since the site is not located within an existing centre, an assessment of the sequential sites has been undertaken, as set out below.
Policy Context for the Sequential Assessment
5.32 The sequential assessment should have regard to the needs of both consumers and operators that will be met by the development. NPPF Paragraph 23 seeks for the identified needs to be fully met.
5.33 The criteria used to assess whether alternative sites exist are set out in the PPG as follows (Ref. 2b- 011-20140306):
. With due regard to the requirement to demonstrate flexibility, has the suitability of more central sites to accommodate the proposal been considered? Where the proposal would be located in an edge of centre or out of centre location, preference should be given to accessible sites that are well connected to the town centre.
. Is there scope for flexibility in the format and / or scale of the proposal? It is not necessary to demonstrate that a potential town centre or edge of centre site can accommodate precisely the scale and form of development being proposed, but rather to consider what contribution more central sites are able to make individually to accommodate the proposal.
. If there are no suitable sequentially preferable locations, the sequential test is passed.
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5.34 Paragraph 24 of the NPPF requires applicants and local authorities to demonstrate flexibility in terms of format and scale of proposed developments. The PPG (Ref. 2b-012-20140306) states:
‘Use of the sequential test should recognise that certain main town centre uses have particular market and locational requirements which mean that they may only be accommodated in specific locations.’
Application of the Sequential Approach
5.35 The application site is located beyond a reasonable five minute (400 metre) walking distance to the defined town centres in Stevenage; the Old Town (1.2 km south of the site) and the Town Centre (2.4 km south of the site).
5.36 The proposal is designed to meet the specific day-to-day shopping and service needs of the new residents to reduce their need to travel, contributing to the creation of a sustainable community. Situating the proposed retail floorspace in the existing defined retail centres is likely to promote less sustainable shopping trips by private motor car.
5.37 As set out above, the PPG confirms that the application of the sequential test should recognise that certain main town centre uses have particular market and locational requirements which mean that they may only be accommodated in specific locations. As the proposed commercial floorspace is designed to meet the specific day-to-day shopping and service needs of the new residents, placing this floorspace more than 1km from the application site would not promote sustainable travel patterns.
5.38 It is likely that new residents will continue to visit Stevenage Town Centre for their weekly and bi-weekly bulk convenience purchases however, top-up shopping needs should be satisfied locally.
5.39 Given that the proposals seek to meet local consumer needs, it is considered to be ‘locationally specific’; providing the retail space in a defined centre would not meet the requirements of the new residential population at North of Stevenage. Therefore it is concluded that the defined centres of the Old Town and Stevenage Town Centre are not sequentially preferable locations for the proposed development.
5.40 It is of note that emerging Policy TC11 seeks the provision of a new major foodstore to serve borough- wide needs at Graveley Road, adjacent to the site to the northwest. Whilst this will be located in close proximity to the site, the policy seeks for the provision to be designed to meet borough-wide needs; the application proposals seek to provide new retail convenience floorspace to meet local needs. In addition, the need for both the proposed town centre uses provision on the application site, as well as the new major foodstore at Graveley Road, has been identified within the emerging Local Plan. The area at Graveley Road is therefore not considered to be a sequentially preferable location for the proposed development; indeed both are required to meet local needs.
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Conclusion
5.41 In summary, the proposals make provision for new retail convenience floorspace within the proposed local centre on the site. Whilst the overall quantum proposed comprises a total of 1,800 sqm, not all of this floorspace will be retail use; provision is also made for business and community uses including the potential to accommodate a GP surgery. The proposals meet the requirements of emerging Policy TC11 and the emerging site allocation in emerging Policy HO3.
5.42 As required by the NPPF, a sequential assessment has been undertaken. The assessment demonstrates that there are no sites in sequentially preferable locations that are available, suitable and viable to accommodate the proposed development. The application site is therefore considered to be the most sequentially preferable site to accommodate the proposed development. In addition, the proposals will not have an unacceptable impact on the vitality and viability of existing centres; indeed the increase in residents at the site will likely increase available retail and leisure spend in the local area resulting in a positive impact on Stevenage Town Centre.
5.43 The proposals comprise an appropriate retail provision on the site, given its location, and meets the requirements of emerging policy including the emerging site allocation. Overall the proposals are in accordance with national and local policy aspirations.
Community Uses
5.44 The proposals make provision for a new GP surgery within the local centre, as well as a new primary school for the new community.
5.45 NPPF Paragraph 70 seeks the provision of community facilities to enhance the sustainability of community and residential environments.
5.46 Saved Local Plan Policy SC5 states that major new residential developments should include provision for social and community facilities commensurate with the scale of development, taking account of existing services and the level of new services required as a result of the proposed development.
GP Surgery
5.47 Saved District Plan Policy SC13 states that where neighbourhood centres are proposed, planning obligations will be sought to provide land and appropriate contributions towards the provision of purpose built accommodation for doctors and dental surgeries.
5.48 Emerging Policy SP9 states that healthcare provision will be enhanced through the delivery of new facilities, including at North of Stevenage.
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5.49 This is supported by the emerging site allocation set out in emerging Policy HO3 which states that local facilities to serve the community are to be incorporated within the development proposals, including a GP surgery, subject to demand.
5.50 In accordance with the site allocation, the proposals make provision for a new GP surgery site within the local centre in the northern part of the site. However it is of note that the Socio-Economic Chapter within the Environmental Statement (Chapter 14), identifies that there is capacity within the existing facilities to accommodate the needs of the proposed development. The commercial floorspace is therefore proposed to be provided as flexible space to ensure that the space will not be left vacant if there is no demand for the GP surgery. It is anticipated that this will be established through the outline application process.
Primary School
5.51 Emerging Policy SP9 supports the provision of new education facilities where they meet a demonstrated need and are in an accessible location.
5.52 Emerging Policy HO3 seeks the provision of a primary school on the site, in line with the most up to date evidence of need.
5.53 An assessment of the educational needs has been undertaken, full details of which are provided within the Education Supporting Document prepared by Education Property Consultancy Ltd in support of this application. The education provision within the application proposals has been designed in response to the findings of this assessment.
5.54 The application makes provision for 1.56ha of serviced land to enable the delivery of a primary school providing school places directly related to the development at a scale that is fairly and reasonably related to the scheme. The proposed development generates a peak pupil demand requiring provision for up to 1.5 FE of school places. The provision of 1.56ha of serviced land would meet the peak pupil demand generated by the development.
5.55 However it is acknowledged the Local Education Authority HCC, may wish to provide a full 2FE school as a more efficient way to address demand created beyond the North of Stevenage allocation. Whilst not required to make the development acceptable in planning terms, the applicant has committed to additional land (0.44 ha) required to increase the school site to 2FE to be safeguarded within the scheme should HCC wish to deliver as a larger school. This would be offered to HCC at open market residential value.
5.56 HCC have confirmed during pre-application discussions that they require serviced land for the school and a financial contribution towards it construction. The proposed provision as set out above is therefore considered to be acceptable.
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Sustainable Development
5.57 Given the foregoing, the proposals are compliant with the emerging Local Plan and comprise sustainable development as defined by NPPF Paragraph 7, as demonstrated in the following paragraphs.
Social Role
5.58 The proposals will contribute to the supply of housing required to meet present and future needs, in conjunction with the other major urban extensions identified for Stevenage.
5.59 The development of the site to provide new residential dwellings will introduce new residents to the area and expand the local community. Furthermore, the proposed range of housing types will complement the existing housing provision in Stevenage, and help to create a strong, vibrant and diverse community.
5.60 The provision of a range of dwelling types and sizes, including aspirational homes and self-build opportunities, will meet the needs of different occupiers and will assist in creating a strong and balanced community. In addition, the provision of 30% on-site affordable housing, will meet the social role of sustainable development.
5.61 The housing sizes and tenures will be interspersed throughout the development site, encouraging social interaction which is further assisted by the availability of public routes, footways and open space where further interaction will be fostered.
5.62 The proposals include the creation of a large public open space to the benefit of the new and existing local community which will encourage healthy lifestyles through the provision of attractive and accessible open space.
5.63 The new public open space extends to some 38ha and enhanced public access to the countryside will directly result from these proposals, through the retention of the existing public rights of way and creation of new public routes. This will provide an important facility for existing and new residents in the locality.
5.64 A multi use games area will be provided within the residential development area of the site, along with areas of playspace and equipment. These playspaces will be located within the development providing ease of access to future occupiers of the development, whilst encouraging healthy and active lifestyles.
5.65 The proposals include the creation of a new local centre comprising flexible floorspace for retail, business and community uses, including a primary school and a GP (subject to demand for such a facility), which will provide key local services accessible to the new community to support health, social
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and cultural well-being. These facilities will be capable of meeting the community’s needs without the immediate or unavoidable need to rely on private motor vehicles.
Economic Role
5.66 The proposed development will contribute to economic growth both during construction and over the life of the development.
5.67 The construction of new housing creates a range of employment opportunities within the local and wider economy and has been acknowledged by the Government as a key driver for boosting housing delivery as required by the NPPF. Construction of the development will support 188 jobs directly on site as well as indirect support to 258 additional jobs in the supply chain. It is anticipated that a proportion of these new jobs will be taken up by local workers.
5.68 The development of the site would provide support for local building trades, with some of the works being carried out by local trades persons and materials being sourced locally wherever possible. Equally, the construction phases would create increased footfall to local shops and services from those employed providing further short term economic benefits to the community.
5.69 In the longer term, the proposals would create an increased footfall to local shops, services and trades, that would assist in the vitality and viability of the local centre. Residents of the scheme would generate approximately £15 million per year additional leisure and retail expenditure within the Borough. This will help to build a strong and responsive economy which may well increase interest in the town and its competitive edge in the wider area.
5.70 The proposals would also generate New Homes Bonus payments and additional Council Tax revenue which would provide an important source of revenue funding for the local authority in delivering new services and facilities.
5.71 S106 contributions towards necessary infrastructure will be negotiated and agreed during the application process.
Environmental Role
5.72 The development of the site will comprise a high quality design of buildings, public realm and landscaped open spaces. The proposals have been sensitively designed and the provision of the new public open space will contribute to restoring the historic landscape.
5.73 The proposals seek to introduce a variety of soft landscaping areas to the site which will deliver ecological and environmental benefits to the site and surrounding area through net gains in biodiversity at the site. Existing trees and hedges will be retained where possible and significant new planting is proposed throughout the site.
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5.74 The proposals include the creation of extensive publically accessible open space comprising approximately 38ha of meadowland. The proposed landscape management strategy for this open space has been designed to ensure the creation of a landscape which is similar to that which would have existed on the site during the time that E. M. Forster was using Rooks Nest House for the basis of his novel ‘Howard’s End’. This has been informed by an extensive assessment of historic maps and E.M Forster’s ‘Howard’s End’ and includes the reinstatement of the historic field pattern, hay meadow and orchard. This will enhance the setting of the listed buildings associated with Forster to the south of the site and contribute to local heritage preservation.
5.75 Finally, the proposals seek to improve the biodiversity and ecological benefit of the site compared to the existing situation of fields comprising arable farmland. There will be a net gain in biodiversity at the site when compared with the intensive arable farming regime currently undertaken at the site.
5.76 The proposals have been developed with sustainable design and construction in mind and the new dwellings will be designed to minimise waste, be adaptable to climate change and reduce carbon emissions.
5.77 The accessibility of the site, and proposed footway connections assist in the move towards a low carbon future, reducing the need for access to everyday services by private cars. The availability and improvement of public transport in the area is also an important consideration.
Summary
5.78 As demonstrated above, the site is considered to be a sustainable location and the proposals comprise sustainable development. In light of the presumption in favour of sustainable development that applies where a local authority cannot demonstrate sufficient housing supply, and that the site comprises a sustainable location, the proposed residential development of the site is in accordance with national policy.
5.79 Notwithstanding the above, the proposed residential development of the site is supported by the emerging site allocation set out in emerging Local Plan Policy HO3 which seeks the development of approximately 800 dwellings on the site. The Local Plan policies should be afforded significant weight.
Affordable Housing
5.80 As part of the residential provision on the site, 30% of units will be provided as affordable housing in a mix of tenures and unit sizes.
5.81 At the national level, the NPPF does not set any specific policy requirements in relation to affordable housing but requires local planning authorities to ensure that their policy documents meet the full, objectively assessed needs for market and affordable housing. The PPG recognises that any planning
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obligations, including affordable housing, must be fully justified and evidenced and should not prevent development going forward.
5.82 Emerging Policy HO7 requires 30% of new homes on sites which are not previously developed to comprise affordable housing. Emerging Policy HO8 further requires 70% of the affordable units to be for rent and the remainder to comprise other tenures which should be agreed with the Council’s Housing team.
5.83 Emerging Policy HO8 further requires a mix of house types and sizes within the affordable tenure and that the affordable housing be physically indistinguishable from other tenures and be distributed across the site.
5.84 The proposed development will deliver 30% affordable housing, comprising an mix of affordable rent (70%) and intermediate (30%) homes. A mix of affordable homes will be provided ranging from 1 bedroom flats to 4 bedroom houses. The proposed mix has been agreed in principle with the Council’s housing officers and will meet their local needs. The affordable housing will be located throughout the scheme in order to assist in the creation of a mixed and balanced sustainable community.
5.85 The applicants will agree terms with a registered provider to deliver and manage the affordable dwellings which will be secured via a Section 106 Agreement. The proposals will provide a significant amount of affordable housing on the site, meeting local needs. The proposed provision is in accordance with emerging policy requirements and is therefore considered to be acceptable.
Residential Mix
5.86 The application proposals will incorporate a range of unit types and sizes across the different tenures within the scheme; an indicative residential mix is set out in Table 3.1 in Section 3.
5.87 NPPF Paragraph 9 states that sustainable development involves seeking positive improvements in the quality of the built environment including widening the choice of high quality homes. The NPPF recognises that to create sustainable, inclusive and diverse communities, a mix of housing based on demographic trends, market trends and the needs of different groups should be provided.
5.88 Emerging Policy HO9 seeks the provision of an appropriate range of market and affordable house types and sizes, having regard to the existing housing stock, housing needs and the location and accessibility of the application site. Policy HO9 also specifically seeks the provision of aspirational homes within the new neighbourhood to the north of Stevenage.
5.89 Emerging Policy HO10 seeks the provision of an element of sheltered and / or supported accommodation within Use Class C3 on large developments in excess of 200 units, where practical. For North of Stevenage specifically, Policy HO10 seeks provision of an element of accommodation in Use Class C2 as part of a comprehensive offer.
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5.90 Emerging Policy SP7 seeks an appropriate mix of housing sizes to be provided, in line with the most up-to-date evidence of need, and for at least 1% of new homes on urban extensions to be self build.
5.91 Consistent with the above, the Policy HO3 seeks the provision of at least 5% aspirational homes, provision for sheltered or supported housing and plots to accommodate at least 1% of new homes to be for self-build.
5.92 The proposals will provide a range of unit types and sizes including 1 and 2 bedroom apartments and 2 to 4+ bedroom houses. An indicative percentage mix of private residential units has been provided to allow for flexibility at the detailed design stage. The indicative residential mix will meet a range of local housing needs from families to young single occupiers and first time buyers.
5.93 As required by emerging policy 5% of the new dwellings will be provided as aspirational houses and 1% will be provided as self build plots.
5.94 The applicant has explored the potential for including extra care / independent living accommodation on the site. Following extensive discussions with the Council’s Housing Team, it has become apparent that there is no need for the provision of this type of accommodation at this time. Following a clear steer from the Council’s Housing Officers, the application proposals do not include for such provision. This is considered to be consistent with Policy HO10 which requires the provision of such accommodation where practical. Given the absence of demand for such uses it would not be practical to provide this on site.
5.95 Overall the residential mix will comprise a wide variety of dwelling types and sizes, including aspirational housing, to meet local needs. The mix has been developed with regard to emerging planning policy requirements and responds to comments from Officers throughout pre-application discussions and is therefore considered to be acceptable.
Residential Quality and Layout
5.96 Emerging Policy SP7 seeks the delivery of high quality homes. Emerging Policy HO11 seeks the provision of 50% of all new dwellings as part of major schemes to meet Building Regulations Part M Category 2 (Accessible and Adaptable).
5.97 Emerging Policy SP8 seeks to implement the Government's optional Technical Standards relating to space, accessibility and water efficiency.
5.98 All of the proposed dwellings will be designed to be of a high quality in terms of internal layout and external design. The layout of the scheme overall will be well designed to ensure attractive residential environments for new residents. Full details will be agreed at the Reserved Matters stage.
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Residential Density
5.99 At the national level, whilst the NPPF does not set out any prescriptive guidance with regards to residential density, it encourages new proposals for residential development which optimise the capacity of sites in a manner that is compatible with the use, intensity, scale, character and grain of the surrounding area and the size of the site.
5.100 Saved District Plan Policy H8 states that the density of residential development should respect the characteristics of the site and the character and amenity of the surrounding area. In general, the net density of new housing should be between 30-50 dwellings per hectare. Higher densities will be encouraged in neighbourhood centres.
5.101 Emerging Local Plan Policy HO9 seeks for the density of developments to be appropriate to local character.
5.102 The proposals will provide a range of densities, broadly between 15-50 dwellings per hectare, as shown on the parameter plan (Drawing No. UD03 Rev I). The densities in different parts of the site are reflective of their location, the surrounding development and the proposed character of the individual development parcels. Within the new local centre and at the entrance of the site higher densities will be provided, reflective of the highly accessible nature of these parts of the site. Within the eastern parts of the site, alongside the landscaped open spaces, lower densities will be created, reflective of the character of these neighbourhoods.
5.103 The proposed densities have been developed through a design-led approach and seek to optimise the capacity of the site in accordance with national planning policy guidance, whilst also respecting the characteristics of the site and surrounding area. The proposals are therefore in accordance with national and local policy and are considered to be acceptable.
Design
5.104 The masterplan proposals have been design led in order to create a high quality new neighbourhood that responds to the surrounding context and the Council’s aspirations for the site. A detailed description of the design principles underpinning the proposals is set out in the Design and Access Statement prepared by Savills.
5.105 National and local planning policy promotes high quality and inclusive design in new development. The NPPF makes it clear that the Government attaches great importance to the design of the built environment. Good design is considered to be a key aspect of sustainable development and is indivisible from good planning.
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5.106 CABE’s guidance ‘By Design (Urban Design in the Planning System: Towards Better Practice)’ (2000) lists seven criteria by which to assess urban design principles, as follows: character, continuity and enclosure, quality of the public realm, ease of movement, legibility, adaptability and diversity.
5.107 Paragraph 9 of the NPPF seeks to achieve sustainable development through positive improvements of the building environment, including replacing poor design with better design and improving the conditions in which people live, work, travel and take leisure.
5.108 The 12 core principles set out in NPPF Paragraph 17 include taking account of the different roles and character of different areas and seeking to secure high quality design and a good standard of amenity for existing and future occupiers.
5.109 Saved District Plan Policy TW9 requires all forms of development to meet a high standard of design including integration with the urban fabric of the town and surrounding countryside and a positive relationship between buildings and open space.
5.110 Emerging Local Plan Policy SP8 requires new development to achieve the highest standards of design and states that significant developments should be masterplanned. Policy SP8 seeks to preserve and enhance the most important areas and characteristics of Stevenage whilst delivering substantial improvements to the image and quality of the town’s built fabric.
5.111 Emerging Local Plan Policy GD1 states that development should respect and make a positive contribution to its location and surrounds. Proposals should create a safe environment that designs out crime and should not lead to an adverse impact on the amenity of future occupiers, neighbouring uses or the surrounding area.
5.112 With regards to design, emerging Policy HO3 states that tall buildings will not be permitted and that building height should be a maximum of two storeys within the eastern part of the site. Policy HO3 also states that building styles and layout to the east of the site should reflect the key features of the conservation area.
5.113 The key principles of the design proposals have been set out in Section 3. The illustrative masterplan has been developed in response to the policy requirements set out above and following careful analysis of the opportunities and constraints presented by the site. In addition, the proposals have been refined in response to Officers comments received throughout the extensive pre-application discussions.
5.114 The masterplan comprises an extension to the urban area to the north of Stevenage and seeks to create a new neighbourhood which integrates with the surrounding urban fabric and countryside setting. The layout seeks to locate higher density, taller development at the west of the site, in the most accessible location, close to the site entrance, with lower densities and heights located across the majority of the development, forming a series of character areas across the site.
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5.115 The layout of the development parcels have been designed alongside areas of open space to the east and at the centre of the site. Landscaped buffers have been incorporated along the southern boundary of the site in order to protect the amenity of existing residents within neighbouring residential streets.
5.116 The layout comprises a traditional perimeter block pattern which will create permeable access across the site. The new buildings will form a strong building line along the streets, creating active frontages and providing a good sense of enclosure to the street. The development has been designed with safety and security in mind and seeks to incorporate methods to reduce the potential opportunity for crime.
5.117 In terms of building heights, as required by the emerging site allocation, there will be no tall buildings on the site, with the tallest buildings rising to four storeys, and in the east of the site the buildings will be two storeys.
5.118 The proposals include an Illustrative Layout and Design Code for the eastern part of the residential development located within the conservation area (Parcel E), in direct response to the sensitivities of this location and the need to preserve and enhance its character. The Design Code will be secured by condition and will ensure the development of a high quality and sensitive residential development in this location.
5.119 Overall the masterplan has been designed to ensure the delivery of a high quality development. The design will be finalised throughout subsequent reserved matters submissions.
Impact on Built Heritage
5.120 Part of the site is located within the St Nicholas and Rectory Lane Conservation Area and it is proposed that approximately 94 dwellings will be provided in Parcel E. The proposals also provide for the delivery of St. Nicholas’ Meadows, a large public open space, the design principles for which have had regard to reinstating the historic field pattern and meadows.
5.121 The NPPF requires proposals to conserve heritage assets in a manner appropriate to their significance. Paragraph 128 requires applicants to describe the significance of any heritage assets affected by proposed development. Paragraph 132 states that heritage assets should be conserved and that the more important the asset, the greater the weight that should be given to its conservation.
5.122 Paragraph 136 of the NPPF sets out that local planning authorities should look for opportunities for new development within the setting of heritage assets that would enhance or better reveal their significance. It advises that such development proposals should be treated favourably.
5.123 Paragraph 134 states that where a proposals will result in less than substantial harm to the significance of a heritage asset, this harm should be weighed against the public benefits of the proposal.
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5.124 At the local level, emerging Policy SP13 relates to the preservation and enhancement of the historic environment and the Council will use national guidance and legislation to review, designate and determine planning applications. Policy NH10 states that applications within, or affecting a conservation area should have regard to the relevant SPG.
5.125 SBC has adopted the St Nicholas / Rectory Lane Conservation Area Management SPG which provides guidance on layout, form and materials for use in the conservation area.
5.126 A Heritage Statement has been prepared by Woodhall in support of the planning application which provides an assessment of the significance of the conservation area and nearby listed buildings, as well as other heritage assets within the wider area, before assessing the impact of the proposals.
5.127 The proposals are considered to result in less than substantial harm to the character and appearance of the conservation area and to the setting of Rooks Nest House. Notwithstanding this, mitigation measures have been designed into the proposals, including those required by Policy HO3, for example: through reducing the density of development; the location of the majority of the aspirational housing within Parcel E which will be set in larger plots; the retention of the existing hedgerows and trees and the provision of substantial additional landscaping along the eastern boundary; the restriction of building heights to two storeys; and the provision of a Design Code that provides design principles for the development in the conservation area that reflects the guidance in the SPG. Consideration has been given to the guidance with the SPG in developing the proposals for Parcel E as required by Policy NH10.
5.128 Furthermore, the Inspector in considering the acceptability of the site in relation to the potential impact on Rooks Nest House, states the following:
“Rooks Nest House Howards is located on Weston Road, a narrow lane. It is set back from the road within maturely landscaped gardens which enclose it and significantly limit views of it. To the west of Rooks Nest House Howards and the adjacent Rooks Nest Farm (listed grade II) are agricultural fields. Nevertheless, this is an agricultural landscape of open fields as a result of modern farming practices. Consequently, much of the historic character of these fields has been lost, with the removal of field boundaries and hedges and so it appears different to how it would have done when EM Forster resided here. Also visible in this landscape is the housing development to the south of the allocated site, the extensive Lister Hospital complex to the west and numerous tall electricity pylons that straddle the fields.”
5.129 Specifically in relation to St Nicholas Church the Inspector concludes that:
The Church building and in particular its tall spire are visible from a wide area and the appreciation of its contained, heavily wooded churchyard reflect its central role within the Parish. However, the setting of the building that is experienced from the allocated site is that of a confined, wooded churchyard, with glimpsed views to land outside the churchyard. The wider landscape is within the setting of the Church, but due to the nature of the churchyard,
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site HO3 contributes little to its significance, compared to the land immediately north of the churchyard. Additionally, built development on the site would be located some distance from the Church and churchyard and would certainly not hinder the ability to appreciate it or its setting. Indeed there is modern built development much closer to the Church than this proposed development would be.
5.130 In conclusion the Inspector states that ““Overall, whilst built development here would increase significantly, I am confident that the site could be developed in a manner that protects the significance of the designated heritage assets.”
5.131 As noted, the proposals will result in less than substantial harm to heritage assets, including the conservation area and listed buildings, and therefore the harm should be weight against the public benefits of the proposal in accordance with Paragraph 134 of the NPPF. The proposals offer a significant number of public benefits as follows:
. The proposed development of the site will deliver a comprehensive new sustainable development in line with the site allocation within the advanced emerging Local Plan. This should be afforded significant weight. . The proposals will provide up to 800 new homes which will meet identified local needs, comprising a range of dwelling types and sizes and including affordable housing (30%). . The proposals will provide complementary non-residential uses for the benefit of existing and new residents. . The proposals are design-led and have evolved through detailed pre-application discussions with officers and extensive community and stakeholder engagement to provide a high quality design response to the constraints and opportunities of the site. . The proposals include the delivery of 38 hectares of public open space in the form of St Nicholas’ Meadows for the benefit of new and existing residents. The proposals seek to reintroduce elements of the historic landscape in order to preserve and enhance the conservation area. . The retention and incorporation of the existing public rights of way and providing enhanced public access to St Nicholas’ Meadows. . The proposals will provide a range of high quality landscaped spaces across the site which will enhance local habitats and biodiversity. . The proposals include the provision of a new primary school and local centre with the ability for further expansion should additional development to the north of the site come forward in the future. . The proposed development will also generate a range of financial benefits including New Homes Bonus, Council Tax generation and other site specific planning obligations.
5.132 The public benefits of would outweigh the less than substantial harm identified by the development and therefore the scheme is in accordance with Paragraph 134 of NPPF and the requirements of the site allocation.
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Landscape and Amenity Space Provision
5.133 The proposals provide a large public open space known as St. Nicholas’ Meadows, alongside a landscaped corridor running east-west through the residential development parcels, a multi-use games area, other areas of landscaping and tree planting. Full details of the landscape strategy are provided within the Design and Access Statement.
5.134 At the national level, the NPPF recognises the importance of delivering places which promote opportunities for meetings between members of the community who might not otherwise come into contact with each other.
5.135 Policy NH8 of the emerging Local Plan requires the proposals to facilitate improved public access and / or the creation of a country park. Policy HO3 further requires the retention of the open space to the east of the residential development, the incorporation of an appropriate buffer around existing power lines and a network of green infrastructure.
5.136 Policy NH7 requires on-site open space provision to be made in accordance with the standards and thresholds set out in the Council’s Green Space Strategy.
5.137 Policy L16 of the Local Plan 2004 requires the provision of children’s play spaces in accordance with National Playing Fields Association at a minimum ratio of 0.8ha per 1,000 population.
5.138 Policy L17 requires the provision of informal open space of at least 0.2ha in size for developments proposing more than 200 dwellings.
5.139 Policy L18 requires new formal and informal open space to be offered for adoption by the Borough Council with a commuted sum to cover maintenance.
5.140 Policy EN13 is expected to protect and retain individual trees or groups of trees within development sites and should include new planting where appropriate.
5.141 The landscaping strategy for the site primarily seeks the retention of the existing trees and planting throughout the site, supplemented by extensive additional planting throughout the residential parcels and St Nicholas’ Meadows.
5.142 It is proposed to reinstate the historic field structure, hedgerows, meadows and orchard in order for St. Nicholas’ Meadows to appear akin to how it would have been E.M. Forster used Rooks Nest House as the basis for his novel ‘Howard’s End’. The proposals for St. Nicholas Meadows have developed having regard to the Design Principles provided by Woodhall at Appendix 1 of the Heritage Statement.
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5.143 The proposals also include the retention and incorporation of the existing public rights of way and the provision of new permissive paths which will enhance access to the countryside in accordance with Policy NH8.
5.144 In terms of quantum, the scheme provides for approximately 38 ha of public open space provided as St Nicholas’ Meadows, a multi-use games area and children’s playspace and approximately 5 ha of other informal open and green space throughout the development. The public open space will provide significant opportunities for informal recreation and children’s play. Having regard to both emerging and adopted policy a substantial amount of open space will be provided significantly in excess of that required. It is also noteworthy that playing fields will be provided for the primary school. The form and types of open space proposed has been agreed with Officers at SBC.
5.145 In addition, the landscape corridor beneath the pylons extends to approximately 3 ha. Whilst this is not intended to be a formal open space, the provision of footpaths, attenuation ponds and planting will create a central area of interest within the development.
5.146 The detailed design of the open spaces with the residential parcels and children’s play spaces will be developed at Reserved Matters stage.
5.147 Amenity space provision for the dwellings will be determined at Reserved Matters stage; however this will be appropriate to the size and type of dwelling proposed.
5.148 Discussions are ongoing with the Council’s Parks and Amenities Department regarding the adoption and long term management and maintenance of the open space and in particular St. Nicholas’ Meadows. It is however anticipated that St Nicholas’ Meadows will be transferred to the Council with a financial contribution provided for ongoing management and maintenance.
5.149 Overall the landscaping strategy has been well designed and has been fully co-ordinated with the design of the built environment and the conservation area status. The proposals will create a high quality public open space that will enhance access to the countryside with a network of green spaces throughout the development.
Ecology
5.150 There are no statutory sites designated for their nature conservation value within the site boundary or within a 1km radius of the site. There are nine Local Wildlife Sites (LWS) fall within 1km, although only one of these (St Nicholas Churchyard) falls immediately adjacent to the site.
5.151 The hedgerow network, together with the mature tree lines found within and surrounding the site, form an important resource for wildlife in the area, facilitating movement of species between habitats and acting as a refuge in their own right. Within an intensively farmed landscape as found within the site, the value of the hedgerow network is increased given the lack of alternative semi-natural habitats.
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5.152 At the national level, NPPF Paragraph 9 seeks positive improvements in the quality of the natural environment including achieving net gains for nature and biodiversity. The NPPF seeks to minimise the impacts of development on biodiversity and geodiversity, and sets out guidance for local planning authorities to follow in developing policy.
5.153 Chapter 9 of the ES considers the effects of the proposals on biodiversity. The Chapter sets out an extensive suite of ecological values, including specific surveys for bats, badgers and birds.
5.154 As a result of the iterative assessment and design process, the proposed development includes retention of the higher value habitats, namely the hedgerows, and proposes opportunities for ecological enhancement.
5.155 Whilst the proposals will result in the loss of arable fields, a significant area of public open space will be created and enhanced for wildlife. It is proposed to reinstate traditional hay meadows and native, species rich hedgerows, which will be managed sensitively to maximise species diversity. Whilst it is recognised that a species rich grassland may take some time to establish, it is considered that there will be instant benefits to wildlife as a result of relaxing the intensive farming regime. This will lead to a significant, long-term positive effect on habitats, and species.
5.156 In addition, the existing plantation and hedgerows across the development site will be protected and enhanced, ensuring that dark corridors are maintained, allowing species to move across the site providing a connection to adjacent habitats. A gain to biodiversity is predicted to be achieved on both habitats and linear features, as a result of the proposed development.
5.157 A Landscape and Ecological Management Plan is proposed to be implemented which will aim to ensure that this biodiversity value is met and maintained in the long-term.
5.158 The Biodiversity Chapter demonstrates that the proposed development is considered to have a net gain to biodiversity and is therefore in accordance with the NPPF.
Transport and Parking
5.159 In accordance with the NPPF, all developments that generate significant amounts of movement should be supported by a Transport Statement or Transport Assessment.
5.160 Policy T6 of the Local Plan (2004) requires safe and efficient access in a way that creates an attractive living environment. As set out in Policy T12 major developments should demonstrate how the development will be served by bus. Policy T13 seeks cycleways within the development and links and improvements to the existing cycle network. Policy T14 also requires safe, direct and convenient pedestrian links within the site and improvements to the existing network.
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5.161 Policy IT4 of the emerging Local Plan advises that planning permission for developments will be granted where there will not be an adverse impact upon highway safety, and it is demonstrated that the residual cumulative impacts of development are not severe.
5.162 Emerging Policy IT5 notes that major developments must:
(a) Demonstrate how the development will be served by public transport, and
(b) Make the following provisions for pedestrians and cyclists:
(i) Safe, direct and convenient routes within the development;
(ii) Links to existing cycleway and pedestrian networks;
(iii) Appropriate means of crossing vehicle roads within, or adjacent to, the site;
(iv) Adequate landscaping and lighting of routes both within the development and on any new external links;
(v) Contributions towards improving cycleways and pedestrian routes serving the development site, where appropriate;
(vi) Secure bicycle parking provision; and
(vii) Ancillary facilities such as changing rooms, showers and lockers, where appropriate.
5.163 This application is supported by a Transport Assessment prepared by WSP in accordance with the national guidance. The Transport Assessment considers the effect of the proposed development in terms of car parking, cycle parking provision and trip generation. A Residential Travel Plan has also been provided by WSP. A framework Construction Traffic Management Plan is provided within the Transport Assessment and a final version will be secured by a suitably worded planning condition.
5.164 The vehicular access to the site will be from North Road via two signalised junctions. Approval of the detailed design of these junctions is sought as part of this application. The access has been designed having regard to relevant highways design standards and ensures a safe and effective vehicular access to the site will be provided.
5.165 The existing public rights of way within the site would be retained as required by Policy HO3 of the emerging Local Plan and in accordance with Policy NH10 of the emerging Local Plan new permissive paths will be provided throughout the site, enhancing public access to the countryside.
5.166 The internal street layout and movement network will be developed at the detailed design stage. The Design and Access Statement provides a street hierarchy to guide the development of the detailed
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internal street network at the Reserved Matters stage. The objective is to provide an internal layout that encourages the use of sustainable modes of transport, which link effectively to the existing cycleway and pedestrian networks.
5.167 Improvements to the pedestrian and cycle network will be incorporated as part of the proposals, with a new shared pedestrian and cycleway to be provided from the site along North Road to Coreys Mill roundabout. This will provide a safe and effective opportunity to link the site into the wider existing network.
5.168 Refuse collections, deliveries and other servicing would be undertaken from the North Road access for both residential and non-residential uses. Full details of the refuse and servicing strategy will be provided with Reserved Matters applications for each phase.
5.169 An assessment of the development’s trip generation and distribution has been undertaken which concludes that the principal effects would be significant traffic queues at the following locations:
. A1(M) northbound off-slip road at Junction 8;
. Graveley Road/ A1(M) Junction 8 junction; and
. Graveley Road/ North Road junction.
5.170 In order to address the identified impacts off-site highways improvements are proposed as follows:
. The re-timing of the traffic signals at A1(M) junction 8;
. The re-timing of the traffic signals at the Sainsbury access junction on Hitchin Road;
. The re-timing of the traffic signals at the Fairlands Way/Lytton Ways and Gunnel Woods Road/Martin Way roundabouts;
. The provision of new signals at the Fairlands Way/St. Georges Way roundabout; and
. The upgrade of the Graveley Road/ North Road junction to a signalised T-junction.
5.171 With the proposed package off-site mitigation measures identified above, along with the provision of a shared pedestrian and cycleway from the site to connect into the existing network and residential Travel Plan to encourage non-car modes of travel, the proposals would be acceptable in highways terms and in accordance with the NPPF and relevant policies of the existing and emerging Local Plan. It is also noteworthy that traffic and highways impact of the Local Plan was afforded significant discussion at the Examination in Public. Extensive discussions with SBC, HCC and Highways England concluded that the impacts of new development proposed by the Local Plan would be acceptable subject to appropriate mitigation measures to be tested on a site by site basis.
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Parking
5.172 Adopted Local Plan Policy T16 requires car parking provision to made at, or below, the maximum standards set out in the adopted parking standards. Policy SP6 of the emerging Local Plan requires parking provision to be made in accordance with the standards set out in SPDs. The Parking Provision SPD (2012) specifies the following for residential development:
Table 5.1: Parking requirements for residential development (Parking Provision SPD, 2012)
Maximum Car Parking Minimum Cycle Unit Size Standard Parking Standard
1 bedroom dwelling 1 space 1 long term space 2 bedroom dwelling 1.5 spaces per dwelling if no 3 bedroom dwelling 2 spaces garage or shed provided 4+ bedroom dwelling 2.5 spaces
5.173 Parking standards for other, non-residential uses are included in the SPD and those relevant to the development are set out in Table 5.2 below:
Table 5.2: Parking requirements for non-residential development (Parking Provision SPD, 2012)
Maximum Car Parking Land Use Minimum Cycle Parking Standard Standard
A1 Small food shops 1 space per 30sqm GFA 1 short term space per 150sqm GFA (up to 500sqm) plus 1 long term space per 10 maximum staff on site at any one time A2 Financial and 1 space per 30sqm GFA 1 short term space per 200sqm GFA Professional Services plus 1 long term space per 10 full time staff A3 Restaurants and 1 space per 5sqm GFA of 1 short term space per 100sqm GFA Cafes dining area plus 1 long term space per 10 maximum staff plus 3 spaces per 4 employees on site at any one time B1 Offices 1 space per 30sqm GFA 1 short term space per 500sqm GFA plus 1 long term space per 10 full time staff D1 Surgeries and 3 spaces per consulting rooms 1 short term space per consulting room Clinics plus 1 space per employee plus 1 long term space per 10 maximum staff other than consulting doctors / on duty at any one time dentists / vets
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D1 Primary schools 1 space per full time employee 1 long term space per 10 full time employees plus 1 space per 100 pupils plus 1 long term space per 15 pupils plus 1 space per 20 pupils aged under 17
5.174 As an outline application the appropriate level of car parking will be established as part of the detailed Reserved Matters application stage for each phase of development having regard to the Parking Provision SPD (2012). Disabled parking provision will be provided in accordance with the SPD.
5.175 Cycle parking provision will be determined at the Reserved Matters stage having regard to the Parking Provision SPD (2012). Notwithstanding this, cycle parking will be provided in locations which are safe, covered and secure, and where access is at least as convenient as access to car parking provision.
5.176 It is anticipated that a condition will be attached to the grant of planning permission requiring car and cycle parking provision to be made in accordance with the Parking Provision SPD (2012).
Energy and Sustainability
5.177 The proposed development has been designed with sustainability matters in mind in order to reduce the environmental impact of the new development. Full details are set out in the Energy Statement and Sustainability Statement prepared by Abbey Consultants in support of the application.
5.178 The NPPF encourages local planning authorities to adopt proactive strategies to mitigate and adapt to climate change.
5.179 At the local level, Policy EN38 of the Local Plan (2004) requires development proposals to maximise efficient energy efficiency, including incorporating the most sustainable forms of energy.
5.180 Emerging Policy SP11 requires development to minimise and mitigate its impact on the environment and climate change by considering matters relating to renewable energy, energy efficiency, water consumption, drainage, waste, pollution, contamination and sustainable construction techniques. Policy FP1 states that planning permission will be granted for developments that incorporate measures to address adaptation to climate change.
5.181 The Energy Strategy prepared by Abbey Consultants demonstrates that the development will incorporate a range of energy efficient measures in accordance with the principles of the energy hierarchy, and is expected to achieve a reduction in carbon dioxide emissions over the Part L 2013 baseline. A fabric only approach to energy efficiency and meeting Building Regulation requirements has been adopted and includes measures for Reserved Matters submissions to include, such as low energy lighting and condensing gas boilers.
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5.182 The strategy for incorporating sustainability measures in to Reserved Matters submissions is summarised below:
. Good Levels of daylight to all habitable rooms to all homes;
. External lighting will be positioned, controlled and focused such that its energy provides efficient safe and secure access. This will comprise energy efficient luminaries supported by infrared, sensor and time controls;
. Water saving sanitary ware to be specified to conserve water;
. Full Site Waste Management Plan to be developed and segregation and recycling of waste on site;
. Good site public transport accessibility;
. Site has a low risk of flooding and SUDs to be utilised as specified in the Drainage Strategy;
. Ecological enhancements to be implemented; and
. Enhanced fabric and air tightness to be utilised.
5.183 The proposals are therefore considered to be in accordance with national and local planning policy as sustainability and energy efficient methods will be incorporated into the proposals to ensure the impacts of the development on the environment are minimised and mitigated.
Air Quality
5.184 The NPPF at Paragraph 109 seeks to enhance the natural environment by preventing new development from contributing to unacceptable levels of air pollution.
5.185 Policy SP11 of the emerging Local Plan seeks to ensure that new development reduces or mitigates against pollution.
5.186 Chapter 6 of the Environmental Statement provides an assessment of the air quality impacts of the proposed development. The assessment concludes that the impacts of the both the construction and operation of the development will not be significant. Mitigation measures will be required to be incorporated during the construction phase only and comprise the implementation of a Construction Environmental Management Plan, including a dust management plan. Therefore the proposals meet the requirements of the NPPF and emerging Policy SP11.
Noise
5.187 The publication of the NPPF in March 2012 replaced the guidance set out in the PPSs and PPGs. However, in the absence of more specific guidance, the recommendations set out in PPG24 still apply.
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5.188 NPPF Paragraph 123 sets out that policies and decisions should aim to avoid noise from giving rise to significant adverse impacts on health and quality of life as a result of new development, by mitigating and reducing noise to a minimum, including through the use of conditions. In addition, the NPPF recognises that development will often create some noise.
5.189 Policy EN27 of the Local Plan (2004) states that noise sensitive uses will only be permitted if they are located where they will not be subjected to unacceptably high levels of noise exposure from noise generating uses,
5.190 Chapter 7 of the Environmental Statement provides an assessment of the noise impacts of the proposed development. The assessment concludes that the impacts from the operational phase of the development will not be significant and suitable mitigation measures can be incorporated to minimise the noise impact during the construction phase.
5.191 The site suitability study has demonstrated that road traffic noise from North Road and the more distance road network, including the A1(M), will trigger a requirement for mitigation measures on some of the more exposed elevations close to North Road. Details of the required mitigation will be provided with the relevant reserved matters applications. For clarity, the noise levels are not so severe as to suggest that any part of the site is not suitable for residential development.
5.192 The assessment concludes that the majority of the proposed development will meet the adopted residential noise criteria without any need for mitigation. The proposals are therefore considered to be acceptable with regards to noise and are in accordance with the NPPF and Policy EN27.
Flood Risk and Drainage
5.193 The Environment Agency Flood Map shows that the entire site is located within Flood Zone 1 (land assessed as having less than a 1 in 1000 annual probability of flooding from rivers). Therefore all uses of land are considered appropriate in this zone.
5.194 The EA Risk of Flooding from Surface Water Mapping shows the majority of the site has a very low risk of flooding from surface water. A localised area adjacent to the western boundary has been identified as a surface water flood risk due to the combination of a low point and North Road carriageway embankment impounding the overland flow route.
5.195 The NPPF, like PPS25 before it, states that inappropriate development in areas at risk of flooding should be avoided by directing development away from areas at highest risk.
5.196 Emerging Policy FP2 requires development proposals exceeding more than 1 hectare within Flood Zone 1 to be accompanied by a Flood Risk Assessment. Details of estimated surface water run-off and proposals for managing surface water, including maximising the use of SuDS is required to be provided with the application.
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5.197 Chapter 8 of the Environmental Statement provides an assessment of the effects on flood risk and drainage. A Flood Risk Assessment (FRA) is provided as Appendix 8.7 of the Environmental Statement which concludes that safe dry pedestrian and emergency vehicular access can be afforded to the development for events up to and including the 1 in 100 year fluvial flood event via North Road.
5.198 The proposed development incorporates a Surface Water Drainage Strategy, including SuDS, that will attenuate surface water runoff, regulate flows and volumes of surface water discharged into public sewers and provide water quality and biodiversity enhancement. The surface water drainage strategy includes a series of attenuation ponds and the detailed strategy will be provided at the Reserved Matters stage.
5.199 The Environmental Statement concludes that there are no significant impacts in terms of hydrology, drainage or flood risk. The development will not increase flood risk elsewhere, includes sustainable drainage methods to decrease surface water runoff and has been designed to take account of a potential flood event. The proposals are therefore in accordance with national guidance and emerging Policy FP2.
Archaeology
5.200 The NPPF states that where a site on which development is proposed includes or has the potential to include heritage assets with archaeological interest, local planning authorities should require developers to submit an appropriate desk-based assessment and, where necessary, a field evaluation.
5.201 At the local level, existing Policy EN9 defines areas of archaeological significance and requires the submission of archaeological field evaluation with planning applications.
5.202 Emerging Policy SP13 states that the Council will protect areas of archaeological significance.
5.203 An assessment of the archaeological context of the site and a summary of the findings of on-site archaeological trial trenching has been undertaken by CgMs and is provided at Chapter 12 of the Environmental Statement. The assessment identified the presence of Iron Age, Roman and medieval deposits; however an assessment of their significance and the implementation of a mitigation strategy comprising further investigation concludes that the proposals will have a negligible effect on below ground archaeology. The proposals are therefore considered to be in accordance with NPPF and Policy EN9.
Agricultural Land
5.204 The NPPF seeks to safeguard scarce natural resources in the long-term national interest. Consequently, policies for development in the countryside give protection to the best and most versatile (BMV) agricultural land (defined as Grades 1, 2 and 3a in the ALC). Paragraph 112 of the NPPF advises that where significant development of agricultural land is demonstrated to be necessary, local
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planning authorities should seek to use areas of poorer quality land in preference to that of a higher quality.
5.205 Agricultural land in England and Wales is graded between 1 and 5, depending on the extent to which physical or chemical characteristics impose long-term limitations on agricultural use. Grade 1 land is excellent quality agricultural land with very minor or no limitations to agricultural use, and Grade 5 is very poor quality land, with severe limitations due to adverse soil, relief, climate or a combination of these. Grade 3 land is subdivided into Subgrade 3a (good quality land) and Subgrade 3b (moderate quality land). As indicated above, land which is classified as Grades 1, 2 and 3a in the ALC system is defined as best and most versatile (BMV) agricultural land.
5.206 An assessment of the existing quality of the agricultural land has been undertaken by Reading Agricultural College at Chapter 13 of the Environmental Statement. The assessment concludes that the soils across the site are variable with approximately half the land in Subgrade 3a (33.5ha and Grade 2 (2.8ha); the remainder is lower quality Subgrade 3b (37.2ha).
5.207 Approximately half the site (38.2ha) is to remain as landscaped open space and will be managed for agriculture. The soils in this area will be preserved and therefore there should be no loss of function of the agricultural land or grade. The residual loss of agricultural land and soil is 35.3ha of which 15.4ha is classified as best and most versatile in Grade 2 (0.3ha) and Subgrade 3a (15.1ha). Whilst the proposals will result in the loss of some Grade 2 and Grade 3a agricultural land, a significant proportion of the agricultural land to be developed (20ha) is of a poorer quality and more than half of the site will be retained in agricultural use as hay meadows. It has also been demonstrated through the emerging Local Plan process that the development of the land is necessary to meet the Borough’s housing needs. As such the proposals are considered to comply with Paragraph 112 of the NPPF.
Planning Obligations
5.208 The Community Infrastructure Levy (CIL) Regulations at Regulation 122 provide limitations on the use of planning obligations. Planning obligations may only be sought where they meet all of the following tests:
. necessary to make the development acceptable in planning terms;
. directly related to the development; and
. fairly and reasonably related in scale and kind to the development.
5.209 These tests are further reinforced at Paragraph 204 of the NPPF.
5.210 The Planning Policy Guidance (PPG) recognises that any planning obligations must be fully justified and evidence and should not prevent development going forward.
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5.211 Policy TW11 of the Local Plan (2004) states that planning obligations will be sought to ensure that on and off site works, facilities, services, and other needs required by the development or to offset the impact on the environment and local amenity, that are fairly and reasonably related in scale and kind to the proposed development and which are necessary to granting of planning permission are provided or contributed to by the developer.
5.212 In addition to the planning benefits of the proposed scheme, it is anticipated that an appropriate package of Section 106 contributions will be negotiated and agreed with the Council in accordance with the statutory tests contained in Regulation 122 of The Community Infrastructure Levy Regulations (2010) and the overall viability of the proposals.
5.213 A summary of what could be included in the Draft Heads of Terms is set out below:
. Provision of St. Nicholas’ Meadows and long term management and maintenance plan;
. Land for 1.5FE primary school and financial contribution towards building costs equivalent to 1.5FE delivery;
. 30% affordable housing (split 70% rent and 30% intermediate);
. Provision of non-residential floorspace that could be used (inter alia) as a GP surgery;
. Financial contributions towards secondary school provision;
. Financial contributions towards off-site highways improvements;
. Financial contributions towards libraries;
. Financial contributions towards youth services;
. Provision of fire hydrants; and
. Residential Travel Plan monitoring.
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6. Conclusion
6.1 This Planning Statement has been prepared in support of an outline planning application (with some matters reserved) submitted to Stevenage Borough Council by Bellway Homes and Miller Homes for the residential-led development of Land at North Stevenage.
6.2 This application proposes a residential led development of up to 800 dwellings, up to 1,800 sqm of flexible non-residential floorspace (Use Classes A1 / A2 / A3 / A4 / B1 / D1 / D2) which could include a GP surgery and a nursery, provision of up to a 2FE primary school, provision of approximately 38 ha of open space and associated highways, drainage and landscaping works.
6.3 The application proposals are consistent with the emerging site allocation HO3 and have been developed through extensive pre-application discussions with SBC and other stakeholders. The Local Plan has been subject to Examination in Public and the Inspector’s Report concludes the Plan passes the criteria for soundness set out in the NPPF. As such, in accordance with Paragraph 214 of the NPPF, significant weight can be afforded to the Local Plan policies. Consideration of the application will take place alongside the finalisation and adoption of the Local Plan.
6.4 A summary of compliance of the proposed scheme with emerging Policy HO3 is set out below. That part of the allocation that is to be removed from the Green Belt is entirely consistent with the part of the application site that is proposed for development. The area covered by the proposed public open space lies within the land to be retained as Green Belt.
Land to the North of Stevenage, as defined by the proposals map, is allocated for the development of approximately 800 dwellings.
The proposed outline application comprises the provision of up to 800 dwellings.
A Masterplan for the whole site will need to be submitted as part of an outline planning application. The Masterplan must be approved prior to the submission of detailed development proposals for the site.
This application seeks outline planning permission for the entire site supported by an illustrative masterplan and parameter plans. No detailed development proposals have been submitted at this stage.
Development proposals will be permitted where the following criteria are met:
a. The applicant can demonstrate that development can be expanded beyond the Borough boundary, and fully integrated with a wider, cross-boundary scheme;
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As set out above and illustrated within the Design and Access Statement, the layout of the proposed scheme has been developed to facilitate integration with a wider cross boundary scheme. The proposals allow for the expansion of the local centre and school located adjacent to the boundary, alongside the extension of a loop road through the site.
b. Satisfactory vehicular access is provided. At least two access points to and from the site will be required, which link effectively into the existing road, cycleway and pedestrian networks;
Two access points will be provided from North Road creating a through link within the site for pedestrians, cyclists and vehicles. The Transport Assessment demonstrates this is an appropriate and safe approach ensuring the site links in effectively to the existing road network.
c. The scheme is designed to encourage the use of sustainable modes of transport;
Provision has been made for the extension of existing bus routes through the site. A cycle path will also be provided along North Road, linking into the existing network at Corey’s Mill Lane. Existing public rights of way will be retained and new permissive paths provided to retain and enhance pedestrian connectivity to the wider area. The scheme will therefore facilitate the use of sustainable modes of transport.
d. At least 5% aspirational homes are provided in line with Policy HO9;
5% of residential units will be provided as aspirational homes.
e. Plots to accommodate at least 1% new homes are made available for self-build purposes;
1% of residential units will be made available for self-build purposes.
f. 30% affordable housing is provided in line with policy HO7;
Provision of 30% affordable housing is incorporated in the proposals, split 70% for affordable rent and 30% for shared ownership.
g. Provision for supported or sheltered housing is made in line with Policy HO10;
The Council’s Housing Team has advised that there is no need for supported or sheltered housing. As such, in accordance with Policy HO10 it is not considered practical to provide such housing.
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h. Local facilities to serve the community are incorporated, including a GP surgery, subject to demand;
Up to 1,800sqm of non-residential floorspace is proposed within Use Classes A1 / A2 / A3 / A4 / B1 / D1 / D2. This will create a local centre and provide local facilities for everyday needs within the development. This floorspace could be used to provide a GP surgery if there is an identified demand.
i. A primary school is provided in line with the most up-to-date evidence of need;
The proposals provide serviced land for a 1.5FE primary school with a financial contribution proposed to construction costs. Land for a further 0.5 FE has been safeguarded for HCC to acquire at market value should they wish to provide a 2FE school that addresses demand from other residential development in the borough.
j. A skate park or MUGA for children is provided on-site;
A MUGA will be provided at the heart of the residential development area.
k. A full archaeological assessment is undertaken;
This has been undertaken at Chapter 12 and associated appendices of the Environmental Statement.
l. A full flood risk assessment is undertaken;
This has been undertaken at Chapter 8 and associated appendices of the Environmental Statement.
m. The proposal seeks to preserve or enhance the conservation area, including the setting of adjacent listed buildings. The following mitigation measures should be incorporated;
i. As much of the requirement for aspirational homes (criteria d) as possible should be met on the part of the site that lies within the conservation area. Development within this area should also be heavily landscaped to reduce the visual impact of development;
It is proposed to incorporate the majority of the aspirational housing within the conservation area as detailed in the Design Code and Illustrative Layout for Parcel E.
ii. Existing hedgerows should be maintained and additional screening implemented to reduce the visual impact of the development;
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Existing hedgerows within the conservation area will be retained and supplemented by extensive new planting, including copses, hedges and trees.
iii. Tall buildings will not be permitted. Building heights will be a maximum of two storeys within the eastern part of the site;
Building heights are restricted to two storeys within the conservation area.
iv. No vehicular access to the site will be permitted from the east of the site, across the open fields;
No vehicular access is proposed from the east of the site across the open fields. All vehicular access will be from North Road.
v. Existing Public Rights of Way are retained and designed into the development, where possible, and diverted where necessary; and
The existing Public Rights of Way have been retained and incorporated into the proposed scheme.
vi. Building styles and layout within the conservation area to the east of the site should reflect the key features of the conservation area.
The proposed building styles and layout takes design cues from existing buildings within the conservation area. The varied nature of building styles in the conservation area ensure the proposals complement this rather than copy. Further details on the design principles for this area are provided within the Design Code.
n. The scheme incorporates a network of green infrastructure, with an emphasis on high quality landscaping within and around the development to reduce the impact of the development on the surrounding greenfield / Green Belt land; and
Extensive open space and landscaping is provided within the development, including St Nicholas’ Meadows, the landscape corridor and open spaces throughout the residential parcels. The proposed network of open space connects into the existing network within the surrounding area.
o. An appropriate buffer around existing power lines is incorporated;
An appropriate development buffer is provided around the retained 440kv power lines; however a landscape corridor will be provided comprising drainage basins, planting and informal footpaths. No buffer is required around the undergrounded 132kv cables.
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p. Electric car charging points are provided at an easily accessible location within the site.
Electric car charging points will be provided with the details to be provided at the reserved matters stage.
As part of any development proposal, we will the open space to the east of the boundary to be retained as such, either via a Legal Agreement or through the transfer of land to the Borough Council.
Provision is made within the draft Heads of Terms for St Nicholas’ Meadows to be transferred to the Borough Council. A financial contribution is proposed for the ongoing management and maintenance, the details of which are to be agreed with the LPA.
6.5 In addition to the above, the application proposals will provide a wide range of planning benefits for the site and surrounding area, as set out below:
. The proposed development of the site will deliver a comprehensive new sustainable development in line with the site allocation within the advanced emerging Local Plan. This should be afforded significant weight. . The proposals will provide up to 800 new homes which will meet identified local needs, comprising a range of dwelling types and sizes and including affordable housing (30%). . The proposals will provide complementary non-residential uses for the benefit of existing and new residents. . The proposals are design-led and have evolved through detailed pre-application discussions with officers and extensive community and stakeholder engagement to provide a high quality design response to the constraints and opportunities of the site. . The proposals include the delivery of 38 hectares of public open space in the form of St Nicholas’ Meadows for the benefit of new and existing residents. The proposals seek to reintroduce elements of the historic landscape in order to preserve and enhance the conservation area. . The retention and incorporation of the existing public rights of way and providing enhanced public access to St Nicholas’ Meadows. . The proposals will provide a range of high quality landscaped spaces across the site which will enhance local habitats and biodiversity. . The proposals include the provision of a new primary school and local centre with the ability for further expansion should additional development to the north of the site come forward in the future. . The proposed development will also generate a range of financial benefits including New Homes Bonus, Council Tax generation and other site specific planning obligations.
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6.6 This Planning Statement has assessed the material considerations arising from the proposals against the prevailing planning policy framework and has demonstrated that on balance the scheme complies with the relevant national, regional and local planning policy guidance. It is therefore respectfully requested that the proposals are recommended for approval.
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Appendix 1 – EIA Scoping Report
Bellway Homes & Miller Homes November 2017 Planning and Engineering Head of Planning and Engineering: Zayd Al-Jawad
Catherine Bruce
Savills 33 Margaret Street London W1G 0JD Our Ref: 16/00635/PREAPP Your Ref: * Contact: Clive Inwards Direct Line: 01438 242922 e-mail: [email protected]
Date: 15th December 2016
Dear Ms Bruce,
TOWN AND COUNTRY PLANNING ACT (ENVIRONMENTAL IMPACT ASSESSMENT) (ENGLAND AND WALES) REGULATIONS 2011 (AS AMENDED) REGULATION 13: SCOPING OPINION REQUEST
16/00635/PREAPP: RESIDENTIAL DEVELOPMENT AT LAND AT NORTH STEVENAGE
A scoping opinion has been requested to be undertaken by this Council on the above proposal to facilitate the preparation of an Environmental Statement. In order to facilitate the completion of this scoping opinion a number of consultees have been contacted and the information submitted as part of the scoping request has been fully considered by Stevenage Borough Council. Those parties that were contacted at this stage are as follows:
- Natural England - Historic England - Environment Agency - Stevenage Borough Council Environmental Health - Hertfordshire County Council as Highway Authority - Hertfordshire County as Lead Local Flood Authority - The Herts and Middlesex Wildlife Trust - The Archaeological Officer at Hertfordshire County Council - Highways England
A number of responses have been received from the above and their comments have been included within this scoping opinion. At this stage no response has been received from either the County Council as Highway Authority or Highways England. The formal period for the scoping opinion to be adopted was 10 October 2016; however, you have agreed an extension until 15th December due to the delay in receiving comments back from Natural England. Should any further comments be forthcoming these will be sent on to you.
Response from Natural England
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Natural England has no comments to make. The lack of comment from Natural England does not imply that there are no impacts on the natural environment, but only that the application is not likely to result in significant impacts on statutory designated nature conservation sites or landscapes. It is for the Local Planning Authority to determine whether or not this application is consistent with national and local policies on the natural environment. Other bodies and individuals may be able to provide information and advice on the environmental value of this site and the impacts of the proposal to assist the decision making process.
Response from Historic England
This development could, potentially, have an impact upon a number of designated heritage assets and their settings in the area around the site. In line with the advice in the National Planning Policy Framework (NPPF), we would expect the Environmental Statement to contain a thorough assessment of the likely effects which the proposed development might have upon those elements which contribute to the significance of these assets.
Our initial assessment shows the attached list of designated heritage assets within 2km of the proposed development. We would draw your attention, in particular, to the following:
94-98 High Street, Stevenage – Grade II* Church of St Mary, Graveley – Grade I Church of St Etheldrada, Graveley – Grade II* The Grange, 31 High Street, Graveley – Grade II* The Old Farmhouse at Stebbing Farm. The Dairy at Stebbing Farm. The Tudor House at Stebbing Farm – Grade II*. 131 High Street, Stevenage – Grade II* Church of St Nicholas, Stevenage – Grade I Rooks Nest House Howards, Stevenage – Grade I Church of St Mary the Virgin, Little Wymondley – Grade II* Wymondley Bury, Little Wymondley – Grade I The Grange, 5 High Street, Stevenage – Grade II* 2 Letchmore Road, Stevenage – Grade II* The Old Bury, Rectory Lane, Stevenage – Grade II* 156 High Street, Stevenage – Grade II* Chesfield Church – Scheduled Monument Old Malt Houses and Kiln, High Street – Scheduled Monument Rectory Lane and St Nicholas Conservation Area
There is guidance available to assess the impact on heritage assets as set out in The Landscape Institute and the Institute of Environmental Management and Assessment. We have also published guidance entitled ‘The Setting of Heritage Assets (2011)’. This provides advice on managing change within the setting of heritage assets.
We would strongly recommend that you involve the Conservation Officer at Stevenage and the archaeological staff at Hertfordshire HER Service in the development of this assessment. They are best placed to advise on: local historic environment issues and priorities; how the proposal can be tailored to avoid and minimise potential adverse impacts on the historic environment; the nature and design of any required mitigation measures; and opportunities for securing wider benefits for the future conservation and management of heritage assets. The assessment should also take account of the potential impact which associated activities (such as construction, servicing and maintenance, and associated traffic) might have upon perceptions, understanding and appreciation of the heritage assets in the area. The Page 2 of 10
assessment should also consider, where appropriate, the likelihood of alterations to drainage patters that might lead to in situ decomposition or destruction of below ground archaeological remains and deposits, and can also lead to subsidence of buildings and monuments.
Any future application should contain sufficient information to enable the significance of the heritage assets which would be affected and the potential impacts of this significance to be fully understood. The use of photomontages is generally required in order to enable an independent assessment of the impacts to be made. We would welcome the opportunity to make further comments on the proposed study area and viewpoints in due course.
Further to these comments the Local Planning Authority has sought advice from their appointed Conservation Advisor on the points raised by Historic England which is set out below:
“Ideally any proposed radius around the outer boundary of the site should be based upon a zone of theoretical visibility; however paragraph 16 of Historic England Advice Note 3, ‘The Setting of Heritage Assets’ states that Local Authorities are encouraged to work with applicants to minimise the need for detailed analysis of very large numbers of heritage assets. Advice should be provided to direct assessment towards the most significant or sensitive assets. In this case the most sensitive assets can be summarised as follows: St Nicholas/ Rectory Lane Conservation Area; Rooks Nest House Howards (grade I listed); Rooks Nest Farmhouse (grade II listed); L-Shaped Outbuildings west of Rooks Nest Farmhouse (grade II listed); The Old Bury (grade II* listed); and Church of Saint Nicolas (grade I listed). Other assets are near to the proposal site and their setting should be examined: Graveley Conservation Area; Crow End (grade II) in Graveley; West View Cottage, and Kate’s Cottage (grade II) in Graveley; The Cottage (grade II) in Graveley; Numerous listed buildings at Graveley Bury; Numerous listed buildings at Graveley Hall Farm and Graveley Hall; Church of St Mary (grade I) in Graveley; Church of St Etheldrada (scheduled monument and grade II* listed building); Manor Farmhouse (grade II) north west of Chesfield Park; Boundary Wall and Gate Piers to Garden on South West and West of Manor Farmhouse (grade II) north west of Chesfield Park; Moonhill (grade II listed); Dominic Cottage (grade II listed); Milestone Opposite Number 9 (Mushroom Cottage) (grade II listed) in Graveley; and George and Dragon Public House (grade II listed) in Graveley (there are other adjacent listed buildings in this part of Graveley, however the Milestone and George and Dragon are the nearest to the site).
Undesignated assets that have a heritage significance within the immediate area include Chesfield Park, to the north of the site. Development should consider the contribution made to the significance of this park from its setting.
In terms of the area indicated by the application a proportion of the red line boundary is within the St Nicholas/ Rectory Lane Conservation Area. The Conservation Area includes a Page 3 of 10
significant area of, what is presently, open agricultural land. The land has a significance, as it has been included within the Conservation Area boundary. The Conservation Area Assessment includes views across character zone two, from the west corner of the Conservation Area north east towards Rooks Nest/ Howards and Rooks Nest Farm that are across the area proposed for redevelopment.
The study needs to assess the significance of heritage assets, and for those assets where affects upon the setting of assets the study needs to understand how the setting of such assets contributes to their significance, not simply place them within the local, regional or national context against national criteria.”
Additionally, you will be aware of ongoing discussion with the Council’s Landscape Consultant in relation to location of the viewpoints. The currently submitted viewpoints nos. 1-8, 11, 14, 15 and 16 are fine and it is not considered that there will be any visibility of the site from points 9, 10 and 12 due to the topography. However, an additional viewpoint on the elevated PROW between Graveley and site has been recommended.
Response from the Environment Agency
Having reviewed the information submitted we have no concerns with the decisions made regarding the topics which have been included in the scoping report.
Response from Stevenage Borough Council’s Environmental Health Department
I would agree that the hospital and leisure centre are not likely to cause any noise issues and we do not have any complaints in relation to noise emanating from these premises. There may also be some aircraft noise but otherwise all sounds fine.
The condition that you refer to in our Planning Policy would be considered in relation to cases where BS8233 can’t be met, but I suggest you confirm this with our Planning Department.
Response from Hertfordshire County Council as Lead Local Flood Authority
As the Lead Local Flood Authority we will assess surface water drainage assessment and Flood Risk assessments as part of a formal full / outline application. A FRA should be carried out to demonstrate that the proposed development will not create an increased risk of flooding from surface water to the development site and the surrounding area. It should be carried out in accordance with the National Planning Policy Framework and the National Planning Practice Guidance.
Due to the nature of the development we will expect the development to demonstrate that the surface water drainage from the development can be managed in a sustainable manner, giving priority to above ground storage and source control. By giving preference to infiltration, then discharge to a watercourse thereafter surface water sewer.
We would expect any FRA submitted to support any future planning applications to demonstrate that the proposed drainage system can be designed to cater within the site and the post development surface water run-off rates and volumes for its lifetime for all rainfall events up to and including the 1 in 100 year rainfall event + 40% allowance for climate change. The FRA should also demonstrate that any existing areas of surface water flood risk can be managed within the site without increasing flood risk elsewhere.
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Where it will be proposed to infiltrate ground investigations should be carried out and provided within the FRA. This should include detailed assessment of ground conditions, groundwater levels, permeability of the underlying geology, with infiltration tests carried out in accordance BRE Digest 365. The FRA should also demonstrate that there will be sufficient surface water quality treatment by implementing an appropriate amount of water quality treatment stages through the use of SuDS. We would recommend a minimum of two SuDS treatment stages should be provided to manage any potential contaminants from surface water run-off from car parking areas and access roads.
We note the site lies over a ground water source protection zone 3 Total catchment Source protection zone, we recommend the applicant consults the Environment Agency in relation to water quality.
Details of required maintenance of any SuDS features and structures and who will be adopting these features for the lifetime of the development should be provided. It is up to the Local Planning authority to ensure that the drainage/SuDS system can be managed for the lifetime of the development.
We note that there are ordinary watercourses within the site. We would like to remind the applicant that any works proposed to be carried out that may affect the flow within an ordinary watercourse will require the prior written consent from the Lead Local Flood Authority under Section 23 of the Land Drainage Act 1991. This includes any permanent and or temporary works regardless of any planning permission.
As the watercourses may be fully part of the drainage scheme and in order to ensure the proposal is achievable and viable for the long term we require further details of the proposed works in the FRA. We will assess the detailed engineering proposals for the works to be carried out in the watercourse and the impact assessment as part as the Consent process.
As part of the consent process we also would require Water Directive Framework Assessments to be undertaken. The Hertfordshire WFD Guidance is available online http://www.hertfordshire.gov.uk/services/envplan/water/floods/ordwatercourse/hertswfd/
In relation to the works on the ordinary watercourses within the site boundary we would advise that the applicant looks at the relevant consenting information on our website at: http://www.hertfordshire.gov.uk/services/envplan/water/floods/ordwatercourse/consent/
We recommend that the applicant consults the LLFA prior to developing their detailed drainage strategy. The applicant should note that we charge for pre-application consultation. If the applicant wishes to use this service they should refer to our pre-application guidance which can be found online here: http://www.hertfordshire.gov.uk/services/envplan/water/floods/surfacewaterdrainage/preappg uide/
For further guidance on HCC’s policies on SuDS, HCC Developers Guide and Checklist and links to national policy and industry best practice guidance please refer to our surface water drainage webpage http://www.hertfordshire.gov.uk/services/envplan/water/floods/surfacewaterdrainage/
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Further to the above and specifically on the Water Directive Framework (WFD) issue the LLFA has further advised that whilst HCC are not responsible for monitoring, classifying or developing objectives for ordinary watercourses under the WFD, as a co-deliverer of the WFD, HCC has a duty to support the Environment Agency and to consider objectives defined in RBMPs when undertaking its statutory flood risk management duties in relation to ordinary watercourses, as well as downstream impacts on main rivers.
All the guidance they can provide is available on their website http://www.hertfordshire.gov.uk/services/envplan/water/floods/ordwatercourse/hertswfd/ If the applicant may have any specific questions after reading this guidance, we would be happy to advise on this basis.
Response from the Archaeological Office at Hertfordshire County Council
Background and Assessment of Potential
The site forms an extensive area to the north of modern Stevenage, south-east of Graveley and to the west of Great Ashby. Consequently, there are numerous Historic Environment Record (HER) entries that lie close to the site. A single entry (HERE no. 16257) is located on the site and records possible ‘ridge and furrow’ earth works which are likely to date to the medieval period. The south-eastern boundary lies on the edge of a deserted medieval village (HER: 1019) which was served by the surviving Church of St Nicolas (HER: 846). Another abandoned medieval settlement lies to the north-east at Chesfield (HER: 1004), along with its ruined church (HER: 35) and Graveley is a ‘shrunken’ medieval settlement (HER: 2691). It is likely that at least parts of the site formed the outlying field systems for these settlements and possible that some settlement activity was also present on the site.
A desk-based assessment for the site (CgMs, 2013) notes that the site may fall under the estate of a Roman villa at Chels and on the margins of a second villa estate at Wymondley. A Roman road runs 500m to the west (HER: 4635) and an assessment of nearby Lob’s Farm (2005) suggests the site lies roughly in the vicinity of a Romano-British farmstead.
Recommendations
Given the potential for the presence of archaeological features and the very large scale nature of the proposal, I believe that this development should be regarded as likely to have an impact on significant heritage assets with archaeological interest, some of which may be of sufficient importance to meet NPPF, P139. This could represent a significant constraint on development.
Therefore, if an application were to be received, I would recommend that the following investigations could be undertaken prior to determination to assess the type, scale, and quality of heritage assets likely to be affected by the proposal:
1. A geophysical survey over the entire site where ground conditions permit; 2. An archaeological field evaluation to test the geophysics results and quantify the archaeological resource.
An informed decision can then be made with reference to the impact of the proposal on the historic environment. Where archaeology is identified, but does not meet NPPF, P139, an appropriate level of archaeological mitigation can then be secured by negative condition (NPPF, P141).
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Current Works
I am aware that following our original advice, the developer commissioned a geophysical survey of the site and this office has received greyscale plots of the results and a cursory interpretation. However the full report has not yet been submitted to this office for review and would be required before we could advise you further.
A trial trench evaluation is also proposed, based on the results of geophysical survey, but an acceptable Written Scheme of Investigation has not yet been agreed. It should be noted that the current trial trench proposal does not cover the full extent of this proposal and it would need to be extended to encompass the whole site.
Further to this response it is understood that the County Archaeologist has been to site to view the trial trenching that has been undertaken and thus the archaeological work has been progressed since this response.
Formal Scoping Opinion
It is the view of the Council that the key areas that should be addressed in the ES are:
Landscape character and visual impacts; Impacts on heritage assets; Agricultural land and farming circumstances; Flood risk and drainage; Ecology; Archaeology; Transport and access; Air quality; Operational noise impacts; Socio-economic impacts.
Additionally, the approach to the cumulative assessment, set out in your email of the 2nd December is accepted.
At this stage no response has been received from Hertfordshire County Council as Highway Authority or Highways England. Should any further comments be forthcoming these will be sent on to you.
The ES will need to cover the proposed mitigation measures that are put forward to assist in avoiding, reducing and if possible remedying the identified adverse impacts. However, it is important that the main alternatives considered when establishing the proposed measures are detailed together with the reasoning behind the approach that has been adopted. The details of residual impacts will need to be detailed together with the secondary impacts that may be generated by the mitigation measures proposed.
The proposed methodologies to monitor the success of the mitigation measures will also need to be set out in the ES along with potential contingency measures, if applicable, that could be explored or employed if the monitoring regime reveals that the mitigation measures employed are not functioning as envisaged.
The following environmental issues have been ‘scoped-out’ of the ES because their effects on the environment are considered unlikely to be significant. However, an assessment of those issues in the form of environmental topic reports should be provided in the Supporting Statement as follows: Page 7 of 10
Ground conditions as the site is undeveloped and the phase 1 report confirms the site is at low risk; Impacts arising from construction. It is considered that these issues can be addressed in a Construction and Environmental Management Plan; Odour impacts; Energy and waste management.
You will note that the Local Planning Authority therefore agrees with the conclusions reached in the Environment Impact Assessment Scoping Report August 2016 which sets out the issues to be scoped in the Environmental Statement and those to be scoped out, as above.
You will appreciate that the provision of this Scoping Opinion is based upon the details received on the proposal to date and does not preclude Stevenage Borough Council from subsequently requiring the submission of further information if it is considered that it is necessary.
If you require any further information please do not hesitate to contact me.
A copy of this scoping opinion will be placed on the Planning Register.
Yours sincerely,
Zayd Al-Jawad HEAD OF PLANNING AND ENGINEERING
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APPENDIX A: COMMENTS FROM NON-STATUTORY CONSULTEES APPENDED FOR INFORMATION PURPOSES
Response from the Herts and Middlesex Wildlife Trust
Ecological information needs to be submitted to support the application. It should be consistent with BS 42020 and apply the DEFRA Biodiversity Impact Assessment metric to measure net ecological impacts on habitat. Ecological information should clearly, definitively and measurably show: what is there, how it will be affected by development, how any negative impacts can be avoided, mitigated or compensated to ensure net gains to biodiversity as required by NPPF.
NPPF, paras 109 and 118 state: 109 “the planning system should contribute to and enhance the natural and local environment by: • minimising impacts on biodiversity and providing net gains in biodiversity where possible, contributing to the Government’s commitment to halt the overall decline in biodiversity, including by establishing coherent ecological networks that are more resilient to current and future pressures.”
118 “When determining planning applications, local planning authorities should aim to conserve and enhance biodiversity by applying the following principles: • opportunities to incorporate biodiversity in and around developments should be encouraged.”
In order to objectively assess the ecological value of the land proposed for development a consistent and fair methodology should be employed. It is not sufficient to subjectively state that no net loss will be achieved, this must be measured. The implementation of an acceptable methodology should ensure appropriate mitigation or compensation resources are provided to achieve the conservation and enhancement of biodiversity, as required by NPPF. Therefore it is recommended that the biodiversity impact calculator (BIC Environment Bank 2015) should be employed to assess the pre and post development ecological value of this development. The calculator must show a net gain in ecological units in order for the development to demonstrate that it is consistent with NPPF. The requirement to demonstrate net gain is consistent with BS 42020 Biodiversity - code of practice for planning and development.
The reason for the application of the calculator is that it provides an objective mechanism to measure ecological impacts of any given development. It is transparent and ensures a measurable, standard and fair approach for developers and the local authority to provide consistency in assessing and calculating ecological impacts and therefore the required mitigation and or compensation measures. Without the application of the calculator, assessments of precise ecological impacts are subjective. The calculator has been devised by DEFRA, Natural England, several Local Authority Planning departments and upheld in a number of planning decisions as a suitable mechanism to assess net gain.
These proposals involve the destruction of a large greenfield site (albeit one of low intrinsic value – arable land) and are therefore highly likely to have a negative impact upon biodiversity if unmitigated. The applicant will need to demonstrate how the development minimises impacts on biodiversity, provides net gains in biodiversity, and conserves and enhances biodiversity, in accordance with NPPF. At present no information has been submitted to objectively assess ecological impacts, sufficient for the LPA to make an
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informed decision as to whether net gain has been achieved. BS 42020 is clear that it the responsibility of the applicant to supply sufficient information to make this judgement.
Opportunities to incorporate biodiversity in and around developments will also be required. Integrated bat and bird boxes will need to be incorporated into the brickwork of buildings bordering open space, in accordance with NPPF. The model, location and position of these devices will need to be included on the plans. Conventional bat and bird boxes are not acceptable because they are vulnerable to vandalism, theft and are not as permanent as integrated devices.
In order to maximise the habitat value of created and retained habitats either on or offsite details of species, establishment regimes, management regimes and funds to secure on- going management of these habitats must be supplied. Habitats and species should be native, appropriate, and local provenance where possible and should be guided by the Herts Ecological Networks Mapping priorities for the area. All mitigation, compensation, enhancement, habitat creation measures must be definitively stated in the application and marked on maps. It is not acceptable to state what could or should be provided, only what 'will' be provided in order to ensure post development enforcement.
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Planning Statement
Land North of Stevenage
Appendix 2 – SBC Pre-Application Advice
Bellway Homes & Miller Homes November 2017 Planning and Engineering Head of Planning and Engineering: Zayd Al-Jawad
Catherine Bruce Your Ref: * Savills Our Ref: 16/00635/PREAPP 33 Margaret Street Contact: Clive Inwards London Direct Line: 01438 242837 W1G 0JD E-Mail: [email protected]
Without Prejudice 20 December 2016
Dear Ms Bruce
RE: RESIDENTIAL DEVELOPMENT COMPRISING UP TO 800 HOMES, A PRIMARY SCHOOL, LOCAL CENTRE, PUBLIC OPEN SPACE AND ASSOCIATED HIGHWAYS AND LANDSCAPING WORKS. AT: LAND EAST OF NORTH ROAD, STEVENAGE, HERTS
I write further to your pre-application request dated 29th November 2016, our recent pre-application meetings and the Planning Performance Agreement dated 13th September 2016 in relation to the above.
I have now had an opportunity to assess your proposal and to visit the site. Please note that my comments below are at officer level and are without prejudice to any decision that may be made on any subsequent planning application.
Land Use Policy Considerations
The site is located within the Green Belt as identified by the Stevenage District Plan Second Review 1991-2011. Within this area policy TW6 of the District Plan applies. Policy TW6 states that “within the Green Belt, except in very special circumstances, planning permission will not be granted for development for purposes other than: buildings for agriculture or forestry, essential facilities for outdoor sport and outdoor recreation, cemeteries, limited extension, alteration or replacement of existing dwellings, other uses which preserve the openness of the Green Belt and do not conflict with the purposes of including land in the Green Belt and the re-use of buildings.” Any planning application submitted in the near future will thus have to justify the very special circumstances for allowing development in the Green Belt.
However, you are aware of the emerging Stevenage Borough Local Plan 2011-2013 and policy SP7 ‘High Quality Homes’ which seeks to provide 1,350 new homes to the north and south-east of the town on land removed from the Green Belt. Emerging policy HO3 details the specific elements that a proposal on the North of Stevenage site should seek to achieve. As such the weight to be attached to the emerging Local Plan at the time that a decision is taken on any planning application for this proposal will be key. Given the anticipated timescales for making a decision, it is likely that the proposal will be assessed against the detailed considerations of policy HO3 of the emerging Local Plan.
Planning and Engineering Head of Planning and Engineering: Zayd Al-Jawad
The eastern part of the site is also within the St. Nicholas / Rectory Lane Conservation Area as identified by the St. Nicholas / Rectory Lane Conservation Area Management Plan Supplementary Planning Document (SPD) and specific regard will need to be had to this designation.
In relation to detailed matters I have responded to the advice sought in the order that they are set out for ease of reference.
Response to Advice Sought
1 & 2 The parameters of the development set out in plans UD02E, UD03D, UD04D and UD05C are considered to be broadly acceptable. Specifically, the land use parameters set out on drawing number UD02E are as we have discussed at our meetings and are a logical way to develop the site. Siting the primary school and local centre to the north of the site would meet criterion (a) of emerging policy HO3 in that it is demonstrating that the proposal could be expanded beyond the Borough boundary and could serve a wider, cross-boundary scheme. In relation to land use parcel E a key consideration will be the impact of this element on the conservation area and this will be picked up further under points 12 and 15.
The approach to the density of development as set out on drawing number UD03D is considered to be appropriate and logical responding to the conservation area and developing at higher densities closer to North Road and the Primary School. This approach is accepted and the specific densities indicated are also considered to be acceptable.
The height parameters set out on drawing number UD04D are considered to be acceptable with the key issue being the height of dwellings being no more than two storeys in the conservation area.
Finally, the green infrastructure indicated on parameter plan UD05C is also considered to be appropriate subject to the detailed comments of the Council’s Parks and Amenities Team with regard to the management of St. Nicholas’ Meadows and the detailed comments of the Council’s Landscape Consultant with regard to the linear nature of the central SuDS corridor.
3 The provision of a local centre would accord with adopted policy TW4 and emerging policy HO3 point h. Additionally, the provision of flexible floorspace within the Use Classes A1, A2, A3, A4, B1, D1 and D2 is considered to be acceptable and has previously been accepted on similar outline proposals for residential development with ancillary mixed use elements. If there is no demand for such space then a planning application to change the use of part or some of these units would be considered by the Local Planning Authority.
4 & 5 As discussed at our meetings, the general mix of housing proposed is considered to be reasonable, appropriate and would accord with emerging policy HO3 in relation to aspirational housing. In general it is recognised that the urban extension sites will accommodate more of the larger family homes required given that the town centre sites are likely to provide predominantly smaller units. I am still awaiting confirmation from the Council’s Assistant Director of Housing with regard to the proposed affordable housing mix and the provision of independent living units within this mix and I will provide these comments in due course.
6 In relation to the provision of land for a primary school, I have followed the correspondence with the County Council with interest and would be likely to refer to their detailed advice on this issue. I note from the latest correspondence that the County Council is requesting a 2FE site in this instance and that they are stating that if the half FE were not required it would not be returned for residential development.
Planning and Engineering Head of Planning and Engineering: Zayd Al-Jawad
7 I understand that there is ongoing discussion with the County Council as Highway Authority with regard to the specific highways issues. Notwithstanding this, two accesses into the site from North Road are considered to be appropriate and would accord with emerging policy HO3 point b.
8 As above, I will need to see the detailed comments of the Highway Authority in relation to the package of highways mitigation measures proposed. Again, notwithstanding the advice from HCC, the re-routing of bus services in to the site would assist in promoting more sustainable modes of transport to the private car and is broadly welcomed. Similarly, upgrades to pedestrian and cycle networks within the vicinity of the site and ensuring that they link in with the proposed networks within the site would be encouraged and expected and should form a key part of the proposal.
9 As per the Local Planning Authority’s scoping opinion response there is agreement with the currently submitted viewpoints nos. 1-8, 11, 14, 15 and 16 and it is not considered that there will be any visibility of the site from points 9, 10 and 12 due to the topography. As previously stated an additional viewpoint has been recommended on the elevated PROW between Graveley and the site.
10 The approach to the creation of St. Nicholas’ Meadow as publicly accessible open space is welcomed in principle although there will need to be ongoing discussions with the Council’s Park and Amenities Team regarding the long term management of this area. Notwithstanding this, returning this area to historic field patterns is considered to be a pleasing attention to detail and responds, in part, to the Forster Country issue. The opening up of this area and the introduction of new footpaths is considered to be in accordance with emerging policy HO3.
11 I am awaiting formal confirmation from the Parks and Amenities Team on how they would wish to see this area maintained and managed and I will revert in due course.
12 The provision of the aspirational housing on the eastern boundary of the site together with additional planting is considered to be acceptable in principle and accords with emerging Policy HO3 point m. At our recent meeting we have discussed the possibility of ‘breaking up’ the eastern most run of aspirational houses as the current sketch layout (UD06A) does appear to form a linear and ‘hard’ edge to the development, notwithstanding the augmenting landscaping on the eastern boundary. We have discussed if there is scope to seek to soften the built form on this boundary by shifting or re-orientating the dwellings or their garages within their plots and perhaps demonstrating views through this area of development from the east. The Local Planning Authority is seeking a looser, less formal arrangement on this eastern boundary.
13 The proposed approach to surface water drainage appears to be acceptable in principle but I will take technical advice on this from Hertfordshire County Council as the Lead Local Flood Authority, the Council’s Parks and Amenities Team and also our appointed Landscape Consultant. As set out in points 1 & 2 above there is an initial comment that the SuDS corridor is very linear and more information on how this would look in reality would be useful.
14 The provision of a landscape corridor beneath the retained pylons is acceptable and has been used successfully elsewhere. However, this should be more than just a grassed strip and should be incorporated into the detailed design of the main part of the site such that it becomes an attractive feature that the nearest residential properties can look out onto rather than turn their back to this area. This corridor provides the opportunity to provide a distinctive and valuable landscape.
Planning and Engineering Head of Planning and Engineering: Zayd Al-Jawad
15 With regard to the general approach to the layout of the housing within the conservation area as shown on drawings UD06A, UD07A and UD08A the only comment is that drawing reference UD06A does appear to demonstrate a rather conventional layout, whereas the Local Planning Authority is again looking for a less formal arrangement in this low density area. The Local Planning Authority will expect a Design Code to accompany any planning application for the development within the conservation area.
16 As set out in points 1 and 2 above the proposed densities and building heights across the site are considered to be acceptable.
Planning Requirements
With regard to Policy TW11 of the District Plan ‘Planning Requirements’, the County Council will expect the necessary developer contributions that are set out in their ‘Planning Obligations Guidance – Toolkit for Hertfordshire’ set out on their website and I have previously forwarded on the County Council’s response to the pre-application consultation dated 9th November 2016.
Parking Standards
The Local Planning Authority requires 1 space per unit for a one bedroom property, 1.5 spaces per unit for two bedrooms, 2 spaces per unit for a three bedroom property and 2.5 spaces per unit for a four + plus bedroom property. The site falls outside of any accessibility zone and therefore these standards would be expected to be met. In addition covered and secure cycle parking would be expected to be provided at 1 space per unit if no garage or shed is provided.
Impact on Amenity
With regard to impacts on amenity, any planning application will need to demonstrate that the proposed dwellings do not result in any detrimental overlooking of neighbouring buildings and do not result in any adverse loss of light or overbearing impacts. The closest residential properties to the proposed residential element are those in Granby Road, Underwood Road, Chouler Gardens, The Brambles, Thurlow Close, Arnold Close and Morgan Close to the south of the application site. Relationships between proposed buildings would also be expected to meet the separation distances set out in the Stevenage Design Guide.
Other Issues
In relation to technical issues, the site lies within Flood Zone 1, however as the proposal would exceed the 1 hectare threshold the Environment Agency would be consulted on any planning application.
With regard to walking and cycling the Local Planning Authority will wish to ensure that this site is fully integrated into the existing networks and opportunities for improvements to the existing networks are explored.
In relation to your email of the 12th December regarding the possible upgrading of the existing footpath through the site to a bridleway, the most logical and potentially safest approach, would appear to be to divert the bridleway around the residential development, however, it is noted that the eastern boundary of the residential development is set aside for mature tree planting. As such there is broad support for any necessary diversion or extinguishment or the appropriate vehicular crossings of the bridleway in accordance with Department for Transport guidance on equestrian crossings.
Planning and Engineering Head of Planning and Engineering: Zayd Al-Jawad
I would like to take this opportunity to inform you that each planning application is determined on its merits and that the individual circumstances of each site are taken into consideration also. The application forms can either be downloaded from the Council’s web site or an online submission can now also be made at the Planning Portal, www.planningportal.gov.uk.
I trust this information is of assistance to you. Should you wish to discuss the matter further, please do not hesitate to contact me on the above number.
Please be advised that the information provided is an officer’s informal opinion only and does not prejudice any decision made by the Council in any way. Furthermore, this letter does not imply approval under the Planning or Building Regulations, Byelaws or any other Act.
Yours sincerely
Clive Inwards Principal Planning Officer For the Head of Planning and Engineering