Residential development comprising 250 no. dwellings with associated access roads, open space and landscaping
Land between Kiddrow Lane and Scott Street, Burnley
Planning Statement incorporating;
S106 Draft Heads of Terms Affordable Housing Statement Playing Field and Open Space Assessment Heritage Impact Assessment
McDermott Homes Ltd
October 2017
Contents
Page
1. Introduction 1 2. Site and surroundings 4 3. Proposed development 6 4. Relevant planning policy 10 5. Planning assessment 21 6. Summary and conclusion 46
Appendices
1. Burnley Borough Council pre-application advice letter 2. Strategic Housing and Employment Land Availability Assessment 2017 pro-forma
3. Correspondence with Sport England
4. Listed Buildings and Register Parks and Gardens - Listing Descriptions
Smith & Love Planning Consultants Ltd 5 Albert Edward House The Pavilions Preston, PR2 2YB Tel. 01772 831861 www.smithlove.co.uk
Land between Kiddrow Lane and Scott Street, Burnley October 2017 McDermott Homes Ltd
1 Introduction
1.1 This planning statement has been prepared by Smith & Love Planning Consultants on behalf of McDermott Homes (“the applicant”) in support of a detailed planning application for the redevelopment of the former Hameldon Community College and Habergham High School 6th Form Centre (the Hameldon Schools sites), between Kiddrow Lane and Scott Street, Burnley.
1.2 The description of the proposed development is as follows1;
Full planning application for the erection of 250 no. dwellings with associated access arrangements, car parking, open space and landscaping.
1.3 The site is located in the Habergham district of Burnley and is accessible to a wide range of local services including shops, schools, healthcare and other community facilities. It benefits from good public transport connections to Burnley and Padiham town centres and other locations, and is a highly sustainable and suitable location for new housing.
1.4 This planning statement sets out the context for the development, including a description of the site and surroundings, the proposed development and the relevant planning policy framework. It assesses the merit of the proposals against the identified policy framework and other material considerations, and concludes that planning permission should be granted without delay in accordance with the relevant policies of the adopted Burnley Local Plan Second Review and the National Planning Policy Framework presumption in favour of sustainable development.
Summary of the planning application
1.1 This statement demonstrates that:
The application site occupies a suitable and highly sustainable location for housing development, located within the urban area of Burnley and benefitting from good access to local services and facilities, including Burnley and Padiham town centres;
The proposed development will help to meet identified market housing needs in Burnley and will make a valuable contribution to boosting short term delivery and the five year housing land supply in the Borough;
The development is consistent with the relevant spatial objectives and general policies of the Burnley Local Plan Second Review which seek to ensure that a choice of high- quality family and aspirational housing is available for existing and future residents;
1 Demolition of the existing school buildings and associated structures is not included within the planning application as Lancashire County Council previously applied for prior notification of proposed demolition in February 2015, and confirmation was given that demolition is permitted development and prior approval of the proposed method of demolition is not required (see Relevant Planning History - Chapter 2).
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Whilst parts of the site are designated playing fields and open space, it includes significant areas of previously developed land, has no current recreational value or ecological value and only limited visual value. The proposed development is therefore compliant with the exception criteria set out in Policies CF1 and CF3;
The proposal will have no, or negligible, effect on the setting and significance of designated heritage assets within the wider vicinity of the site. It will have less than substantial harm and will deliver a wide range of public benefits;
The development proposals are capable of meeting all of the relevant requirements of other technical and development management policies identified;
Material considerations have been assessed and provide further support to the application proposals. In particular the development would accord with the principles of sustainable development as set out in Framework, the Development Brief for the site and the emerging policies of the Burnley Local Plan to 2032;
1.2 The statement concludes that the proposed development is fully compliant with the relevant policies of the adopted Burnley Local Plan Second Review and Government policy aimed at significantly boosting housing supply and widening choice. Therefore, and having regard to all other material considerations, there is a compelling case for planning permission to be granted without delay, in accordance with the presumption in favour of sustainable development.
Supporting information
1.1 This Planning Statement should be read together with the following list of supporting information submitted with the planning application, in accordance with the Council validation requirements;
a) Application drawings:
Location plan Existing site plan topographic survey Proposed site layout plan Proposed house type floor plans and elevation drawings Proposed street scene views
b) Application form and reports:
Application form and ownership certificate Design and access statement Playing fields and open space assessment (included in this Planning Statement)
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Affordable housing statement (included in this Planning Statement) Viability report (available separately upon request) Heritage impact assessment (included in this Planning Statement) Crime impact assessment Waste management, refuse and recycling statement Biodiversity survey and report Tree survey and arboricultural impact assessment Flood risk assessment Sustainable drainage and foul sewage assessment Phase II Geo-environmental site investigation report Coal mining investigation and risk assessment report Transport assessment Travel plan S016 draft Heads of Terms (included in this Planning Statement)
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2 Site and surroundings
2.1 The application site lies in an accessible location in Habergham in the western part of Burnley, approximately 2.8 km from the town centre and 1.4 km from Padiham town centre. It is an irregularly shaped area of land of approximately 10.7 hectares, comprising the redundant secondary school buildings and grounds previously occupied by Hameldon Community College2 prior to its relocation to a new site in 2010, and the former Burnley 6th Form Centre3 (part of Habergham High School) which has been vacant for a similar period of time.
2.2 The former Hameldon Community College campus is approximately 3 hectares and occupies the western part of the site, with a frontage onto Scott Street but is accessed from Byron Street, and comprises a variety of single and multi-storey brick buildings, hardstandings, sports courts / athletics track and car parking. The former Habergham High School 6th Form Centre is also approximately 3 hectares and faces Kiddrow Lane (A646) at the eastern edge of the site, and comprises a stone building erected in 1951 with tennis courts to the rear and car parking to the front. The undeveloped 4 hectare area between the school campuses, comprises their former playing fields and an area of woodland, and slopes very gently down from north to south.
Figure 1: Site Location Plan
2 Formed in 2006 from the merger of Ivy Bank Business and Enterprise College (previously Ivy Bank High School until 2002) and Habergham High School 3 Previously Burnley High School for Girls prior to its merger with Burnley Grammar School in 1981 to create Habergham High School
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Surrounding area
2.3 Adjoining the site to the north, is the newly-built Burnley High School campus which opened in April 2017 (planning permission ref. APP/2015/0270). This occupies the site of the northern campus formerly occupied by Hameldon Community College (previously Habergham High School and Burnley Grammar School). This new free school is a three storey building occupying the footprint of the former school and aligned on the same orientation. It is set within landscaped grounds and retains existing areas of hardstanding and car parking.
2.4 Between Burnley High School and Kiddrow Lane, the northern boundary of the application site adjoins the retained playing fields and sports pitches previously belonging to Hameldon Community College and now used jointly by Burnley High School and the local community.
2.5 Established residential areas lie to the east and west of the site, with 1930s semi-detached housing facing the site on Kiddrow Lane, and a combination of traditional terraced houses on Byron Street and Scott Street to the west, as well as more modern bungalows and newer detached housing on Cowley Crescent and Printers Fold.
2.6 The southern boundary of the site is lined entirely by the wooded valley of Sweet Clough and the Sweet Clough Greenway footpath and cycleway, linking Kiddrow Lane and Scott Street, and extending further east to Lockyer Avenue and south to housing on Lowerhouse Lane.
2.7 The site occupies a highly accessible, sustainable location within an established residential community. There are frequent bus services and adjacent stops on Kiddrow Lane, Scott Street and Padiham Road connecting to Burnley and Padiham town centres, and Rose Grove Railway Station lies 0.85 km to the south, providing a frequent service to Blackburn, Preston and Manchester. There are walking and cycle routes on-street and via the Sweet Clough Greenway to the south, and the surrounding urban area contains a range of local shops, food and drink outlets and community services and facilities, including primary and secondary schools, a 6th Form (opening in 2019 at Burnley High School), children’s nurseries, a health centre and pharmacy, places of worship, community / social centres and parks, recreation and play areas.
Relevant planning history
2.8 Joint applications (refs. PD/2015/0001 and PD/2015/0002) were made by Lancashire County Council in February 2015 for prior notification of the proposed demolition of the former Habergham High School and the former Hameldon Community College (Ivy Bank High School) buildings. Confirmation was given on the 25th February 2015 that the demolition of both schools is permitted development under Schedule 2, Part 31, Class A of the Town and Country Planning General Permitted Development Order 1995 as amended, and that prior approval of the proposed method of demolition is not required.
2.9 Aside from permanent and temporary planning permissions for operational development and facilities related to the former schools occupying the land, there is no other relevant planning history associated with the application site.
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3 Proposed development
Introduction
3.1 The application seeks full planning permission for residential redevelopment, comprising a range of 250 no. high-quality family dwellings with associated landscaping, public open space, infrastructure and access roads, following the demolition of the existing school buildings and clearance of the site. Full details of the proposal are provided in the accompanying Design and Access Statement and the planning application plans, elevations and supporting documents.
Layout
3.2 The proposed housing occupies a net developable area of 7.76 ha, giving an average density of 32 dwellings per hectare, and is arranged in two parcels on the east and west parts of the site separated by a central area of retained open space. This extends partially along the northern boundary and along the Kiddrow Lane frontage, and the existing woodland is retained on the southern boundary. The housing is designed to provide active frontage onto Kiddrow Lane and Scott Street, and houses will also be positioned to face onto the central area of open space where a children’s play area will be provided. New footpath and cycle connections will be provided along the northern edge of the site to Burnley High School, through the central open space to the Sweet Clough Greenway, and to Scott Street, Byron Street and Kiddrow Lane.
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Figure 2: Proposed Site Layout Plan
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Schedule of accommodation
3.3 The development will provide a range of high-quality, three and four bedroom detached and semi-detached homes as follows;
Size of Number of Semi-detached Detached dwelling dwellings No. % No. %
3 bedroom 130 (53%) 83 64 47 36
4 bedroom 120 (47%) 0 0 120 100
Scale and appearance
3.4 A range of 12 no. individual house-type designs are proposed as follows;
4 no. x three bedroom semi-detached designs; 3 no. x three bedroom detached designs, and; 5 no. x four bedroom detached designs.
3.5 The proposed house types are two storey designs other than 30 no. ‘Churchill’ designs which are two and a half stories with dormer bedroom accommodation that are spread throughout the development. The main facing material is artificial stone which will be used for every dwelling, with brick and render variant designs, and grey concrete tiled roofs. Windows will be white uPVC and entrance and garage doors, fascias and rainwater goods will be black uPVC.
Landscaping
3.6 High-quality landscaping will be provided throughout the development, including a 20 metre wide landscaped frontage to Kiddrow Lane retaining existing trees wherever possible and the stone boundary wall, landscaping within the central open space, the retained woodland and landscaping along the tree-lined northern boundary.
3.7 All houses will be provided with front and rear gardens and tree planting / landscaped verges will be provided in the street scenes. Various boundary treatments will be used including brick / timber screen walls / fences, and close boarded fencing and timber knee rails around plots.
Access and parking
3.8 Vehicular access will be provided from Kiddrow Lane (A646) via a single access road with landscaped visibility splays to either side. This will connect to a hierarchy of estate roads, cul
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de-sac accesses with turning heads and private drives. An emergency vehicular access is provided from Scott Street and pedestrian and cycle links will be provided to Burnley High School, Byron Street, Kiddrow Lane, Scott Street and the Sweet Clough Greenway. The development can be safely accommodated on the local highway network and no off-site junction improvements or other works are required.
3.9 All of the proposed houses will be provided with at least two off-street car parking spaces, via a combination of either integral or detached garages and/or private driveways.
Section 106 draft Heads of Terms and Affordable Housing
3.10 A Section 106 Agreement will be prepared in support of the planning application to ensure that the effects of the proposed development on local infrastructure are appropriately mitigated. The proposed planning obligation Heads of Terms are as follows, subject to meeting the appropriate statutory tests4 set out in paragraph 204 of the Framework;
1) Playing Field Contribution - the payment of an agreed commuted sum to Burnley Council for the installation of a scheme of drainage improvement works at the Lockyer Avenue playing fields and Burnley High School playing fields;
2) Education Contribution - the payment of an agreed commuted sum to Lancashire County Council towards the cost of any additional primary school places that are required in the local catchment area as a direct result of the development, and;
3) Sustainable Transport Contribution - the payment of an agreed commuted sum to Lancashire County Council towards the cost of any sustainable travel measures that are required as a direct result of the development.
3.11 A detailed viability appraisal of the proposed development has been undertaken and this demonstrates that it is unfortunately not possible to provide any affordable housing in connection with the development, in addition to the above S106 obligations. (see Affordable Housing Statement at Section 5 - Planning Assessment).
Pre-application engagement
3.12 The planning application is submitted following an extensive period of detailed pre-application discussion and liaison with the following statutory consultees and technical advisors that has informed the design, scale and layout of the proposed development;
4 These are i) necessary to make the development acceptable in planning terms; ii) directly related to the development, and iii) fairly and reasonably related in scale and kind to the development and kind, as set out in Regulation 122(2) of the Community Infrastructure Levy Regulations 2010
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Burnley Borough Council - Local Planning Authority Burnley Borough Council - Greenspace and Amenities Lancashire County Council - Local Highway Authority Lancashire County Council - Local Lead Flood Authority Lancashire County Council - Local Education Authority Sport England Football Association Regional Facilities and Investment Manager Environment Agency Coal Authority
3.13 A copy of the pre-application advice letter (ref. JFL/ENQ/2016/0278) received from the local planning authority on the 20th September 2016, is enclosed at Appendix 1.
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4 Relevant planning policy
4.1 Relevant policy is provided at national level by the National Planning Policy Framework and its associated Planning Practice Guidance, and local policy and guidance is provided in the adopted Development Plan for Burnley. The emerging replacement Burnley Local Plan 2012 to 2032 has reached publication stage and was submitted for examination to the Secretary of State on the 20th July 2017, with the hearing sessions due to begin on the 7th November 2017.
Development Plan
4.2 For the purposes of this application, the adopted development plan comprises the saved version (Saving Direction 2009) of the Burnley Local Plan Second Review of April 2006 which sets out the Council’s strategy for the use of land for the period to 2016.
4.3 Whilst the saved Local Plan remains in force until it is replaced by the emerging Local Plan, it is becoming increasingly out of date and the degree of weight that can be attached to its policies depends on their consistency with the Framework, and particularly its relevant policies for the supply of housing to meet objectively assessed needs.
4.4 The extract of the proposals map (Fig. 3 below) identifies the application site as ‘white land’ within the urban area of Burnley (Policy GP1). The former playing field located between the schools (shown green) is identified as Playing Pitches (Policy CF1) and other parts of the site (shown yellow) are identified as Other Areas of Open Space (Policy CF3). The Sweet Clough valley along the southern boundary of the site is identified as a Wildlife Corridor (Policy E3).
Figure 3: Extract from the Burnley Local Plan Second Review Proposals Map
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4.5 Saved Policy GP1 aims to make efficient use of urban land by concentrating new development within settlement boundaries. It applies an additional sequential approach that prioritises the re- use of brownfield land and buildings which is inconsistent with the Framework, albeit 56% of the application site comprises previously developed land (see also Policy H2 below). Policy GP1 also expects new development to minimise the use of resources; reduce the need to travel by being accessible to existing services and facilities by walking, cycling and public transport; promote social inclusion; protect residential amenity, areas that contribute to public amenity and the built and natural environment, and provide safe and efficient highway access.
4.6 Saved Policy CF1 protects playing pitches from redevelopment unless one or more exceptional criteria apply whereby:
a) there is an excess of recreation provision in the catchment and the site has no special significance to the interests of sport; b) development is ancillary to the principal use of a site as a playing field and does not affect the quantity or quality of pitches or adversely affect their use; c) a facility can be retained and enhanced through redevelopment of part of the site and does not result in the loss, inability to use or reduction in size of any playing pitch; d) development will provide new / improved pitches and ancillary facilities of at least equivalent community value within the immediate area, or; e) development is for a new indoor or outdoor sports facility that outweighs the detriment caused by the loss of a playing field/s.
4.7 Saved Policy CF3 permits development within designated areas of open space where a site can be incorporated into the East Lancashire Regional Park; development will enhance the recreational and amenity value of the open space; it is not of a size or scale that detracts from the character of the area; it will not have a detrimental effect on residential amenity, nature conservation or features of historic value, and addresses ant access or safety issues.
4.8 Policies GP3 (Design and Quality) and H3 (Quality and Design in New Housing Development) require new development to make a positive contribution to local character and be of good design quality. Policy E5 (Species Protection) seeks to ensure that protected species are not adversely affected by new development and provision is made to facilitate their survival, reduce any disturbance to a minimum, and provide adequate alternative habitat/s where necessary.
4.9 Of the saved housing policies, Policy H1 (strategic requirement) is now time-expired and Policy H2 (sequential release of non-allocated housing land) is not consistent with the Framework (see Policy GP1 above). Parts of Policy H2 can be given weight however and confirms that windfall housing development within the urban area will be supported where it will bring previously developed land back into use; is close to local facilities and services; is or can be served by public transport, and it satisfies the criteria of Policy GP1 and GP3.
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4.10 Policy H3 seeks to achieve high quality and design in new housing development in terms of materials, size, scale and siting relative to its context and landscape setting; creating a sense of place; providing a range of house types and designs; protecting amenity and providing adequate amenity space and landscaping; providing safe pedestrian access incorporating traffic calming measures, and providing off-street car parking in accordance with Council standards.
4.11 Saved Policy H4 seeks to ensure adequate choice is provided in new housing development in terms of a mix of types, sizes and tenures, and encourages the provision of Lifetime Homes where possible. Policy H5 seeks the provision of at least 10% affordable and/or special needs housing in developments of 25 or more dwellings, or sites of 1 ha or more. Need is assessed on a site by site basis, taking account of the type and character of housing in the local area; proximity to local services, and the latest housing needs assessment information.
4.12 Policy H6 seeks to achieve net densities that make the most efficient use of land. A target of 30 to 50 dwellings per hectare is sought on windfall housing sites in locations with good public transport accessibility, subject to any site-specific considerations. Policy H7 requires on-site public open space to be provided in accordance with the Fields in Trust (NPFA) standard of 0.3 ha per 50 dwellings (2.4 ha per 1000 population). This should be in a single location and usable, safe and accessible to all residents, together with an equipped children’s play area.
4.13 A number of other saved policies concern amenity and environmental considerations but do not need to be summarised in detail. These include;
Policy GP6 landscaping Policy GP9 crime prevention Policy E4/5 ecology and protected species Policy E6 trees and hedgerows Policy E8 flood risk Policy E10 development affecting listed buildings Policy E15 locally important buildings Policy TM1 locating major traffic generating uses Policy TM4 sustainable transport Policy TM15 parking standards
Other material considerations
Hameldon and Habergham Urban Village Development Brief 2015
4.14 The Hameldon and Habergham Urban Village Development Brief was prepared on behalf of Lancashire County Council Regeneration Property Partnerships in March 2015. It provides the context for the redevelopment of the site and sets out a series of guiding design and master planning principles that indicate how the land can be developed; the general form of
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development that will be acceptable and the constraints within which development will take place. It results from detailed assessment of baseline information and planning policy, initial option testing, market testing and consultation with Burnley Council.
4.15 The illustrative Development Option (Figure 4 below) shows a yield of up to 260 dwellings to either side of a central area of open space between the retained Burnley High School playing fields and Sweet Clough Greenway, and demonstrates how the site can be used efficiently, making maximum use of the brownfield land and modest development on adjoining land.
Figure 4: Hameldon and Habergham Urban Village - Development Option
Emerging Burnley Local Plan to 2032
4.16 The preparation of the replacement Burnley Local Plan covering the period 2012 to 2032, has reached an advanced stage. The Proposed Submission version (with Minor Modifications) was submitted to the Secretary of State in July 2017 and the examination is now in its initial stages, with hearing sessions scheduled to begin in November 2017.
4.17 The relevant principal draft policies confirm;
Policy SP2 - the strategic housing requirement for the 20 year plan period is 4,180 net additional dwellings, equating to an indicative average of 209 dwellings per annum.
Policy SP4 - the spatial development strategy maintains the focus of new development on Burnley (as the Tier 1 Principal Town) where large scale, major and a variety of smaller housing developments will deliver a choice of house types and tenures.
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Strategic housing needs cannot be met in full on previously developed sites and Policy HS1 proposes a number of green and brownfield housing allocations. The application site is identified as Housing Allocation Site HS1/1 with a yield of 250 dwellings (see Figure 5 below). Proposed site specific requirements and design principles seek;
- high quality development providing a minimum of 60% 3+ bedroom detached and semi-detached houses, and at least 50% detached dwellings; - vehicular access from Kiddrow Lane with only an emergency (and cycle and pedestrian) access onto Scott Street; - playing pitches should be retained and/or replaced by equivalent or better provision in the locality, and planning contributions may be required as per draft Policy IC4; - an equipped play area and footpath link to the Sweet Clough Greenway; - the layout and design of the development should take account of the risk of flooding; - a substantial central area of multi-functional green infrastructure, and; - development should take account of the local archaeological interest of the former Ivy Bank House to the south of the site
Figure 5: Extract from the draft Burnley Local Plan Proposed Submission Policies Map
4.18 Other draft housing policies include;
Policy HS2 - which seeks provision of an element of on-site affordable housing provision on sites of 10 dwellings or more unless it is demonstrated to be unviable; Policy HS3 - which seeks to ensure all new development makes efficient use of land appropriate to its location and surroundings, and new housing development achieves a density of at least 25 dph and an appropriate mix of dwelling types;
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Policy HS4 - which sets out a number of design and specification requirements for new housing development including privacy and amenity standards, open space and children’s play requirements and Lifetime Homes provision.
Emerging Burnley Local Plan to 2032 Evidence Base (relevant documents)
4.19 A number of documents have been prepared to inform the emerging Local Plan. Those relevant to the application site and proposed development, are;
1) Burnley Strategic Housing Market Assessment 2016 (SHMA)
4.20 Aside from establishing the OAN range to inform the proposed housing requirement for the plan period, this identifies the qualitative strategic housing market issues facing Burnley. Its recommendations, informing the proposed housing policies and allocation sites, are;
1) there is a compelling need to improve the local housing offer in Burnley in terms of both the quantity and quality (choice of type, size and location) of new homes to be delivered in the plan period. New housing is critical to attracting investment into the local economy to create new jobs and improve community infrastructure;
2) the housing offer must be designed to retain and attract younger and economically active households to Burnley, and to counter out-migration and the decline in the working-age population, and the impact of an ageing population. A suitable mix of new housing must be delivered to create economically mixed communities and diversify the historically imbalanced housing stock to meet identified needs and aspirations;
3) there is a predominant stock and over-supply of old, poor quality two bedroom terraced property in Burnley, compared to semi-detached stock and a low level of detached properties. The provision of modern, higher-quality detached and semi-detached homes will help to redress this imbalance and stem out-migration and attract higher-earning households to the area, and improve overall job growth prospects. Around 35% of the total market stock delivered in the plan period should be two, three and four bedroom semi-detached houses, and 20% should be detached three and four bedroom housing.
4) Providing an improved mix of new housing types across the Borough is therefore essential. There is a continuing need for new dwellings of all types and sizes, including a strong need for three and four bedroom family homes and larger, detached ‘aspirational’ housing, to be delivered in suitable and sustainable locations, to encourage a greater number of households to remain in the Borough whilst moving up the housing ladder, and to attract and retain economic migrants moving into Burnley in competition with nearby wealthier housing market areas.
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4.21 The SHMA also points out that due to the underlying viability and affordability issues in Burnley, it is important that the Local Plan allocates housing sites that are commercially attractive to housebuilders and developers, and can deliver housing that local people can afford.
4.22 It is similarly recommended that the Council adopts a flexible approach to applying this advice when dealing with planning applications for new housing development, as the very low level of housing viability can be compromised by an unsuitable (i.e. undeliverable) housing mix.
2) Burnley SHMA Addendum Update 2017
4.23 This was requested by the Local Plan Inspector ahead of the Examination Hearings to update the findings of the 2016 SHMA by taking the ONS 2014 based population projections for Burnley into account and the DCLG 2014 based household projections. The effect is a new OAN range in light of this new evidence, of between 103 and 220 dpa. This aligns with the 117 to 215 dpa OAN range recommended previously.
4.24 The update also considers the effect of the DCLG ‘Planning for the right homes in the right places’ consultation (September 2017) and the Standardised Approach to OAHN Calculations. The approach would generate a low level of housing need compared to the proposed requirement of 209 dpa in emerging Local Plan, but allows LPAs to align their housing target with economic growth ambitions if they wish, and clearly states that where a local plan is based on an assessment of local housing need in excess of that which the standard method would provide, then Inspectors are advised to work on the assumption that the approach adopted is sound unless there are compelling reasons to indicate otherwise.
4.25 In addition, little, if any, weight can be attached to proposed standardised method at this stage as it is a consultation draft that has yet to be finalised, and the proposed Transitional Arrangements make clear that if a local plan has been submitted for Examination on or before 31st March 2018 or before the updated Framework is published, a LPA should continue with its plan preparation using the current approach. As Burnley Borough Council submitted its Local Plan to the Secretary of State on the 20th July 2017 and the Examination Hearings will begin in November 2017, the current approach should remain unaltered.
3) Strategic Housing and Employment Land Availability Assessment 2017 (SHLAA)
4.26 The application site is included in the schedule of deliverable sites as the Former Hameldon Schools Sites ref HEL/043, and is confirmed as being suitable, available and achievable for the delivery of 250 dwellings.
4) Burnley Local Plan Examination - Housing Factsheets 2017
4.27 Building on the SHLAA and Local Plan Background Paper 1: Site Allocations, the Local Plan Inspector asked the Council to produce a set of factsheets for each of the proposed housing
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allocation sites ahead of the Examination Hearings, to identify their planning status, representations and key information about current uses, designations and proposed dwelling yields and delivery timescales.
The Burnley / Pendle Growth Corridor
4.28 The Burnley and Pendle Growth Corridor is a strategic highway and economic development initiative promoted by the two Councils, Lancashire County Council and the Lancashire Enterprise Partnership (LEP).
4.29 It is one of five individual components of the East Lancashire Connectivity Study, itself a key priority for the East Lancashire Highways and Transport Masterplan 2015, and comprises a £12m Corridor Improvements Scheme to provide and enhance access to a number of existing and future strategic employment sites across Burnley, Pendle and Hyndburn in close proximity to the M65. Highway improvements will be carried out at 18 no. junctions on the M65 with associated transport and rail improvements, to provide additional capacity on the highway network and to reduce congestion, in support of economic growth across the corridor area.
4.30 The map extract from the Lancashire County Council assessment work at Figure 6 below shows the Growth Corridor (shaded blue) and a number of the key economic development sites across Burnley, together with the emerging Local Plan housing allocation sites. This shows the location of the application site (Site H6) relative to the Growth Corridor and its proximity to existing and proposed strategic employment sites.
Figure 6: Burnley / Pendle Growth Corridor Investment Sites and Housing Options
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Burnley Housing Land Supply Position Statement - July 2017
4.31 This sets out the Council’s supply position for the period 2017/18 to 2021/22 calculated against three strategic net housing requirement scenarios - the former RSS / 2010 Interim Target figure of 130 dpa; the 2016 SHMA minimum ‘policy off’ figure of 117 dpa and the proposed submission version Burnley Local Plan to 2032 figure of 209 dpa. The Council considers that a 5 year housing land supply can be demonstrated against each scenario.
4.32 The calculation using the proposed Local Plan housing requirement is based on a supply of 2,129 dwellings comprising deliverable planning permissions, a windfall allowance, an empty homes allowance and an anticipated supply of 538 dwellings from proposed housing allocation sites based on the emerging Local Plan housing trajectory, which includes a 5 year contribution of 130 dwellings from the proposed application site (HS1/1 - Former Hameldon School Sites).
National Planning Policy Framework
4.33 The National Planning Policy Framework (“the Framework”) sets out the Government’s policies for the planning system and how it expects them to be applied positively and pro-actively to deliver sustainable growth and housing to meet objectively assessed needs.
4.34 It endorses the merits of a plan-led system and confirms that applications for planning permission must be determined in accordance with the development plan, unless material considerations including the Framework indicate otherwise. It makes clear that for development plan policies to be afforded full decision-making weight (for the purposes of Section 38(6) of the Planning and Compulsory Purchase Act 2004), they must be up-to-date (i.e. prepared in accordance with the 2004 Act) and consistent with the Framework. Paragraph 216 confirms that emerging plan policies can also be given weight according to their stage of preparation, the number of unresolved objections against them and degree of consistency with the Framework.
4.35 The Ministerial foreword states that the purpose of the planning system is to contribute to the achievement of sustainable development, and that development which is sustainable, should go ahead without delay. Paragraph 7 confirms the economic, social and environmental dimensions of sustainable development and states these are inter-dependent and should not be treated in isolation in the consideration of planning issues.
4.36 Paragraph 14 explains that the ‘presumption in favour of sustainable development’ lies at the heart of the Framework, and 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 planning permission unless any adverse impacts of doing so would significantly and demonstrably outweigh the benefits, when assessed against the policies in the Framework taken as a whole, or its specific policies indicate development should be restricted.’
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4.37 Paragraph 17 also sets out twelve Core Planning Principles underpinning plan-making and decision-taking. These are intended to shape and influence the sustainable attributes of development proposals, but are also aimed at the process, requiring the operation of the planning system by local planning authorities to;
not simply be about scrutiny, but to be a creative exercise finding ways to enhance and improve places; and to, pro-actively drive and support sustainable economic development to deliver the homes, development and places the country needs.
4.38 Paragraph 18 confirms the Government is committed to securing economic growth and that the planning system should do everything it can to support sustainable economic growth. It should encourage and not impede sustainable growth and this includes the contribution new housing development can make to the local labour force and helping to facilitate economic inward investment.
4.39 A key objective of the Framework, emphasised by the recent White Paper ‘Fixing our Broken Housing Market’ (DCLG, February 2017), is to ‘boost significantly’ the supply of housing by making sufficient land available of the right type, in the right places and at the right time. To do this, local planning authorities must;
use their evidence base to ensure that their Local Plan meets the full, objectively assessed needs for market and affordable housing in the housing market area, as far as is consistent with the policies set out in the Framework (paragraphs 47 and 159)
identify and maintain a deliverable5 five year supply of housing sites with an additional buffer of 5% or 20% so there is a realistic prospect of achieving the planned supply and to ensure choice and competition in the market (paragraph 47)
consider all planning applications for housing development in the context of the presumption in favour of sustainable development. Relevant policies for the supply of housing should not be considered up to date if a local planning authority cannot demonstrate a deliverable five year supply of housing (paragraph 49); and,
4.40 In addition, paragraph 50 requires a wide choice of quality homes to be delivered to create sustainable, inclusive and mixed communities, by;
5 Footnote 11 confirms that for a site to be considered deliverable, it should be available now, offer a suitable location for development now, and be achievable, with a realistic prospect that housing will be delivered on the site within five years and that development of the site is viable.
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planning for a mix of housing based on current and future demographic trends, market trends and the needs of different groups in the community; identifying the size, type, tenure and range of housing that is required in particular locations, reflecting local demand; and, setting policies to meet the need for affordable housing.
4.41 Finally, paragraphs 186, 187 and 197 of the Framework expect local planning authorities to approach decision-taking in a positive and pro-active way and apply the presumption in favour of sustainable development to help foster its delivery.
4.42 The remaining sections of the Framework cover a range of environmental and technical topics. The principal policy requirements and tests relevant to the proposed development are;
Paragraph 32: development should only be prevented or refused on transport grounds where the residual cumulative impacts of development are severe;
Paragraph 74: open space and playing fields should not be built on unless surplus to requirements, or there is equivalent or better replacement provision, or development is for alternative sports and recreational provision;
Paragraph 103: development should avoid areas at risk of flooding and should ensure flood risk is not increased elsewhere;
Paragraph 109: development should minimise impacts on biodiversity and provide net gains in biodiversity where possible;
Paragraph 111: planning policies and decisions should encourage the effective use of land by re-using land that has been previously developed (brownfield land), provided that it is not of high environmental value;
Paragraph 134: where development will lead to less than substantial harm to the significance of a designated heritage asset, this harm should be weighed against the public benefits of the proposal, including securing its optimum viable use, and;
Paragraph 135: the effect of an application on the significance of a non-designated heritage asset should be taken into account in its determination. In weighing applications that directly or indirectly affect non-designated assets, a balanced judgement will be required having regard to the scale of any harm or loss and the significance of the heritage asset.
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5 Planning assessment
Introduction
5.1 Section 38(6) of the Planning and Compulsory Purchase Act 2004 refers to the development plan as a whole and requires that ‘if regard is to be had to the development plan for the purpose of any determination under the Planning Acts, the determination must be made in accordance with the plan unless material considerations indicate otherwise.’
5.2 The National Planning Policy Framework is a principal material consideration in this respect, and requires all planning applications for housing development to be determined in accordance with the presumption in favour of sustainable development.
5.3 On this basis, the issues to be considered in determining the planning application are;
The principle of development Playing field and open space assessment Housing type, size, mix and density Affordable housing statement Design and appearance Residential amenity Heritage impact assessment Technical considerations - Ecology and trees - Ground conditions - Flood risk and drainage - Utilities - Access and transportation Public benefits of development The planning balance
The principle of development
5.4 Following school reorganisation under the Building Schools for the Future programme, resulting in the relocation of Hameldon Community College to new premises, and the closure of Habergham High School and construction of the replacement Burnley High School (APP/2015 /0270 granted on the 28th September 2015), the disused former school land and buildings within the application site are surplus to Lancashire County Council local education authority requirements and have been marketed for disposal since February 2016.
5.5 As vacant land, of which approximately 60% is previously developed and occupied by the former school buildings and enclosures (see Figure 7 on page 22), in an accessible and sustainable location within the urban boundary of Burnley, the application site is a suitable,
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available and achievable (deliverable) location for new windfall housing development. The proposed redevelopment to provide 250 no. new family homes will therefore make an important quantitative and qualitative contribution to boosting supply and meeting the Council’s market housing needs in accordance with Policies GP1 and H2 of the saved Local Plan Review.
5.6 The sequential approach contained in these policies, i.e. only permitting windfall housing where it prioritises the re-use of existing buildings and the use of previously developed land before the use of previously undeveloped urban land will be considered, is inconsistent with the Framework, and the limited conflict with this aspect of the development plan in respect of the development of the greenfield land within the application site, cannot be afforded any weight.
5.7 Similarly, the test in saved Policy H2, whereby windfall housing development will only be supported where it does not result in an unacceptable oversupply of housing, is not consistent with the Framework which seeks to boost housing supply and requires OAN to be met as a minimum and not as a ceiling. The Framework does not indicate that exceeding adopted housing requirement targets will result in harm, and in the face of a national housing shortage, does not advocate market intervention to control over-provision / over-supply. Overall, the proposed development is in full accordance with the parts of saved Policies GP1 and H2 to which full weight can be attached, and is therefore acceptable in principle.
5.8 In addition, the site is a proposed housing allocation site (ref. HS1/1) in the emerging Burnley Local Plan and has been technically assessed in the Strategic Housing and Employment Land Availability Assessment 2017 (see Appendix 2) and Housing Factsheets 2017 evidence base, at every stage of plan preparation since its inclusion in the Issues and Options 2014. The evidence base confirms the site occupies a sustainable location, is suitable, available and achievable for the delivery of 250 dwellings and is highly attractive to the market. It is estimated to make a contribution of 150 dwellings to the five year housing land supply between 2018/19 and 2021/22.
Playing field and open space assessment
a) Development on the former playing fields within the application site
5.9 As a further outcome of the Building Schools for the Future programme and the rationalisation of the school land and buildings at the former Hameldon and Habergham schools, the area of playing fields (originally comprising 6 no. individual sports pitches) that previously served the two schools, is now only needed to serve the new, replacement Burnley High School.
5.10 The northern part of the original playing fields providing 3 no. sports pitches immediately north of the application site (see Figure 4, page 12), was therefore retained and subsequent to the closure of the schools, a community use licence was agreed between Lancashire County Council and Burnley Council to enable these pitches to be used by local junior football teams. The licence agreement has subsequently been transferred to Burnley High School.
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5.11 In parallel, the former southern playing fields (3 no. pitches) within the application site have been declared surplus to Lancashire County Council education requirements under Section 77 of the Schools Standards and Frameworks Act 1998. These pitches were used exclusively by the schools prior to their closure and have never been used by local community football teams. Despite the retained Burnley High School pitches being well used, there have been no requests by local clubs to use the pitches within the application site because they are known to be un- playable due to poor drainage, dog fouling and damage caused by horse riders using the Sweet Clough Greenway. There is also no vehicle access to the pitches and no on-site changing facilities.
5.12 The overlaid aerial photograph at Figure 7 below shows the location of the retained northern playing fields to the right of the cleared (at that time) site of the northern part of Hameldon Community College on which Burnley High School has since been built and opened. The southern playing fields within the application site that are surplus to Lancashire County Council requirements, is shown highlighted in green. The photograph also shows the extent of previously developed land within the application site (highlighted in brown), comprising the two former school campus buildings, hard surfaces, games courts and car parking etc, to either side of the former playing fields.
Figure 7: Aerial photo showing the previously developed land and former playing fields within the site
5.13 Although the former playing fields within the application site have not been used since the closure of the schools in 2010, they remain protected by saved Policy CF1 of the Burnley Local Plan and the corresponding national policy in the Framework (paragraph 74) and Sport England policy on Planning Applications for Development on Playing Fields.
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Assessment
5.14 Pre-application discussions regarding the loss of the former playing fields within the application site began in early 2016, between Lancashire County Council, Sport England, the Lancashire Football Association and Burnley Council.
5.15 The discussions were held against the backdrop of the emerging Burnley Local Plan to 2032 and its sports provision evidence base, provided by the draft interim Pennine Lancashire Playing Pitch Strategy 2016. This showed there was a small current demand shortfall for adult grass pitch football matches in Burnley and higher future demand shortfalls for adult, youth and mini matches.
5.16 A local solution was identified that would enable the disused playing fields at Lockyer Avenue, 0.8 km to the east of the application site, to be brought back into use. This additional pitch supply would be identified in the revised interim Playing Pitch Strategy and would alleviate the current demand shortfall and reduce the future demand shortfall for grass pitch football.
5.17 The Lockyer Avenue playing fields comprise 3 no. grass pitches with changing accommodation. They are owned by Lancashire County Council and were historically managed by Ightenhill Primary School, but being remote from the school itself, they had not been used for several years. It was therefore agreed that Lancashire County Council would lease the playing fields to Burnley Council so they could be made available for community use, and this would enable a local junior team (Burnley Wolves FC) to use them, as it had been trying to gain permission for some time without success. A 25 year lease and community use licence agreement was therefore secured with Lancashire County Council in September 2016.
5.18 Lockyer Avenue playing fields are rated as ‘poor’ in the Agreed Quality Rating and require drainage improvements to improve the current playing capacity of one game per pitch per week. The preferred solution put forward by Burnley Council, was therefore to secure funding via a Section 106 planning obligation in connection with the sale and development of the application site, for the installation of a fully-piped and banded drainage system that would improve the quality standard to ‘good’ and provide capacity of three games per pitch per week. It was reasoned that this local solution would be of more meaningful benefit than providing replacement pitches elsewhere outside the area without changing accommodation.
5.19 This arrangement was agreed by the Playing Pitch Strategy steering group in consultation with Sport England and the Lancashire Football Association, and the Lockyer Avenue pitches were included in the revised interim Rossendale, Pendle and Burnley Playing Pitch Strategy Assessment Report 2016. However, the updated Playing Pitch Strategy identified that there was a current demand shortfall of 0.5 matches per week for youth grass pitch football in west Burnley which Sport England referred to the Football Association for consideration.
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5.20 Site inspections and discussions with the Football Association Regional Facilities and Investment Manager confirmed that the playing fields within the application site were not of special significance to sport, but the proposed drainage of Lockyer Avenue alone, would not provide sufficient mitigation in light of the identified youth demand shortfall in west Burnley. Additional drainage improvements were therefore identified in liaison with the Football Association Regional Facilities and Investment Manager, to the 3 no. retained grass pitches at Burnley High School to increase their playing capacity for community use. These pitches are currently used by Rosegrove JFC and are rated as ‘standard’ and there is a changing room that is managed and used by the Club.
5.21 Drainage improvements will raise the standard of the Burnley High School pitches to ‘good’ and this will allow them to sustain greater use by the school and Rosegrove JFC. The improvements will result in a net capacity gain 12.5 mini (5v5) matches per week, 4 mini (7v7) matches per week and 1.5 youth matches per week.
5.22 Agreement has been reached with Burnley High School Governing Body to carry out the drainage improvement works subject to continued community use, and McDermott Homes will therefore enter into a S106 agreement with Burnley Council to provide funding to carry out the works to the pitches at Burnley High School and Lockyer Avenue. Alternatively, the funding will be used to upgrade football pitches at other local sites (in line with the Playing Pitch Strategy Action Plan) and/or contribute to the proposed additional 3G pitch at Prairie Playing Felds, in consultation with the Football Association Regional Facilities Investment Manager.
5.23 The solution and terms reached with the Football Association, Lancashire County Council and Burnley Council, was set out in a letter to Sport England on the 15th May 2017, together with a capacity analysis of the playing fields at Burnley High School pre and post the agreed drainage improvement works. Sport England replied by email on the 16th May 2017 confirming that subject to a S106 planning obligation to secure the proposed mitigation, it will not object to the proposed development. A copy of the correspondence is attached at Appendix 3.
5.24 The proposed development therefore meets one of the Sport England exception criteria by demonstrating that there is an excess of recreation provision in the local west Burnley catchment area, and the former playing fields within the application site have no special significance to the interests of sport. On this basis, the proposed development is in accordance with saved Policy CF1 of the Burnley Local Plan and paragraph 74 of the Framework.
b) Development on the other open space within the application site
5.25 Excluding the retained areas of woodland, the remainder of the undeveloped land within the application site is designated under Local Plan Policy CF3 as ‘existing areas of open space.’ These are shown as the non-highlighted areas on the aerial photograph at Figure 7 (page 22)
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and primarily comprise the amenity grassland adjoining the Kiddrow Lane frontage of the site and peripheral to the north and south of the former Habergham High School 6th Form Centre.
5.26 Saved Policy CF3 permits development within these designated areas of open space where it is not of a size or scale that detracts from the character of the area and will not have a detrimental effect on residential amenity, nature conservation or features of historic value, and addresses any access or safety issues.
5.27 In this case, the designation clearly reflects the form and layout of the former educational use of the application site, whereby such areas provided incidental and circulation space around the periphery of the school buildings and also served to provide a green setting to Kiddrow Lane. However, since the closure of the former schools and construction of Burnley High School on off-site land to the north, the amenity value of the disused land within the application site is limited as it no longer serves its original intended function and purpose, and provides no meaningful benefit to the local community and significant visual contribution to the character and appearance of the local area.
5.28 The proposed housing development therefore responds to the requirements and assessment criteria of Policy CF3 by;
a) Retaining a high-quality landscape buffer across the full width of the site frontage to Kiddrow Lane, which will replicate the present character and appearance of buildings set back into the site behind open space and retained tree cover, and the enhanced visual amenity this will provide, and;
b) Providing a single, consolidated area of high-quality, multi-use public open space in the centre of the application site which is of broadly equivalent size to the fragmented and unusable areas of open space to be developed on the periphery of the former school buildings.
5.29 On this basis, it is considered that the proposed development accords with the objectives and scope of Policy CF3 as there will not be a significant net loss of undeveloped land that is currently designated as other open space within the site, such that the size and scale of the housing will detract from the character of the area viewed from Kiddrow Lane; there will be no adverse impact on residential amenity, nature conservation or heritage, and the new public open space to be provided will be of far greater recreational and amenity value.
Housing type, size, mix and density
5.30 McDermott Homes proposes a high-quality and comparatively lower-density development, providing a combination of solely, larger 3 and 4 bedroom properties in detached and semi
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detached styles, providing for the needs of existing and incoming families and aspirational households. The proposed mix of the accommodation is;
130 no. x 3 bedroom dwellings (53%) 120 no. x 4 bedroom dwellings (47%)
of which;
83 no. are semi-detached dwellings (33%) 167 no. are detached dwellings (67%)
5.31 The average density of the development is 23.4 dwellings per hectare (gross) and 32.2 dwellings per hectare (net).
5.32 The proposal therefore provides high-quality market housing of an appropriate type, size, mix and density that is needed in Burnley to help diversify and rebalance the stock and provide greater choice in the housing market area, and is accordance with Policies H4 and H6 of the Burnley Local Plan Second Review and the emerging Local Plan to 2032 and evidence base. The mix is fully aligned with the Strategic Housing Market Assessment 2016 and the proposed Housing Allocation Site Policy HS1/1 applying to the application site, requiring high quality development providing a minimum of 60% 3+ bedroom detached and semi-detached houses, and at least 50% detached dwellings.
Affordable housing statement
5.33 Policy H5 of the saved Burnley Local Plan seeks the provision of at least 10% affordable and/or special needs housing, in developments of 25 or more dwellings or on sites of 1 ha or more.
5.34 This is qualified by up-to-date policy set out in the Framework and related Planning Practice Guidance, in consideration of a) the availability and effect of Vacant Building Credit, and b) the effect of planning obligations on the financial viability of the proposed development.
a) Vacant Building Credit
5.35 Paragraph 021 (ID: 23b-021-20160519) of the Planning Practice Guidance confirms that national policy provides an incentive for brownfield development on sites containing vacant buildings;
a) Where a vacant building is brought back into any lawful use, or is demolished to be replaced by a new building, the developer should be offered a financial credit equivalent to the existing gross floorspace of relevant vacant buildings when the local planning authority calculates any affordable housing contribution which will be sought. Affordable housing contributions may be required for any increase in floorspace.
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5.36 The vacant building credit was reinstated as national planning policy on the 11th May 2016 and the subsequent amendments to the Planning Practice Guidance explain how it operates in practice as a material consideration in the determination of planning applications for new housing development.
5.37 When a local planning authority considers how vacant building credit should be applied to a proposed development, it should have regard to the intention of the policy which is to incentivise brownfield development. The credit only applies to relevant (i.e. permanent) buildings that have not been abandoned; have not been made vacant for the sole purpose of redevelopment and are not covered by an extant or recently-expired planning permission for the same or substantially the same development. On this basis, the factual circumstances applying to the application site and to be taken into consideration, are as follows;
a) Are the former Hameldon Community College and former Habergham High School 6th Form Centre relevant buildings?
5.38 Yes - both former schools comprise substantial and permanent, purpose-built structures comprising external walls, floors and roofs.
b) Have the former Hameldon Community College and former Habergham High School 6th Form Centre been abandoned?
5.39 No - both former schools can be re-opened and re-used without the need for change of use planning permission. Legal authorities have determined that the question of whether a building has been abandoned is a matter of fact and degree and rests on the balance of probability, taking up to four relevant evidence-based considerations into account. These are;
i) The physical condition of the buildings:
The former school buildings are externally intact and roofed, and are capable of being re-used with only remedial works and internal refurbishment being necessary, and without the need for reconstruction;
ii) The length of time that the buildings have not been used:
The former school buildings were last used in 2010 however relevant case law confirms that the term of a vacancy period itself does not constitute abandonment;
iii) Whether the buildings have been used for any other purposes:
There has been no intervening use of either of the former school buildings since they closed in 2010.
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iv) The owner’s intentions:
Both of the former school buildings closed solely as a result of school reorganisation in Burnley under the Building Schools for the Future programme. There has been no positive act of abandonment relating to the buildings.
c) Have the former Hameldon Community College and former Habergham High School 6th Form Centre been made vacant for the sole purpose of redevelopment?
5.40 No - the former schools closed solely as a consequence of local circumstances in connection with the school reorganisation process in Burnley, and were declared surplus to local education authority requirements.
d) Are the former Hameldon Community College and former Habergham High School 6th Form Centre covered by an extant or recently expired planning permission for the same or substantially the same development?
5.41 No - there is no extant or previous planning permission/s for the same or similar redevelopment of the site for housing development.
5.42 This assessment of the relevant evidence against the requirements and criteria of the Planning Practice Guidance demonstrates that the proposed redevelopment of the application site qualifies for vacant building credit. The applicant should therefore be offered a financial credit equivalent to the gross floorspace of the vacant former school buildings on the site that are proposed to be demolished, and to off-set this against the 10% affordable housing provision required by Policy H5 of the Burnley Local Plan.
5.43 In this case, the total combined gross floorspace of the vacant school buildings is 21,054 sqm and the total combined gross floorspace of the proposed 250 no. dwellings is 24,552 sqm. The existing vacant floorspace is therefore 86% of the proposed residential floorspace, so the affordable housing requirement under Policy H5 of the Local Plan benefits from an 86% vacant building credit. This reduces the affordable housing requirement from 25 no. affordable units (i.e. 10% of 250 no. dwellings), to 4 no. units rounded upwards (2% of 250 no. dwellings).
b) Development viability
5.44 Paragraphs 173 and 205 of the National Planning Policy Framework require that;
173 Pursuing sustainable development requires careful attention to viability and costs in plan- making and decision-taking. Plans should be deliverable. Therefore, the sites and the scale of development identified in the plan should not be subject to such a scale of obligations and policy burdens that their ability to be developed viably is threatened. To ensure viability, the costs of any requirements likely to be applied to development, such as requirements for affordable housing, standards, infrastructure contributions or other
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requirements should, when taking account of the normal cost of development and mitigation, provide competitive returns to a willing land owner and willing developer to enable the development to be deliverable.
205 Where obligations are being sought or revised, local planning authorities should take account of changes in market conditions over time and, wherever appropriate, be sufficiently flexible to prevent planned development being stalled.
5.45 Paragraph 016 (ID: 10-016-20140306) of the Planning Practice Guidance similarly advises;
..…where the deliverability of the development may be compromised by the scale of planning obligations and other costs, a viability assessment may be necessary. This should be informed by the particular circumstances of the site and proposed development in question. Assessing the viability of a particular site requires more detailed analysis than at plan level. A site is viable if the value generated by its development exceeds the costs of developing it and also provides sufficient incentive for the land to come forward and the development to be undertaken.
5.46 Paragraph 026 (ID: 10-026-20140306) also highlights the relevance of the added viability constraints often affecting the redevelopment of previously developed land, and requires local planning authorities to work with applicants to incentivise beneficial redevelopment by;
b) taking a flexible approach in seeking levels of planning obligations and other contributions to ensure that the combined total impact does not make a site unviable.
5.47 In order to form an objective view of development viability, McDermott Homes has commissioned an independent viability assessment6 to compare the return generated by the proposed development, including provision of the planning obligation Heads of Terms set out in Section 3, to an expected market return, taking land acquisition cost into account.
5.48 The resultant profit margin has then been compared against a reasonable benchmark return which is reflective of the specific characteristics of the development and is appropriate to the assessment being undertaken. The benchmark margin takes due account of the site-specific risks associated with the proposed development.
5.49 As an established and proficient local housebuilder, the applicant’s experience suggests that mixed brownfield and greenfield residential development of the type and scale proposed on the application site in the Burnley housing market area, would normally have to achieve a minimum return of 20% of the Gross Development Value in order for the parties to be sufficiently incentivised to bring the development forward. This is despite recent data indicating that many national housebuilding companies are currently seeking margins closer to 22% and 23%.
6 A copy is available on request on a confidential basis
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5.50 Development appraisals have been prepared to test three difference scenarios, and the profit margin generated by each is as follows;
Development Affordable Housing Other S106 Planning Performance against Scenario Provision Obligations Market Return
1 None None 5.23% deficit
Contributions towards a) sustainable transport measures 2 None b) off-site playing fields 7.21% deficit drainage works c) primary school place provision Contributions towards a) sustainable 4 no. units (2%) transport measures affordable housing 3 b) off-site playing fields 7.60% deficit (with Vacant Building drainage works Credit applied) c) primary school place provision
5.51 Development Scenario 1 above represents the best case available outcome for the development of the application site. It demonstrates that when the available developer’s profit is expressed as a percentage of gross development value, an applicant will already face a significant deficit compared to the expected market return before the effect of any affordable housing provision and/or other S106 contributions are taken into account. This is considerable viability concern and risk that the applicant is prepared to withstand.
5.52 When the profit, as a percentage of gross development value, of a scheme providing sustainable transport measures (as required by the local highway authority), off-site playing field drainage improvements (as required by Sport England) and primary school place provision (as required by the local education authority), is compared with the market return (Scenario 2), there is a progressively greater deficit. This is exacerbated when affordable housing provision is introduced (Scenario 3), and would be worse still if Vacant Building Credit was not applied.
5.53 The applicant’s evidence demonstrates that achieving an acceptable level of development viability is a fundamental and highly significant material consideration in the determination of the planning application. It means that in order to provide proposed S106 contributions towards sustainable transport measures, off-site playing field drainage improvements and primary school place provision, no provision can be made for affordable housing. The conflict with Policy H5 of the saved Burnley Local Plan is therefore justified on this basis.
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Design and appearance
5.54 The application is submitted in full in order to provide the Council with sufficient detail to determine the considered effects of the proposed development upon the character and appearance of the surrounding area.
5.55 In developing the density, layout, scale, appearance, materials, and landscaping used within the design of the scheme, a detailed appraisal has taken place of the character of the surrounding built environment, landscape, and physical constraints (see the Design and Access Statement and Development Brief). This is to ensure that the development is capable of integrating sensitively to this part of Burnley and the wider townscape and urban landscape.
5.56 The development has been informed by the Development Brief prepared for the site and follows its design principles in respect of;
Locating the majority of development in two parcels in the east and west parts of the site, largely on the previously-developed area of the former school buildings and hardstandings; Retaining a central corridor of useable, multi-purpose public open space, separating the housing parcels, and linking the retained playing fields used by Burnley High School and the Sweet Clough Greenway, and; Retaining the established green infrastructure woodland and mature trees within the site, in the centre of the southern boundary and mid-way along the northern boundary.
5.57 The layout provides for a street hierarchy aimed at promoting ease of movement by foot and bicycle. The layout is informed by existing on-site and off-site natural features, providing a development which works with the landscape and topography and an efficient use of land. The layout promotes passive surveillance and crime prevention best practice, by providing positive frontages to roads, the open space, footpaths and the children’s play area, providing sufficient off-street car parking and providing new lighting.
5.58 The design features a wide range of individual house designs appropriate to the variety of styles and ages in the locality, and using a mixture of artificial stone, render, brick and grey tiled roofs. Overall, it is considered that the design of the proposed development is in accordance with Policies GP3, GP6, GP9, H3 and H7 of the Burnley Local Plan.
Residential amenity
5.59 Despite the scale of the proposed housing development and its location within the urban boundary, it is well contained by landscape features and offset from large areas of nearby housing. The aerial photograph at Figure 7 (page 22) shows that the development will be
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screened from adjacent housing to the south by the woodland lining the Sweet Clough valley, and it will not affect the amenity of those residents.
5.60 16 no. of the proposed dwellings on the Kiddrow Lane frontage of the site will face properties on the eastern side of the road. These are semi-detached houses set on a common building line behind front gardens and driveways. The proposed houses will be set 20 m into the application site behind the retained trees and stone wall along the site frontage, so that a separation distance of over 35 m will be maintained between the opposing facing walls and windows of the existing houses. This is a sufficient distance to ensure the proposed development will not result in an unacceptable loss of privacy and daylight, or have any other adverse impact upon the residential amenity of the neighbouring occupiers.
5.61 Figure 8 below, shows the 7 no. houses that are proposed to face onto Scott Street. These will face 5 no. detached and semi-detached single storey bungalows. The proposed houses will be set at an appropriate level relative to Scott Street and will be set back into the site so that an intervening distance of between 25 m and 30 m will be provided between opposing facing windows. This is sufficient to ensure the proposed development will not result in an unacceptable loss of privacy and daylight, or have any other adverse impact upon the neighbour’s residential amenity.
Figure 8: Proposed street scene to Scott Street
5.62 Elsewhere, the relationship between the proposed houses and adjacent development is designed to be compatible as follows;
a) The proposed plots in front of the houses facing into the application site set parallel to the frontage properties on the north east side of Scott Street, are off-set by retained green space and set gable-end at 90 to avoid overlooking and will not reduce daylight and sunlight;
b) The proposed plots behind the frontage properties on the north east side of Scott Street are designed to back onto their rear gardens so there is sufficient separation distance between the rear elevation facing windows to prevent overlooking and avoid any loss of daylight and sunlight;
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c) The proposed plots south of Poets Road are off-set by retained green space and set gable-end at 90 to avoid overlooking, and will not reduce daylight and sunlight, and;
d) The proposed plots bordering the southern side of Burnley High School are designed to back onto the boundary so a separation distance of over 50 m is provided between the rear elevations of most properties and the school building.
5.63 The internal layout of the development also pays close attention to providing high levels of amenity for future residents and seeks to relationships that avoid under-sized and poorly configured rear gardens and overlooking and overshadowing between properties. Overall, it is considered that the proposed development will respect and protect the residential amenity of surrounding property, and will provide a high quality living environment for future inhabitants, and is therefore in accordance with Policies GP3 and H3 of the Burnley Local Plan.
Heritage impact assessment
5.64 Paragraphs 128 and 129 of the National Planning Policy Framework require that;
128 In determining applications, local planning authorities should require an applicant to describe the significance of any heritage assets affected, including any contribution made by their setting. The level of detail should be proportionate to the assets’ importance and no more than is sufficient to understand the potential impact of the proposal on their significance. As a minimum the relevant historic environment record should have been consulted and the heritage assets assessed using appropriate expertise where necessary.
129 Local planning authorities should identify and assess the particular significance of any heritage asset that may be affected by a proposal (including by development affecting the setting of a heritage asset), taking account of the available evidence and any necessary expertise. They should take this assessment into account when considering the impact of a proposal on a heritage asset, to avoid or minimise conflict between the heritage asset’s conservation and any aspect of the proposal.
Significance of designated heritage assets
5.65 The map at Figure 9 shows there are no designated heritage assets within the application site but 15 no. within the surrounding area. These are listed in the following table and copies of the corresponding statutory listing descriptions for each asset are listed in numerical order in Appendix 4. The map shows that the assets are distributed to the north and south of the application site in three distinct clusters. The description and significance of each is summarised below;
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1) Assets clustered along Lowerhouse Lane
These comprise 6 no. separate rows of Grade II listed, two-storey mill workers cottages dating from the late 18th century up to the mid-to-late 19th century. They comprise two groups of 3 no. cottages, at the western end and midway along Lowerhouse Lane, and are located between 170 m and 260 m from the nearest parts of the proposed housing development. Their significance is derived from their architectural and historical interest, as relatively well-preserved examples of early workers’ housing forming part of the Lowerhouse industrial colony associated with Lowerhouse Mill. The group also contains a Grade II listed 19th century cast iron lamp post.
2) Assets to the north west of the application site
These comprise 2 no. 19th century Grade II listed sandstone boundary stones located 100 m and 240 m from the application site. Their significance is limited to their local historical and cultural interest as marking the edge of the former Habergham Eaves and Padiham townships.
3) Assets clustered to the north of the application site on Padiham Road and around the southern edge of Gawthorpe Park.
These assets are the most significant within the vicinity of the application site and are physically and/or culturally connected / associated with Gawthorpe Hall. The Grade I listed Hall itself, lies further north and is not included in this assessment. The grounds and parkland surrounding the Hall (shown green on Figure 9) are a listed Grade II Historic Park and Garden however, and extent to within 250 m of the housing development at its closest point. The park and garden is significant for its historic and landscape design interest, featuring the work of Sir Charles Barry and A W N Pugin.
The eastern edge of the park contains the Grade II listed entrance lodge (Habergham Lodge) to Gawthorpe Hall and its attached gate piers, and a nearby separately listed Grade II drinking fountain. These are listed due to their architectural importance and significance being the work of Sir Charles Barry dating from 1849 to 1851.
All Saints Church is Grade II listed together with its Grade II listed surrounding wall and gateway, and is prominently located at the junction of Kiddrow Lane and Padiham Road. Built between 1846 and 1849 by Weightman and Hadfield, All Saints Church features a large west tower and a tall broach spire with lucarnes. The significance of the building is derived from its architectural importance and historical and cultural connections with the Shuttleworth family of Gawthorpe Hall and the Dugdale family of Lowerhouse Mill who jointly paid for its construction, marking the cooperation of landed
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and industrial wealth. The listing description notes that the steeple is a conspicuous feature on the local skyline.
The remaining designated asset is located to the west of All Saints Church on Padiham Road and is a Grade II listed master’s house of the former adjacent Habergham Nursery School. The house is of local architectural interest but its significance is primarily derived like All Saints Church, from the establishment and endowment of the Habergham Nursery School by Janet Shuttleworth of Gawthorpe Hall and the industrialist Dugdale family of Lowerhouse Mill.
5.66 There are also non-designated heritage assets, comprising a locally listed building at nos. 3 and 5 Kiddrow Lane, which is a pair of stone-built semi-detached cottages located 60 m north of the site, and a number of locally listed terraces and properties interspersed with the Grade II listed buildings on Lowerhouse Lane to the south.
1
2 5 6 3 4 7
8
13 12 9 14 15 11
10
Figure 9: Map showing the location of designated heritage assets
Map no. Building name Grade
1 Gawthorpe Hall Historic Park and Garden Grade II 2 Habergham Lodge and gate piers Grade II 3 Drinking fountain adjacent to Habergham Lodge Grade II 4 All Saints churchyard wall and gateway Grade II 5 All Saints Church Grade II
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6 487 Padiham Road Grade II 7 Boundary stone Grade II 8 Boundary stone Grade II 9 295 - 317 Lowerhouse Lane Grade II 10 304, 306 and 308 Lowerhouse Lane Grade II 11 274 - 298 Lowerhouse Lane Grade II 12 204 - 238 Lowerhouse Lane Grade II 13 2 - 22 Lowerhouse Fold Grade II 14 217 - 227 Lowerhouse Lane Grade II 15 Lamppost opposite 217 Lowerhouse Lane Grade II
Impact assessment
5.67 The assessed effect of the proposed housing development on the significance of each of the identified heritage assets is as follows;
1) Assets clustered along Lowerhouse Lane
There is no intervening visibility and visual relationship between the application site and these heritage assets due to the extent of the screening provided by the density and height of the woodland lining the southern boundary along Sweet Clough. The proposed development will not harm the significance of these assets on this basis.
2) Assets to the north west of the application site
There two township boundary stones are small features standing less than 1 m tall and located in the network of urban streets and houses at considerable distance from the application site. There is no inter-visibility between the application site and these assets due to the effect of intervening built development, and the proposed development will not harm the significance of these assets on this basis.
3) Assets clustered to the north of the application site on Padiham Road and around the southern edge of Gawthorpe Park.
The original setting of the Grade II Gawthorpe Hall Registered Park and Garden has been partially compromised by urban housing development along its southern boundary on Padiham Road. The boundary of the Park and Garden is separated from the application site by intervening housing development and there is no visual relationship between the site and the asset. The proposed development will not harm the significance of these asset on this basis.
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Although there is urban development to the south of Padiham Road, the undeveloped setting of the Grade II listed Habergham Lodge and its attached gate piers and nearby drinking fountain at the entrance to Gawthorpe Hall, is better preserved than the setting of the Park and Garden to the west which abuts urban development. Notwithstanding this, the Lodge and gate piers are entirely screened by intervening development and are not visible from the application site. The proposed development will not harm the significance of these asset on this basis.
The Grade II listed former master’s house of Habergham Nursery lies directly north of the central point of the application site and can be viewed across the retained playing fields south of Padiham Road to the east of Burnley High School. It is separated by a distance of 226 m at the closest point of the proposed development and given the level surface of the playing and the lack of intervening buildings, there is a minor visual relationship between the site and the heritage asset. The open aspect of the playing fields to the immediate south of the asset will not be affected and the setting has already been compromised by development of the Hameldon Community College buildings in the 1960/70s and the replacement Burnley High School in 2016/17, although it can be seen from the historic OS map of 1847 (see Figure 10 below) that a line of terraced houses previously occupied the southern frontage of Padiham Road opposite the master’s house and nursery, so it was not built with the benefit or purpose of an open vista over the land to the south and towards the application site.
Figure 10: 1847 OS Map
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Notwithstanding this fact, the effect of the proposed development on the setting of the master’s house will be very limited however as views will be filtered by the line of trees on the Padiham Road frontage and the scattered groups of mature trees retained along the northern edge of the central part of the application site. The western part of the development will also be screened from view by the newly-built Burnley High School. Overall, the proposed development will result in a very low order of less than substantial harm to the significance of this asset.
The Grade II listed All Saints Church and wall, also lies directly north of the central point of the application site and can be viewed at a single point through the trees on the northern boundary of the site, across the retained playing fields south of Padiham Road and across Kiddrow Lane. It is separated by a distance of 280 m at the closest point of the proposed development in this view. A wider view of the proposed development is blocked from the Church by the row of terraced properties on the southern side of Padiham Road, but the upper part of the church tower and all of the spire will be visible from much of the development site above the level of intervening buildings. This view will be preserved from the central area of public open space within the site, but the townscape setting and visual significance of the Church spire has been compromised by urban growth and is now viewed in a heavily developed context.
Overall there is a visual relationship between the application site and the heritage asset but the proposed development will result in a very low order of less than substantial harm to the significance of this asset.
5.68 The proposed development will be viewed to the rear (south west) of the locally listed building at nos. 3 and 5 Kiddrow Lane but will not harm its setting. There will be no effect on the locally listed terraces and properties on Lowerhouse Lane to the south of the application site.
Paragraph 134 balancing exercise
5.69 Paragraph 134 of the Framework stipulates that;
134 Where a development proposal will lead to less than substantial harm to the significance of a designated heritage asset, this harm should be weighed against the public benefits of the proposal, including securing its optimum viable use.
5.70 This is a specific balancing exercise, confined to solely weighing the heritage harm arising from the proposed development against all of its public benefits, and is discrete from the overall planning balance at paragraph 14 of the Framework. The public benefits of the proposed development are described and considered at paragraph 5.90 (page 43) of the Planning Statement.
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5.71 Having identified the assessed harm to the significance of the designated heritage assets in the vicinity of the application site, as being ‘less than substantial’ and at the lower end of that category, this degree of harm cannot objectively outweigh the wide-ranging and compelling, long-term economic, social and environmental public benefits the proposed development will provide. The development is therefore also in accordance with saved Policies E10 and E15 of the Burnley Local Plan Second Review.
Technical considerations
5.72 The application is supported by a range of technical reports agreed with the local planning authority. These demonstrate that the proposed development can be achieved without causing significant adverse impacts in respect of the identified constraints affecting the site, and are summarised below.
a) Ecology
5.73 Extended Phase I habitat and protected species surveys were carried out by Simply Ecology Ltd. These also informed the prior notification applications made by Lancashire County Council for the demolition of the school buildings, which will be undertaken separately and does not form part of this planning application. The surveys demonstrate that there are no ecological constraints to the proposed development and confirm;
almost all of undeveloped site area comprises managed amenity grassland and semi improved grassland, which has very low species diversity and limited ecological value; plant species recorded at the site are common to the local area, and the proposed residential gardens and sympathetically landscaped open space, will provide alternative habitat of equal or greater ecological value; no potential bat roosts occur on the site as there are no suitable trees or buildings, and; no other notable or protected species were recorded on the site.
5.74 The protection of retained trees and hedgerows, and new replacement tree planting and landscaping using a range of native plants will promote structural habitat diversity in both the canopy and at ground level, and will encourage commuting and foraging habitat for bats. Bird nesting boxes should also be installed in the remaining trees and woodland on the site. The development is therefore in accordance with Policies E4 and E5 of the Burnley Local Plan.
b) Trees
5.75 The application is accompanied by an Arboricultural Impact Assessment carried out by Trevor Bridge Associates. It identifies a total of 138 no. trees, 27 no. tree groups and an area of woodland within the site, with the largest trees located on the north and southern boundaries.
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5.76 The development is designed to retain the majority of the trees with the exception of poor quality Category U specimens and those that have to be removed to accommodate a viable scale of development. These comprise 57 no. individual trees and 13 no. tree groups. The removal is concentrated in around both of the former school buildings. At the eastern end of the site, the tree screen lining Kiddrow Lane will be managed and thinned out by removing poor quality and unhealthy trees, incidental and ornamental planting around the former school building will be removed, and two larger groups of trees have to be removed around the tennis courts and woodland edge at the rear of the former school buildings, and those lining the pedestrian access path running diagonally from Kiddrow Lane to the school building. No Category A, B or C trees are removed from the northern boundary of the site.
5.77 The tree removal in the western part of the site is limited and contained to ornamental planting within the school grounds which is of no amenity value, and unmanaged vegetation, small trees and scrub on the frontage with Scott Street which has no amenity value in the street scene.
5.78 Appropriate landscaping and new tree planting will be provided to compensate for the removal of these trees and hedgerows, and retained trees will be protected by mitigation measures during construction.
5.79 On this basis, the proposed development will have some adverse effect in the short to medium term, but long term residual harm will be limited as replacement tree planting becomes established. It is therefore in accordance within Policy E6 of the Burnley Local Plan.
c) Ground conditions
5.80 Comprehensive intrusive ground investigation has been carried out and the results, set out in the Phase II Geo-environmental Site Investigation report, confirm there are locally-elevated concentrations of heavy metals and PAH in made ground that will require a suitable enabling earthwork strategy and remediation. A Supplementary Coal Mining Investigation and Risk Assessment report also confirms that the risk of ground instability / subsidence attributed to unrecorded historic shallow mine workings is extremely low. The proposed scheme is therefore compliant with Paragraphs 120 and 121 of the Framework and there is no reason why ground conditions will prevent its development.
d) Flood risk and drainage
5.81 The application is supported by a Flood Risk Assessment and Drainage Strategy produced by Betts Associates. It demonstrates that the proposed dwellings will not be vulnerable to flooding as the application site is wholly located in Flood Zone 1 and there are no historical records of ground water flooding or from other sources.
5.82 The submitted drainage strategy confirms that surface water runoff from site is currently drained by a piped system that discharges into the Sweet Clough watercourse to the south.
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5.83 The Phase II site investigation confirms the ground conditions have low permeability and are unlikely to support the use of soakaways, so a sustainable drainage system has been designed to mimic the existing situation, using the existing network and outfalls where possible, and discharge to the watercourse, but with 30% betterment in terms of peak rate run-off. Although the Non-statutory Technical Standards for SuDS seek to achieve a peak runoff rate that is as close as practicable to the greenfield runoff rate for the same rainfall event, it acknowledges it is not always practical to adopt a greenfield approach for previously developed constrained sites.
5.84 On this basis, the proposed development is not at risk of onsite flooding and will not increase the risk of flooding elsewhere. The proposed development is therefore in accordance with Policy E8 of the Burnley Local Plan and paragraph 103 of the Framework
e) Utilities
5.85 The application site can be provided with mains drinking water, gas and electricity supplies and telecoms, and there is sufficient capacity available to serve the proposed development.
f) Access and transportation
5.86 The application is accompanied by a Transport Assessment prepared by DTPC LLP. This demonstrates that the proposed development occupies a highly sustainable location and will be accessible on foot and by cycle to a wide range of community services and facilities in the local area, including access to adjacent public transport bus services.
5.87 Safe and suitable vehicular access can be provided to the site solely from Kiddrow Lane, in accordance with the requirements of the draft housing allocation site (Policy HS1/1) in the emerging Burnley Local Plan to 2032, and the development is provided with sufficient off-street parking in accordance with standards in the Burnley Local Plan.
5.88 Development traffic generation has been assessed, and aside from a slight impact at the A646 Rossendale Road / Accrington Road signalised junction which cannot be classed as severe and does not require mitigation, there are no capacity issues have been identified at the adjacent junctions serving the site. The proposed development will have little impact on the local highway network on this basis, and there are no reasons why the scheme should not be approved from a transportation point of view.
5.89 Additional travel planning measures are also proposed to encourage sustainable transport, including a welcome pack providing householders with information on local facilities, walking and cycling, and a travel plan coordinator to encourage take-up of suitable initiatives.
5.90 The proposed development is therefore in accordance with Policies TM1, TM4 and TM15 of the Burnley Local Plan Second Review and there are no reasons why it should not be approved from a transportation point of view.
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Public benefits of the proposed development
5.91 Paragraph 7 of the Framework identifies the planning system as fulfilling;
a) an economic role contributing to building a strong, responsive and competitive economy, by ensuring that sufficient land of the right type is available in the right places and at the right time to support growth and innovation; and by identifying and coordinating development requirements, including the provision of infrastructure;
b) a social role supporting strong, vibrant and healthy communities, by providing the supply of housing required to meet the needs of present and future generations; and by creating a high quality built environment, with accessible local services that reflect the community’s needs and support its health, social and cultural well-being, and;
c) an environmental role contributing to protecting and enhancing our natural, built and historic environment; and, as part of this, helping to improve biodiversity, use natural resources prudently, minimise waste and pollution, and mitigate and adapt to climate change including moving to a low carbon economy.
5.92 The proposed housing development will fulfil each of these roles by delivering a range of significant economic, social and environmental benefits. These are summarised as follows;
a) Economic benefits:
5.93 The proposed development will provide a range of substantial local economic benefits;
The housing will accommodate around 774 people when fully built, generating increased household expenditure (Gross Value Added) within the Burnley economy; Including multiplier effects, this will help to support and sustain jobs and businesses supplying household goods and services to the local community; The proposed development would also generate around £2.2 million in New Homes Bonus payments for investment in the community and increased annual Council Tax receipts, and; Based on capital construction expenditure of £31 million, the development would create around 100 jobs per year in the construction sector over the construction period, together with training opportunities, supply-chain opportunities for local businesses and construction-related expenditure on goods and services in the local economy.
5.94 These are important long-term economic benefits that carry considerable weight.
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b) Social benefits:
5.95 The emerging Local Plan to 2032 confirms that an improved housing offer is a key priority for Burnley;
Objective 2: To revitalise the housing market by encouraging a well-integrated mix of high quality, aspirational and affordable homes of different types and tenures to meet the needs of a wide range of households and support economic growth.
5.96 The proposed development of 250 no. high-quality, larger 3 and 4 bedroom family homes and aspirational style housing, will help to increase the labour supply, and especially skilled labour, living in Burnley and counter out-migration and an ageing population.
5.97 The development population of 774 people will provide an increased working age population of between 510 and 545, of which between 404 and 457 residents will be economically active. This will provide a valuable boost to the resident workforce in Burnley.
5.98 The Framework requires local planning authorities to boost significantly the supply of housing (paragraph 47); have a clear understanding of their minimum housing needs (paragraph 159) and make every effort to meet needs and respond positively to wider opportunities for growth (paragraph 17). The development is designed to support, and is aligned with, the Council’s Vision and emerging Local Plan development strategy, in terms of;
the type, quality and amount of proposed family and aspirational housing needed to diversify the housing stock and provide choice; the identification of the application site as a proposed housing allocation site (HS1/1) for the development of 250 dwellings, and its ability to make a significant contribution to five year housing supply requirements in the Borough.
5.99 The development will also provide new housing in a highly sustainable and accessible location within the urban area that is recognised as being suitable to accommodate growth; is close to establish residential areas and local community services and facilities, and which will provide a high quality family living environment, including new open space and children’s play provision.
5.100 The social (and socio-economic) benefits of the proposed development are therefore wide and compelling, and they should be given substantial weight in the consideration of the application.
c) Environmental benefits:
5.101 The proposed development will provide a range of local environmental benefits;
It will redevelop and recycle vacant, previously developed land in a sustainable location in the urban area;
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It will result in the demolition and clearance of the former school buildings on the site that are a visual blight to the local area and source of vandalism and nuisance; It will provide new homes that are connected to the local highway network and local public transport services, and will provide new pedestrian footpath and cycle route connections to the local network; The application site is located within walking and cycling distance of local facilities and services, including shops, schools, nurseries, health services and community facilities; The development will not result in substantial harm to the setting and significance of designated heritage assets in the vicinity of the application site and will not harm the setting of non-designated assets; The development will not have an adverse effect on biodiversity and has the potential to improve local habitat diversity, and; The development will provide 30% surface water drainage betterment over existing runoff rates from the site, and will not increase the risk of flooding elsewhere;
5.102 These environmental benefits should be given considerable weight in the consideration of the application.
The planning balance
5.103 Planning law7 requires that applications for planning permission must be determined in accordance with the development plan unless material considerations indicate otherwise. This is reinforced by the presumption in favour of sustainable development set out in paragraph 14 of the National Planning Policy Framework which, for decision-taking, means approving development proposals that accord with the development plan without delay.
5.104 On this basis, the proposed development has been comprehensively assessed against the relevant saved policies of the adopted Burnley Local Plan Second Review and it is demonstrated to be in accordance with the plan as a whole. The development is located on land within the urban area of Burnley, of which 60% is previously-developed, and complies with the requirements and criteria of the relevant housing, playing field, open space, transport and general development management policies of the plan. The sole exception is the inability of the proposal to provide affordable housing in accordance with Policy H5, however a robust explanation based on independent development appraisal and viability testing is provided to justify the departure, in accordance with the Framework and Planning Practice Guidance.
5.105 Accordingly, for the reasons set out in this Planning Statement and within the supporting technical reports, it is submitted that the proposed application is in conformity with the development plan viewed as a whole, and in the absence of any material considerations to the contrary, planning permission should therefore be granted without delay in accordance with the presumption in favour of sustainable development.
7 Section 70(2) of the Town and Country Planning Act 1990 and Section 38(6) of the Planning and Compulsory Purchase Act 2004
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6 Summary and conclusion
6.1 This Planning Statement has been prepared by Smith & Love Planning Consultants Ltd in support of a detailed planning application by McDermott Homes for the redevelopment of the former Hameldon Community College and Habergham High School 6th Form Centre, between Kiddrow Lane and Scott Street, Burnley.
6.2 It confirms that the application site is a suitable and accessible location for new housing development, and that the proposed scheme will make effective and efficient reuse of vacant, previously-developed land within the urban boundary of Burnley, to provide a high-quality, sustainable development of much-needed three and four bedroom family homes. There are no technical or environmental constraints to development and the application site is proposed as a draft housing allocation in the emerging Burnley Local Plan to 2032.
6.3 The development will deliver a range of important economic, social and environmental benefits, and make a valuable contribution to meeting identified market housing needs in Burnley, and it can be delivered in the short term to help boost the five year supply of deliverable housing land.
6.4 The Planning Statement concludes that the proposed development is fully compliant with the relevant saved policies of the adopted Burnley Local Plan viewed as a whole, and Government policy set out in the Framework, that seeks to boost housing supply and delivery, and to widen choice, to meet needs and help solve the UK housing crisis.
6.5 Consequently, and having regard to all other material considerations, there is a compelling case for planning permission to be granted without delay, in accordance with the presumption in favour of sustainable development in paragraph 14 of the National Planning Policy Framework.
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Appendix 1
Burnley Borough Council pre-application advice letter of the 20th September 2016
Burnley Borough Council Housing & Development Control 19 Parker Lane Burnley, Lancashire BB11 2BY Tel 01282 425011 Fax 01282 450594 Email [email protected]
Mr Mark Wilkinson McDermott Developments Ltd Jupiter House Contact: Janet Filbin Mercury Rise Telephone: 3216 Altham Business Park Ref No: JFL/ENQ/2016/0278 Altham Lancashire 20th September 2016 BB5 5BY
Dear Mark
Pre-application discussions Proposal: Residential development of 236 dwellings (24.6ha) Location: SITE OF FROMER HIGH SCHOOL KIDDROW LANE/SCOTT STREET BURNLEY
I refer to your request for pre-application advice regarding the above proposal and write to provide some written feedback following your meeting at our offices on the 19th July 2016.
The proposal involves the re-development of the former Ivy Bank and Habergham High School sites on land between Kiddrow Lane and Scott Street.
The two secondary school building complexes (Habergham High School and Ivy Bank High School) are not specifically allocated on the Proposals Map of the Burnley Local Plan, Second Review (2006), being the development plan in force, but fall within the urban boundary of Burnley and Padiham. As such, Policy GP1 seeks to make efficient use of land and buildings by following a sequential approach to meeting development needs by considering, firstly, their re-use and secondly, the use of previously developed land. Given that the provision of a new school under the Government’s Building Schools for the Future Programme has meant that Lancashire County Council no longer require these buildings to meet educational needs, it is accepted that either their re-use or replacement with an appropriate new development would in principle comply with Policy GP1.
Beyond the complex of buildings, the majority of the land between both schools is designated as school playing fields on the Proposals Map. Policy CF1 states that the loss of public and private playing pitches will not be permitted but sets out a list of criteria that must be met in order to permit the re-development of sports pitches for non- sporting or non-recreational uses. These include an assessment of the levels of provision of local sports pitches to show an excess provision, the retention/enhancement of the sports facility as part of the development or a scheme to develop new and improved pitches and ancillary facilities of at least equivalent community value within the immediate area. Additional informal open space at Kiddrow Lane is also identified as an area of Major Open Space where Policy CF3 of the Local Plan seeks to protect the open space from development that, amongst other things, would be of a size and scale that detracts from the character of the area. A wildlife corridor also follows the route of the Sweet Clough which is part of the open space and Policy E3 “Wildlife Links and Corridors”, states that development will not be permitted where it would sever or significantly detract from the function of the wildlife links and corridors and where development is permitted it will be expected to enhance the wildlife corridors. Areas of woodland appear to have been retained as part of your sketch layout. These should be considered as part of a Tree Survey and Arboricultural Implications Assessment which should be prepared and submitted with any application.
The Preferred Options version of the Burnley Local Plan which has recently been out to public consultation seeks to make some changes to the designation of the school sites by allocating the land for housing. It also recognises the ecological links between the open space and the Sweet Clough wildlife corridor to its south side and links to other playing fields and plantations to the north. This forms part of the Lancashire Ecological Network for woodland. Any development proposal will need to minimise disturbance and impact on the ecological network. A Phase 1 habitat survey and assessment should be undertaken to inform the layout and set out appropriate mitigation.
Policy HS1/1 of the Preferred Options plan sets out some policy requirements and design principles that would be applicable to a development on this site. Whilst these are useful in guiding a development, the Preferred Options stage of the plan preparation is too early to be able to give any significant weight. The Council’s Policy team is currently collating and assessing the responses to the public consultation of the Plan and such responses will be considered before the Council go forward with a Publication Version. Little weight can therefore at this stage be given to the intention of the Council, as set out in the Preferred Options plan, to identify this 24.6ha site for housing. Policy GP1 of the adopted Local Plan would however, in principle, support the re- development of the school premises (undesignated) but development of the fuller site which includes playing pitches and open space, would require compliance with, in particular, Policies CF1, CF3 and E3.
I note from your sketch layout that you propose to retain approximately 7.37ha of the site as open space which would also leave the main part of the ecological network (shown of the Proposals Map for the Preferred Options version of the Local Plan) undeveloped. There would be opportunities to improve accessibility and connectivity with surrounding footpath routes and this should be maximised. Footpath and cycle links should connect to the Sweet Clough Greenway and to Lowerhouse Lane and to the open space and college site to the north. This would potentially improve accessibility and enjoyment of the informal open space areas. The formal playing pitches (3no.) cannot be relinquished unless the circumstances in Policy CF1 can be adequately satisfied. Sport England, as you are aware, is a statutory consultee and will need to be satisfied that an equivalent/enhanced provision for playing fields is made available at a convenient location prior to the loss of the existing pitches. The Council’s Head of Greenspaces and Amenities, Simon Goff, who attended your pre-application meeting stated that he has been in dialogue with Sport England over a possible improvement to the Lockyer Avenue playing pitches which are currently unused. This would require drainage improvement works estimated at around £60-£70,000 to make the pitches usable. It is accepted that an equivalent provision at this site would be sufficiently convenient to serve the local area. An application for planning permission would be expected to be accompanied by an assessment of Playing Pitch provision and Impact/Mitigation statement to demonstrate that the proposal would comply with Policy CF1. An agreed commuted sum for the drainage works associated with the playing field provision would be expected to form part of a Section 106 Agreement or Unilateral Undertaking.
A representative of the highway authority at Lancashire County Council, Dave Bloomer, also attended the meeting and commented on the highway aspect of the proposal. It is noted that vehicular access to the site would be from both Kiddrow Lane and Scott Street, serving principally two distinct ends of the development with a reduced carriageway width through the central open space/ecological network to minimise disruption through this area. I agree that this area should be dealt with sensitively and a Phase 1 habitat survey and assessment should be the first reference to how this can be achieved. Mr Bloomer stated at the meeting that the proposed vehicular access from Kiddrow Lane would be more favourable although would necessitate the removal of a small number of trees and that any access roads from the estate road should be set back at least 20m from the main road. As many of the trees along this frontage should be retained as possible. The tree survey and arboricultural implications assessment referred to earlier should include these trees. In addition to the main junction, pedestrian and cycle links should also be provided at each end (north and south) of the site’s frontage onto Kiddrow Lane. Similarly, on Scott Street, the proposed junction should have no drives/accessways branching off the estate road for its first 20m length. This would necessitate a setting back of the shared drives serving the frontage development. The main issue reported by Mr Bloomer at Scott Street would be visibility splays which would be restricted by the existing levels of on-street parking. Traffic calming is likely to be required on Scott Street. A transport assessment will be required due to the amount of development that is proposed and this will need to consider possible junction solutions at Scott Street. Mr Bloomer asserted that traffic signals may be required at this junction. He also stated that the narrower portion of carriageway through the central part of the site would be too long to encourage slower movements and should be shortened as well as a short crossover junction installed where the new footpaths would link the areas of open space to the north and south sides of the access road. Footpath links across the site should include provision for cycles. Some cul-de- sac roads indicating service verges only should have footways to at least one side of the carriageway. Care should also be taken to ensure new planting would not obscure sight lines for drivers reversing out of car parking spaces (eg plot 150). Mr Bloomer also confirmed that a Travel Plan should be submitted with an application and should set out the provision of bus passes, cycle vouchers and electric charging points are to be provided to improve the sustainability offer of the proposal.
Policy H3 of the adopted Local Plan encourages a high quality of design in new housing developments. In general layout terms, I am pleased to see that the scheme has been positively orientated to front Kiddrow Lane, Scott Street and the main areas of public open space. The Council has an aspiration to improving the range and availability of good quality larger homes (such as detached 4 bedroom houses) which is sufficiently reflected in your sketch scheme. The setting back of the development and the provision of open space to Kiddrow Lane provides a spacious and verdant setting for the development. In the meeting you mentioned that this land would be apportioned to the adjacent houses for maintenance purposes. I would be concerned however that this is likely to lead to an inconsistent level of maintenance across the frontage as well as pressure from those responsible for the land to use it as additional garden land. I would suggest instead that this area forms part of the public open space and maintained in the same way as the central areas of public open space. If you are looking for public adoption of the public open space rather than a private management company then I would ask you to make this clear at the earliest possible time so that this can be pursued with the appropriate heads of service.
There is a good level of street tree planting within the sketch layout. A full landscaping scheme should be submitted with an application and include any recommendations from your ecology survey on planting within the ecological network area, retained as public open space. The Council’s Head of Greenspaces and Amenities stated at the meeting that an on-site childrens play area will be required. An accessible part of the open space with good natural surveillance should be identified for this purpose. The likely scale and specification for the play area should be further discussed with the Head of Greenspaces and Amenities.
The central area of open space creates a distinctive development, largely in two parts. You may wish to consider developing two distinct character areas or the use of some distinctive features and materials to distinguish between the areas. A highway materials plan should be submitted with your application in order to assess how surfacing materials would be used to provide a clear and legible road hierarchy. I note that you mentioned that you would introduce a number of 2 ½ storey dwellings. A small proportion of these where placed at some of the main junction nodes could potentially make prominent and landmark features and help to achieve a more legible layout. Corner properties should also be sensitively designed with dual aspects to avoid blank elevations onto street corners/frontages. There are unfortunately excessive rows of forecourt parking which occurs particularly at the blocks of four dwellings. This would create long views of hardstandings without relief from landscaping. Reducing the block sizes or creating space for driveways to the sides of end properties could help to reduce the dominance of these areas of forecourt parking. Details of the storage of refuse and recycling bins should also be indicated on a proposed layout to ensure that there is no need for bins at the fronts of properties and that there are satisfactory distances for moving bins to collection points.
A scheme of this size would normally be required to comply with Policy H5 ‘Local Housing Needs’ of the adopted Local Plan. This requires 10% of dwellings to be provided as affordable dwellings or 10% special needs housing with a proportion of these also being affordable. More recently, however, the Government has announced in the Housing and Planning Act 2016 their commitment to promoting the provision of starter homes. Whilst the Regulations to implement the provisions in the Act are awaited, it is likely that a development of this size would need to deliver 20% of the new dwellings as starter homes. The Act states that these should be available at 80% of market rates (up to a ceiling of £250,000) and restricted to first time buyers (aged between 23 and 40). Where there are deficiencies in this level of provision, a viability assessment would be required to justify a lower level. A Unilateral Agreement or Section 106 Agreement (under the Town and Country Planning Act 1990) would be required to secure the provision and set out eligibility criteria and re-sale requirements (which would probably be for a fixed period of five years). This should be factored into the scheme at this stage and any adjustments made in terms of house types. In the same way that affordable housing is ‘pepperpotted’ to avoid concentrations and ensure integration throughout the development, starter homes should also be spread across the site. A starter home plan should be included in the submission.
In terms of contributions, I have been advised by the School Planning Team at Lancashire County Council that (based on an assessment that was carried out on 20th July 2016), the proposed development would generate a need for a further 18 primary school places, currently calculated at £242,541.54. No additional secondary school places have been identified. The Team advise that the number of places and contribution requirement could change over time (depending on decisions being made on other major residential developments in the local area). A re-calculation would therefore be made when a formal application is submitted. A copy of a letter from the School Planning Team and their assessment is attached.
County Highways has stated that the proposal would necessitate an improvement to the existing street lighting between 283 Lowerhouse Lane and its junction with Scott Street and between Scott Street and its junction with Padiham Road. It is estimated that this would require a contribution of £28-30,000 for the costs of bringing the street lighting up to a suitable standard. Traffic calming measures will also be required on the surrounding streets (which can be dealt with under s278 works) and an assessment will need to be made to ascertain the adequacy of street lighting where these traffic calming measures are needed. This could therefore lead to an increased contribution towards street lighting improvements. Your transport assessment should include recommendations on the extent of traffic calming works which can then be considered by the Highway Authority.
I have attached pre-application consultation responses from the Coal Authority (dated 7th July 2016) and the Environment Agency (dated 13th July 2016). The Coal Authority advises that the proposed development site falls within a ‘Development High Risk Area’ due to a mining legacy that involves unrecorded probable shall coal workings and thick coal outcrops. You will see from the letter that it is likely that shallow coal workings will need to be remediated. A Coal Mining Risk Assessment should be prepared and submitted with an application to assess the risks from past mining activity and set out mitigation measures to address any issues of land instability. The Environment Agency advise that the site is adjacent to Sweet Clough which is a designated main river where there is a narrow zone of Flood Zones 2 and 3. A Flood Risk Assessment should be prepared and submitted with an application. For your convenience I have listed below the supporting documents that will be required to be submitted with an application:-
Design and access statement Playing Fields and Open Space Assessment Land contamination assessment Flood Risk Assessment Sustainable Drainage Assessment Transport Assessment Travel Plan Coal Mining Risk Assessment Tree Survey Arboricultural Implications Assessment Biodiversity survey and report Affordable/Starter Home Housing Statement Crime Impact Assessment Landscaping Scheme Planning Obligations/Heads of terms Utilities statement and foul sewage assessment Waste management, refuse and recycling statement Statement of Community Involvement (if applicable) Summary of Application
Please note that the comments in this letter are made without prejudice to the formal determination of any application for planning permission. I would be pleased to comment on further drafts of your scheme prior to an application being made.
Yours sincerely
Janet Filbin Senior Planning Officer
Appendix 2
Strategic Housing and Employment Land Availability Assessment 2017 Site pro-forma ref. HEL/043 - Former Hameldon Schools Sites
Burnley SHLAA: Site Information Form Site Information Density and Yield SHLAA Ref: HEL/043 Site Area (Ha): 10.1 Category: Housing Standard Density: 30 dph - Housing Site Name: Former Hameldon Schools Sites Initial Source Call for Sites of Supply: Street: Byron Street & Kiddrow Lane Theoretic Yield at Standard 303 Density Location: Burnley Sub Sources LCC Anticpated Yield (m2 or 250 Ward: Gannow Extant Planning Permission? No number of dwellings): Parish: Allocation in Saved Local Plan: Major Open Areas
Suitability Achievability Attractive to the market Site Location: Within urban boundary Likely marketability of site: Current Land Use: Other Local Housing/Commercial market/demand: Strong Green Belt: No Established Residential/ Greenfield/Brownfield: Brownfield/Greenfield Commercial Area?: Yes
BMV Agricultural Land N/A Likely viability of site: Viable
Landscape/ Partly landscaped former school site with playing fields and Availability Topography numerous mature trees with attractive stonme walls to Kiddrow Lane and railing to Scott Street. Existing school Ownership: Council (LCC) Visual Locally prominent Ownership notes/ Site promoted for inclusion in the Local Prominence: evidence of Plan following the Call for Sites landowner exercise in 2008. LCC - Proposed Contaminated Land Register: Site of Potential Concern intentions: residential development Estimated number of Landowners 1 Contamination Small area in south western part of site (quarrying) Comments: Tenancies or restrictive covenants: Flood Zone: 1&2&3a Comments: Flood Risk Issues: Site was in the Issues and Option Local Plan of Spring Adjacent Sweet Clough (Main River) to south. Flood Map for Surface 2014 and Preferred Options Summer 2016. Site boundary Water- small areas of low/medium/high annual probability around amended after Issues & Options due to development of buildings. part of site for Burnley High School
Lancashire County Council have prepared a development Heritage Asset Comment: The Listed Grade II Boundary Stone at brief for the site. Conwly Crescent lies c100m to the west of Listed Building the site. The northern part of the site is Anticipated yield based on sketch proposal for the site's within the setting of the Listed All Saints Conservation Area redevelopment Church and Habergham Nursery and Ancient Monument potentially in the setting of Gawthorpe LCC Highways: Concerns regarding additional traffic on Registered Park & Garden. Any development Local List Scott Street due to poor access onto Padiham Road. Would would need to assess impact. prefer access onto Kiddrow Lane which benefits signalised TPO on site?: Yes ARCHAEOLOGY: Early buried remians are access onto Padiham Road. Within or adj to an SSSI, SAC, SPA, NNR?: No Archaeological potential does not present an over-riding Within or adj to a Biological Heritage Site, LNR: No constraint on redevelopment, however provision should be made for field evaluation and any subsequent investigation Nature Conservation Comment TPO B133 (L) 1988 around Rest Home at eastern edge of site. WCA Conclusion Sch 1,5 or 8 within site. Invasive non-native species recorded within site. Bat survey recommended (BBC Protected Species survey 2013). Include/Exclude: Include Lancashire Woodland Ecological Network including Stepping Availability Conclusion: Available Stone/Habitat. National Priority Habitat: deciduous woodland within site. Potential for habitat creation. Suitability Conclusion: Suitable Achievability Conclusion: Achievable 400m of a bus stop? Yes Developable: Yes 800m of a train station? No 30 minutes public transport time of key borough Yes Local Plan services? In Issues and Options LP: Yes IO 8km cycling distance of key borough services? Yes In Preferred Options LP: Yes 400m of a defined on or off-road cycle route: Yes In Proposed Submission LP: Yes Within 1200m of a primary school, GP, shop, Yes Developable but less than 0.4 ha: community facility? N/A
Appendix 3
Correspondence with Sport England dated the 15th and 16th May 2017
Graham Love
From: Bob Sharples
Good afternoon Graham, Thank you for your email yesterday in relation to the above site. I have studied your letter with the proposed mitigation proposal. Subject to the planning application being submitted with draft S106 at the same time along with the robust justification, Sport England would not raise any objections to the planning application.
Kind regards Bob
Bob Sharples MRTPI RIBA Principal Planning Manager - South Hub
T: 07830 315030 M: 07830315030 F: 01509 233 192 E: [email protected]
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1 Graham Love
From: Graham Love
Dear Bob
Further to discussions and an on-site meeting between Alice Watson and Simon Goff, I am confident an acceptable solution has now been reached between Lancashire County Council, McDermott Homes and Burnley Council. This comprises drainage improvement works to the three retained pitches at Burnley High School adjacent to the redevelopment site, which are used by local community football teams, in addition to the improvements we have already agreed to provide at Lockyer Avenue.
I attach an updated letter setting this out, and a pre and post capacity analysis of the net effect of the additional proposed improvements at the Burnley High School pitches.
I look forward to hearing from you.
Regards
Graham Love
Smith & Love Planning Consultants
T. 01772 831861 / M. 07769 332697 5 Albert Edward House, The Pavilions, Preston PR2 2YB Company registration no. 8449131
From: Bob Sharples [mailto:[email protected]] Sent: 11 April 2017 07:40 To: 'Graham Love'
Good morning Graham, Please accept my apologies for the delay, but I have had unexpected compassionate leave and a massive back log built up.
I have gone through the figures which still show an overall shortage of football pitches. As it stand the only way to address the loss of your site would be to replace the site elsewhere, to meet the NPPF and planning policy exception E4.
Is it possible to see the non-technical survey report and club feedback for each of the sites? I would also be interested in the thoughts of the FA on the work done to date, and if there has been any discussions with the FA on alternative proposal for a replacement 3G AGP? (Providing it
1 does not result in even further loss of more playing field.) NB you need parking and changing plus floodlighting for a 3G AGP – without these the AGP could not operate properly.
I am still concerned that other pitch sports have not been addressed.
I think this is a start. I would strongly advise a discussion with the FA NOT the county FA in this matter.
Kind regards Bob
Bob Sharples RIBA MRTPI
Principal Planning Manager - North Hub and South Hub
T: 07830 315030 M: 07830315030 F: 01509 233 192 E: [email protected]
From: Graham Love [ mailto:[email protected] ] Sent: 10 April 2017 21:46 To: Bob Sharples < [email protected] > Subject: RE: Hameldon Community College Site - Sport England Ref: NW/LCC/2017/44475/P
Good morning Bob, I hope you’re well.
Is there an update I can report to McDermott Homes and Lancashire County Council please following the additional information supplied by Simon Goff?
Many thanks
Graham Love
Smith & Love Planning Consultants
T. 01772 831861 / M. 07769 332697 2 15th May 2017
Mr B Sharples Planning Advisor Sport England By email only
Your ref: NW/LCC/2017/44475/P
Dear Bob
PROPOSED REDEVELOPMENT OF FORMER SCHOOL PLAYING FIELDS FORMER HABERGHAM HIGH SCHOOL, KIDDROW LANE, BURNLEY
Further to my letter of the 15th March 2017 and your most recent response of the 11th April, I am writing to set out a final proposition that has been agreed between Simon Goff, Head of Green Spaces and Amenities at Burnley Borough Council and Alice Watson, the FA Regional Facilities and Investment Manager, following an on-site meeting and subsequent discussions with McDermott Homes and Lancashire County Council.
Alice has confirmed that she will support the proposed redevelopment if additional drainage improvements are undertaken to the three retained pitches at Burnley High School adjacent to the site, which are used by local community football teams, in addition to the three we have already agreed to improve at Lockyer Avenue. Alice would also like the Burnley High School pitches to be fenced, which the School has confirmed it will carry out.
The pitches at Burnley High School are currently used by Rosegrove JFC and are rated as standard. There is a changing room that is managed and used by the club. Drainage improvements will raise the standard of the pitches to good which will allow the pitches to sustain use both by the school and the junior football club. The table in Appendix 1 (enclosed) shows the capacity analysis for these pitches pre and post improvement.
Based on a detailed cost estimate for the drainage works at Burnley High School (£115,500) together with the cost of the works at Lockyer Avenue (£88,000), McDermott Homes will therefore contribute a total sum of £207,500 to mitigate the loss of the former pitches at Kiddrow Lane. This will be secured through a S106 agreement with Burnley Borough Council.
Burnley Council will contact the High School Governing Body to secure its agreement to carry out the drainage improvement mitigation works, subject to formalising the continued community use of the pitches. We expect the High School will recognise the value and benefit of the drainage improvements, but in the event it declines the opportunity, Burnley Council will use the S106 funding to upgrade football pitches at other local sites (in line with the Playing Pitch Strategy Action Plan) and/or contribute to the proposed additional 3G pitch at Prairie Playing Felds in consultation and agreement with the FA Regional Facilities Investment Manager.
Overall, we consider this improved offer represents an acceptable solution and the most-beneficial local outcome, which it is hoped Sport England can now support in principle.
Smith & Love Planning Consultants Ltd, Unit 5 Albert Edward House, The Pavilions, Preston PR2 2YB VAT no. 213430752 | Company Registration no. 8449131 I look forward to hearing from you and please contact me or Simon Goff if you have any further questions or would like to meet.
Yours sincerely
Graham Love MRTPI [email protected]
Enc. Appendix 1 cc: Alice Watson - FA Regional Facilities and Investment Manager
2 Burnley High School Pitches (Formerly Habergham) capacity analysis, pre and post drainage improvements
Site Site name Available for Type of Manageme Local Analysis area Pitch Pitch Agreed No. of Current Site Overused Pitches ID community tenure1 nt authority type size quality pitches play capacity (+), At available use? rating Capacity (/) in peak or Potential period to Accommod ate additional play (-) CURRENT CAPACTIY ANALYSIS
60 Burnley High School Yes Secured School Burnley West Burnley Mini (5v5) Standard 4 6.5 12 -5.5 0.5 (formerly Habergham) 60 Burnley High School Yes Secured School Burnley West Burnley Mini (7v7) Standard 2 4 8 -4 0.5
60 Burnley High School Yes Secured School Burnley West Burnley Youth (9v9) Standard 1 2.5 2 0.5 0
CAPACITY AFTER DRAINAGE IMPROVEMENTS
60 Burnley High School Yes Secured School Burnley West Burnley Mini (5v5) Standard 4 6.5 24 17.5 0.5
60 Burnley High School Yes Secured School Burnley West Burnley Mini (7v7) Standard 2 4 12 -8 0.5
60 Burnley High School Yes Secured School Burnley West Burnley Youth (9v9) Standard 1 2.5 4 -1.5 0
1 Unless local information suggests otherwise it can be assumed that the availability of all pitches in Council, town and parish council and sports club ownership will be secure.
Appendix 4
Listed Buildings and Register Parks and Gardens - Listing Descriptions
MAP NO.1
GAWTHORPE HALL
List Entry Summary
This garden or other land is registered under the Historic Buildings and Ancient Monuments Act 1953 within the Register of Historic Parks and Gardens by English Heritage for its special historic interest.
Name: GAWTHORPE HALL List entry Number: 1000946 Location: The garden or other land may lie within the boundary of more than one authority. County: Lancashire District: Burnley District Type: District Authority Parish: Ightenhill County: Lancashire District: Burnley District Type: District Authority Parish: Padiham National Park: Not applicable to this List entry. Grade: II Date first registered: 01-Apr-1986 Date of most recent amendment: Not applicable to this List entry. Legacy System Information The contents of this record have been generated from a legacy data system. Legacy System: Parks and Gardens UID: 1944 Asset Groupings This list entry does not comprise part of an Asset Grouping. Asset Groupings are not part of the official record but are added later for information. List entry Description Summary of Garden Legacy Record - This information may be included in the List Entry Details. Reasons for Designation Legacy Record - This information may be included in the List Entry Details.
SUMMARY OF HISTORIC INTEREST
Formal gardens designed by Sir Charles Barry for Sir James Kay-Shuttleworth during the period 1850- 6 incorporating some elements of earlier C19 work.
HISTORIC DEVELOPMENT
Gawthorpe originated as a small agricultural settlement within the Royal Forest of Pendle. Land was held by Ughtred de Shuttleworth from 1388 and the first records of a house on the site date from the C15. The estate was passed down through the family but it was not used as the main residence from 1669 until 1816; Robert Shuttleworth then moved to Gawthorpe and instituted changes to the house and park. In 1842 Janet Shuttleworth married Dr James Kay and the family was known thereafter as Kay-Shuttleworth. The Hall and park remained in the family until it was passed to the National Trust in 1970. It is leased from the Trust by Lancashire County Council.
DESCRIPTION LOCATION, AREA, BOUNDARIES, LANDFORM, SETTING Gawthorpe Hall is situated on the north-eastern edge of Padiham. There is open agricultural land on the north-west, north and east sides of the site. The Hall stands on a platform c 50m from the banks of the River Calder and the land rises gently to the south and south-east from the riverbank. The boundary is formed by C20 fencing of various types along the edges of woodland.
ENTRANCES AND APPROACHES There are two main entrances, both with Jacobean-style stone lodges (listed grade II) of c 1850, probably designed by Charles Barry (1795-1860). Stockbridge Lodge is situated on the north side of Burnley Road c 750m from the centre of Padiham. Stockbridge Drive leads north-eastwards to the Hall; it is shown on an estate map of 1816 and an avenue is shown along part of its length on the 1st edition OS map published 1848. A double avenue begins c 100m north-east of Stockbridge Lodge. It becomes a single avenue which is lost as the drive enters woodland. Habergham Lodge is situated on Padiham Road, c 800m east of Stockbridge Lodge. A drive leads north-westwards to the Hall. An opening in the north side of a wall surrounding All Saints church, c 80m west of Habergham Lodge, leads to paths through woodland which run northwards to connect with Habergham Drive. A secondary entrance, consisting of primary and secondary gate piers flanking Gothic Revival-style iron gates (listed grade II), is situated on the drive c 350m south-west of the Hall. Habergham and Stockbridge Drives meet at a point c 50m south-west of the Hall and continue, through C20 gates flanked by shaped slabs with the words ?Shuttleworth Gawthorpe? inscribed upon them, to the principal entrance on the south side of the Hall.
PRINCIPAL BUILDING
Gawthorpe Hall (listed grade I) was built 1600-5 for Rev Lawrence Shuttleworth. The chief mason was Anthony Whitehead and although there are no records in the accounts of payments for drawings or a plan it is thought that the house was designed, or based on designs, by Robert Smythson (Girouard 1983). In 1849-51 Sir Charles Barry made various internal and external alterations including the addition of a Jacobean-style stone balustrade around the house. This was part of Barry's scheme to rectify what he described as 'a fine picture without a frame' and is integral to the formality of the gardens which were created on the north, east and south sides of the Hall.
Some 80m west of the Hall there is a range of estate buildings around a yard. These consist of the Great Barn of 1605 (listed grade I), a former coach house of c 1870 (listed grade II) attached to the south side of the barn, and an L-shaped range opposite the coach house (listed grade II) which consists of estate buildings with C17 origins which have been altered at various times in the C18, C19 and C20. These have been converted for various office, conference and restaurant uses. The yard is enclosed on the north and west sides by a wall (listed grade II) with gate piers and a doorway at the south-west angle.
GARDENS AND PLEASURE GROUNDS The north front of the Hall overlooks the River Calder, which was diverted away from the building in the C18 owing to its polluted condition. It was restored to the original course in the 1960s. A balustraded terrace (listed grade II) in front of the Hall bows outwards around a semicircular radial parterre. On each side of this there is a balustraded terraced walk which terminates to both east and west with an ornamental seat surmounted by Jacobean-style cresting. In the stonework above the eastern seat there is a carved inscription with the words 'Kynd Kynn Knawne Kepe', the Kay family motto. A corresponding inscription on the western seat reads 'Prudentia et Iustitia', which is the Shuttleworth motto. The balustrading is similar in style to the balustrade around the Hall and this part of the garden was designed by Charles Barry in c 1850. His son Edward designed the seats. A view of 1847 (guidebook) shows that this arrangement replaced a terraced walk with balustrading which overlooked the riverbed.
Stone steps lead up from the garden on each side of the Hall. These have stone urns decorated with encaustic tiles designed by A W N Pugin.
On the east side of the Hall is the Rose Garden which consists of a geometrical parterre which was restored in the late C20 to a simplified form of the original parterre, which was designed by Barry.
On the south side of the Hall a D-shaped gravelled area is aligned with the central main entrance. A formal garden designed by Barry c 1852-6 consists of a central rectangular lawn which was laid out as an elaborate geometrical parterre, shown in a photograph of c 1900 (private collection). Part of the design can be seen as parch-marks in the grass. Paths lead around the perimeter and terraces on the east and west sides of the lawn are reached by stone steps. More stone steps lead to secondary terraces on each side. Aligned with the front of the Hall, c 50m south of the entrance, there is a flight
of stone steps with urns, again decorated with tiles by Pugin, which lead up to a terrace, and a walk slopes upwards to a further, narrower flight of steps aligned with the first. This arrangement gives the vista up the steps and terraces added depth by exaggerating the perspective. Both terraces have gravelled walkways which join with Habergham Drive c 80m to the west, and curve around on the east side of the garden to lead back to the Hall entrance.
On the west side of the Hall the earth is banked up to conceal an entrance to the basement and a mid C19 game larder (listed grade II) c 40m west of the Hall. A belt of trees partially screens the barn and estate buildings.
The garden is surrounded by woodland with ornamental underplanting which provides a backdrop and gives closure to the garden. A painting attributed to Leonard Knyff (guidebook) of early C18 date shows that the garden on the south side of the Hall at that time was walled and laid out with formal rectangular flower beds. A map of 1816 which was made for Robert Shuttleworth when he moved to Gawthorpe suggests that the garden shown by Knyff was one of several walled compartments ranged around the Hall. By the time the view of 1847 was made, the gardens had been removed and grassland with clumps of trees surrounded the Hall on the north and east sides. The 1816 map shows that an L-shaped plantation sheltered the Hall on the north and east sides; this planting was extended during the C19.
KITCHEN GARDEN The kitchen garden is situated c 250m south-east of the Hall and it occupies an area marked 'gardens' on the 1816 map. It is reached via a path which leads through woodland from the Hall. The garden has a range of stone cottages and bothies along its north side which have been converted to two houses. Some 10m to the east of the garden is a tall circular brick chimney. The outer face of the east wall is of stone with stone buttresses. The other walls and all inner walls are of brick. Part of the wall in the south-west corner of the garden has been demolished. The main entrance to the garden is between the two houses on the north side where there is a rustic stonework tunnel. A map of 1921 (Cave) shows that this was enclosed with glass and that it led through to glasshouses along the north side of the garden.
REFERENCES The Victoria History of the County of Lancashire 6, (1911), pp 463-8 Country Life, 33 (10 May 1913), pp 670-4; 158 (4 September 1975), p 558; (11 September 1975), p 630; no 24 (11 June 1987), p 96 N Pevsner, The Buildings of England: North Lancashire (1969), pp 128-9 M Girouard, Robert Smythson and the Elizabethan Country House (1983), pp 177, 191-2 B Elliot, Victorian Gardens (1986), pp 68-9 Gawthorpe Hall, Lancs, Property Management Plan (National Trust 1991) Gawthorpe Hall, guidebook, (National Trust 1996) Maps Estate Map, 1816 C Greenwood, The County Palatine of Lancaster, 1818 OS 6" to 1 mile: 1st edition surveyed 1844-7, published 1848 2nd edition published 1909-10 OS 25" to 1 mile: 2nd edition surveyed 1890-1 Plan accompanying the lease of the kitchen garden to Thomas Cave, 1921 Description written: May 1997 Amended: June 1998 Register Inspector: CEH Edited: March 1999
MAP NO.2
BURNLEY SD8133 PADIHAM ROAD 906-1/6/113 (North side) 29/09/77 Habergham Lodge with attached gate piers GV II Entrance lodge to Gawthorpe Hall (not included), with attached gate piers. Probably c1849-51, by Sir Charles Barry, for James Kay-Shuttleworth of Gawthorpe Hall. Coursed sandstone rubble with ashlar dressings, hipped slate roof. Jacobean style. Rectangular single-depth double-fronted plan, parallel to the drive on its east side. EXTERIOR: 2 storeys, 1:1:1 windows, symmetrical, the centre breaking forwards slightly; with a chamfered plinth, clasping corner pilasters, a string course and broad band between floors, a moulded cornice, and a balustraded parapet (carried round) broken in the centre by an upstand with a carved coat of arms lettered "KS" and 3 obelisk finials (one damaged), and with unusual corner chimneys.
The centre has a shallow rectangular porch with a round-headed doorway which has a keystone, carved spandrels, and original double doors with glazed top panels (altered glazing), a moulded cornice and a balustraded parapet with ball finials to the corners. Both floors have 2-light mullioned windows with double-chamfered reveals and altered glazing. The south end wall has a rectangular bay at ground floor with a mullioned 3-light window and a balustraded parapet with ball finals (that to left missing), a 3-light window above, and a carved shield in the parapet ("KS" and 3 shuttles). The rear left corner has a short screen wall with a wide segmental-headed doorway. INTERIOR not inspected. SUBSIDIARY FEATURES: linked to the front by a low wall is a pair of gate piers: sandstone monoliths of stepped square section, approx 3m high, with segmental-pedimented caps and obelisk finials. Forms group with drinking fountain in boundary wall approx 15m south east (qv). Listing NGR: SD8103833502
MAP NO.3
BURNLEY SD8133 PADIHAM ROAD 906-1/6/114 (North side) 29/09/77 Drinking fountain set in wall approximately 15m south-east of Habergham Lodge (Formerly Listed as: PADIHAM ROAD (North side) Drinking fountain adjacent to Habergham Lodge) GV II Drinking fountain mounted in wall. Dated 1859. Polished pink granite. Approximately 0.5m high, with a semicircular bowl, a rectangular back plate with tap, inscribed "GAWTHORPE / KS" (=Kay- Shuttleworth), and a low triangular head inscribed "1859". Forms group with Habergham Lodge (qv). Listing NGR: SD8105833489
MAP NO.4
BURNLEY SD8033 PADIHAM ROAD 906-1/6/112 (North side) 29/09/77 Gateway and wall to churchyard of Church of All Saints (Formerly Listed as: Gateway and wall with Drinking Trough to All Saints Churchyard) GV II Boundary wall to churchyard, with entrance archway and former drinking trough. c1846-9. Probably by Weightman and Hadfield. Sandstone ashlar. The wall encloses all 4 sides of the rectangular churchyard, and has an eastward continuation to the junction with Habergham Lodge (qv), being approximately 150m long. It is approx 2m high and has a pitched coping; and at ground level at the west end is a small arched recess, approx 0.5m high and wide, formerly a drinking trough for the refreshment of horses which had climbed the hill from Padiham. The entrance archway, opposite the tower of the church, has a steep segmental arch with a moulded surround, and a pitched parapet with an apex cross (former cast-iron gates now removed). Forms group with Church of All Saints (qv); and with Habergham Lodge (qv). Listing NGR: SD8092433455
MAP NO.5
BURNLEY SD8033 PADIHAM ROAD 906-1/6/111 (North side) 29/09/77 Church of All Saints GV II Church. c1846-9. By Weightman and Hadfield. Sandstone ashlar, with graduated slate roofs. Simplified Decorated style. Nave with west steeple, north and south aisles, south porch, north and south chapels, chancel with north vestry. EXTERIOR: the large 3-stage west tower, which is embraced by the aisles, has angle buttresses, a 2- centred arched west doorway with 2 orders of moulding and a trefoil-headed opening; a large 2-
centred arched 4-light west window with elaborate moulding and multifoil tracery; 2-light belfry windows; corner grotesques; and a tall broach spire with lucarnes. The buttressed 5-bay south aisle has a gabled porch to the 2nd bay, with a 2-centred arched doorway and a vacant niche above this; and 2-light windows with cusped lights and varied multifoils in the heads; the chapel, to the right of this aisle and flush with it, is gabled and has a 3-light window; and all these openings have hood-moulds with large block stops. The north aisle is similar. The 5-bay nave, with lesenes and corbel tables, has one spherical-triangle clerestory window in each bay. The 2-bay chancel has a priest door, and windows of one and 2 lights in the south side, and a 5-light east window. INTERIOR: 5-bay aisle arcades of low cylindrical piers with moulded annular caps, and 2-centred double-chamfered arches with hood-moulds linked by figured stops; common-rafter roof; ornate chancel arch; Shuttleworth chapel to north; Dugdale chapel to south. HISTORY: paid for by the Shuttleworths of Gawthorpe Hall and the Dugdales, cotton manufacturers of Lowerhouse (representing the cooperation of landed and industrial wealth). Forms group with associated gateway and wall (qv); and its steeple is a very conspicuous feature of the skyline on this side of Burnley. Listing NGR: SD8092533488
MAP NO.6
BURNLEY SD8033 PADIHAM ROAD 906-1/6/110 (North side) 22/05/74 No.487 GV II Formerly known as: No.487 and Habergham Nursery School PADIHAM ROAD. Master's house to former school (demolished), now private dwelling house. Dated 1840 over doorway; altered, recently renovated, and the school buildings formerly attached at both ends and the rear demolished and partly rebuilt. Coursed squared sandstone (rear of random rubble), stone slate roof. Jacobean style. Double-depth double fronted plan. 2 storeys and 3 windows, almost symmetrical, with a coved gutter cornice; a Tudor-arched doorway in the centre with a square-headed reveal, a restored Tudor-panelled door and an overlight with 3 arched panes; a small datestone above the doorway with raised lettering "JS / 1840" (=Janet Shuttleworth); and 2 restored 2-light mullioned windows on each floor, all with restored sashed glazing and hood-moulds. Cut-down gable chimneys. (C20 single-storey wing to left replacing former school range, and rebuilt single-storey wing to right. INTERIOR not inspected. HISTORY: school established by Janet Shuttleworth of Gawthorpe Hall, in association with the Dugdale family of Lowerhouse, calico printers and cotton spinners and manufacturers. Listing NGR: SD8081633440
MAP NO.7
BURNLEY SD 83 SW PADIHAM BURNLEY ROAD (north side) 4/30 Boundary stone at SD 8046 3337 GV II Township boundary stone, probably early C19. Sandstone. Flat faced with semi-circular top. Front face inscribed 'Padiham'; rear face inscribed 'Habergm eaves'. Listing NGR: SD8044133371
MAP NO.8
BURNLEY SD 83 SW PADIHAM COWLEY CRESCENT (off) 4/37 Boundary stone at SD 8054 3323 GV II Township boundary stone, probably early C19. Sandstone. Flat-faced with semi-circular top. Front face inscribed 'Padiham'; rear face hidden but presumably inscribed 'Habergm Eaves'.
MAP NO.9
BURNLEY SD8032NE LOWERHOUSE LANE, Lowerhouse 906-1/11/228 (North side) 29/09/77 Nos.295-317 (Odd) GV II Row of 12 cottages. c1850-80. For Dugdale's Lowerhouse mill; altered. Watershot coursed squared sandstone (No.305 rendered, Nos 297 and 307 rendered and painted white, and Nos 299, 303, 313 and 315 painted) slate roof with stone chimneys. Double-depth plan, each cottage single-fronted. 2 storeys and 12 windows (one window each), with a continuous moulded gutter cornice sloping downwards from right to left; doorways to the right, all tall and segmental-headed, with plain surrounds and recessed altered doors with overlights, and those at Nos 297, 299, 307 and 315 with original dentilled lintels; segmental-headed windows on both floors, all with raised sills, plain surrounds and altered glazing. Complete set of 12 corniced stone "2-pot" chimneys on the ridge. INTERIOR not inspected. Forms group with Nos 274-298 (qv) and 304-8 (qv) on the opposite side of the road. Listing NGR: SD8076532747
MAP NO.10
BURNLEY SD8032NE LOWERHOUSE LANE, Lowerhouse 906-1/11/229 (South side) 29/09/77 Nos.304, 306 AND 308 GV II Row of 3 cottages. Probably late C18 or very early C19; altered. Coursed squared sandstone rubble with large quoins (No.304 rendered), stone slate roof with late C19 brick chimneys. Rectangular double-depth plan, each cottage single-fronted. 2 low storeys, 1+1+1 windows; doorways to the right with monolith jambs and lintels which are plain except for small stopped chamfer, and all with recessed C20 board doors; 4-pane sashed windows at ground floor, and low oblong 8-pane sashes immediately under the eaves (which oversail). Ridge chimneys. INTERIOR: surprisingly for such humble dwellings, No.304 has a complete cellar in 2 rooms, that to the rear with stone keeping slabs; others not inspected but may have similar cellars. Forms group with Nos 274-298 adjoining to the left and Nos 295-317 (qv) on opposite side of the road. Listing NGR: SD8075632713
MAP NO. 11
BURNLEY SD8032NE LOWERHOUSE LANE, Lowerhouse 906-1/11/225 (South side) 29/09/77 Nos.274-298 (Even) (Formerly Listed as: LOWERHOUSE LANE Nos.274-302 (Even)) GV II Row of 13 cottages. c1820-30. For Dugdale's Lowerhouse mill; altered. Coursed squared sandstone (Nos 276, 286 and 298 rendered, No.294 painted) stone slate roofs (except Nos 274-8 and No.282 which have composition tiles and No.280 which has Welsh slate) with brick chimneys mostly rendered. A long double-depth range on an obtusely-angled plan following the line of the road, canted back from No.288 which has a convex curved front; each cottage single-fronted. 2 low storeys, one 1st-floor window each except Nos 284 and 298 which have 2; with a continuous square-cut gutter cornice sloping downwards slightly from left to right; doorways to the left, mostly with monolith jambs and lintels which are plain except for small stopped chamfer, but some chisel-dressed, and all with recessed altered doors. Vertical-rectangular windows with raised sills and run-out rectangular lintels, all with altered glazing (and that at ground floor of No. 290 enlarged and furnished with a C20 small- paned bow). Lateral "3-pot" ridge chimneys altered but mostly with water-tabling and cornices. INTERIORS not inspected. Forms group with Nos 304-8 to the right and with Nos 295-317 (qv) on the opposite side of the road. Listing NGR: SD8082332738
MAP NO.12
BURNLEY SD8032NE LOWERHOUSE LANE, Lowerhouse 906-1/11/223 (South side) 29/09/77 Nos.204-238 (Even) GV II Row of 18 cottages, Nos 218 and 220 now a shop. c1820-30. For Dugdale's Lowerhouse mill; altered. Watershot coursed sandstone (No.234 painted), stone slate roofs (except No.222 and Nos 228 to 232 which are Welsh slate). Long rectangular double-depth plan, each cottage single-fronted. 2 low storeys, one window each, with a continuous square-cut gutter cornice; doorways to the right, all with plain surrounds but chamfered lintels (except Nos 218 and 220 which have altered surrounds), those to Nos 234 and 236 lower than the others, and all with recessed altered doors and overlights; windows with raised sills and rectangular lintels, all now with altered glazing; and corniced stone chimneys on the ridge. INTERIORS not inspected. Part of a relatively intact early C19 industrial colony at Lowerhouse, forming a group with Nos 2-22 Lowerhouse Fold opposite (qv). Listing NGR: SD8100832770
MAP NO.13
BURNLEY SD8032NE LOWERHOUSE FOLD, Lowerhouse 906-1/11/222 (North side) 29/09/77 Nos.2-22 (Even) GV II Row of 11 cottages. c1820-30. For Dugdale's Lowerhouse mill; altered. Coursed sandstone rubble (No.6 rendered and painted), stone slate roofs (except No.6 which has composition tiles); late C19 brick chimneys. Long rectangular double-depth plan, each cottage single-fronted. 2 low storeys, one window each; doorways of Nos 2, 4 and 6 to the right and the others to the left, all with plain surrounds (some with chamfered lintels) and altered doors; windows of Nos 2, 10, 14 and 22 with raised sills and plain reveals; those of Nos 4, 6, 8 and 16 with flush sills and plain reveals, and those of No.20 with raised surrounds, and all now with altered glazing. Ridge chimneys. INTERIOR not inspected. Part of a relatively intact early C19 industrial colony at Lowerhouse, forming a group with Nos 217-227 Lowerhouse Lane adjoining to the left (qv) and Nos 204-238 Lowerhouse Lane opposite (qv). Listing NGR: SD8099632817
MAP NO.14
BURNLEY SD8032NE LOWERHOUSE LANE, Lowerhouse 906-1/11/224 (North side) 29/09/77 Nos.217-227 (Odd) GV II Row of 6 cottages. c1820-30. For Dugdale's Lowerhouse mill; altered. Watershot coursed sandstone (Nos 219 to 223 painted), stone slate roofs to Nos 217 and 219, Welsh slate to Nos 221-227; rendered brick chimneys. Rectangular double-depth plan, each cottage single-fronted. 2 low storeys, one window each, with a continuous square-cut gutter cornice; doorways to the right, all with plain surrounds and altered doors; windows with raised sills and rectangular lintels, all now with altered glazing and those at No.221 now with widened openings containing C20 bowed glazing; ridge chimneys. Left gable coated with pitch. INTERIORS not inspected. Part of a relatively intact early C19 industrial colony at Lowerhouse, forming a group with Nos 204-238 opposite (qv) and with Nos 2-22 Lowerhouse Fold adjoining to the right (qv). Listing NGR: SD8096332779
MAP NO.15
BURNLEY SD8032NE LOWERHOUSE LANE, Lowerhouse 906-1/11/230 (North side) 29/09/77 Lamp post opposite No.217 GV II Lamp post. Later C19. Formerly in Grimshaw Street. Circular stone base; foliated cast-iron standard with ladder bars; Windsor lantern with corona (known locally as "P.20 gas lantern). Forms group with rows of cottages Nos 204-238 (qv), Nos 217-227 (qv), and Nos 2-22 Lowerhouse Fold (qv). Listing NGR: SD8098732785