Planning Applications.Pdf

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SHEFFIELD CITY COUNCIL Development, Environment and Leisure Directorate

REPORT TO CITY CENTRE SOUTH AND EAST PLANNING DATE 02/11/2009 AND HIGHWAYS AREA BOARD

REPORT OF DIRECTOR OF DEVELOPMENT SERVICES ITEM

SUBJECT APPLICATIONS UNDER VARIOUS ACTS/REGULATIONS

SUMMARY

RECOMMENDATIONS

SEE RECOMMENDATIONS HEREIN

THE BACKGROUND PAPERS ARE IN THE FILES IN RESPECT OF THE PLANNING APPLICATIONS NUMBERED.

FINANCIAL IMPLICATIONS N/A PARAGRAPHS

CLEARED BY

BACKGROUND PAPERS

CONTACT POINT FOR Chris Heeley TEL 0114 2736329 ACCESS Lucy Bond NO: 0114 2734556

AREA(S) AFFECTED

CATEGORY OF REPORT

OPEN

Application No. Location Page No.

09/02982/FUL Co-op Supermarket Devonshire Terrace Road 7 Sheffield S17 3EF

09/02978/FUL Parking Bay Opposite The Hicks Building (University Of Sheffield) 14 Hounsfield Road Sheffield S3 7RF

09/02904/FUL 199 Dobcroft Road Sheffield 18 S11 9LF

09/02852/LBC Park Hill Flats (formerly 27-84 Gilbert Row Duke Street, 27-84 Hague Row, Long Henry Row And 25 Norwich Row, Talbot Street) Duke Street Park Hill Sheffield

09/02783/FUL Sheffield Parkway Iconic Bridge Sheffield Parkway 36 Sheffield

09/02740/CHU 31 And 33 Romandale Gardens Sheffield 46 S2 1DL

09/02726/LBC 35 Well Meadow Street Sheffield 49 S3 7GS

09/02640/FUL Land Between Arc Car Wash And Church Of Jesus Christ Apostolic Incorporated 56 Main Road Darnall Sheffield

09/02597/FUL Land Between Cumberland Street Eyre Street Earl Street And The Moor 76 (New Block 6, The Moor) Sheffield

09/02571/CHU Express Hand Car Wash 270 Handsworth Road 98 Sheffield S13 9BX

09/02534/FUL All Saints Roman Catholic School Granville Road 106 Sheffield S2 2RJ

09/02488/OUT Sheffield United Football Club Bramall Lane 123 Highfield Sheffield S2 4RD

09/02399/LBC Eckington Hall Farm South Street 142 Mosborough Sheffield S20 5DF

09/02398/FUL Eckington Hall Farm South Street 148 Mosborough Sheffield S20 5DF

4 09/02375/FUL Paved Area Opposite 123 Norfolk Street 163 Sheffield S1 2JB

09/02373/FUL (Formerly PP- 10 Hutcliffe Wood Road 00790714) Sheffield 169 S8 0EX

09/02372/LBC 87 Pinstone Street Sheffield 174 S1 2HJ

09/02033/FUL Land East Of Alison Centre And Rear Of Manor Community Childcare Centre 179 Alison Crescent Sheffield

09/02016/FUL 648 Chesterfield Road Sheffield 211 S8 0SB

09/01891/FUL Curtilage Of 49 Church Lane Dore 218 Sheffield S17 3GT

09/00523/FUL Site Of 1, 3 And 5 Savile Street Sheffield 227 S4 7UD

08/05888/CHU Land Adjacent To 28 Brushfield Grove Sheffield 303 S12 4XR

06/01076/CAC Holiday Inn (Posthouse Hotel) Manchester Road 307 Sheffield S10 5DX

06/00836/FUL Holiday Inn (Posthouse Hotel) Manchester Road 310 Sheffield S10 5DX

5 6 SHEFFIELD CITY COUNCIL

Report Of The Head Of Planning, Transport And Highways, Development, Environment And Leisure To The City Centre South and East Planning And Highways Area Board Date Of Meeting: 02/11/2009

LIST OF PLANNING APPLICATIONS FOR DECISION OR INFORMATION

*NOTE* Under the heading “Representations” a Brief Summary of Representations received up to a week before the Area Board date is given (later representations will be reported verbally). The main points only are given for ease of reference. The full letters are on the application file, which is available to members and the public and will be at the meeting.

Case Number 09/02982/FUL

Application Type A Full Planning Application

Proposal Application under Sec 73 to vary condition 4 (delivery times) imposed by application number 96/5151P to enable deliveries to take place between the hours of 0730 hours and 1800 hours on weekdays and 0800 hours and 1800 hours on weekends and public holidays

Location Co-op Supermarket Devonshire Terrace Road Sheffield S17 3EF

Date Received 23/09/2009

Team SOUTH

Applicant/Agent Nathaniel Lichfield And Partners

Recommendation Grant Conditionally

Subject to:

4 Deliveries to the retail building shall only take place between 0730 and 1800 hours on Mondays to Fridays and 0800 and 1800 hours on Saturdays, Sundays and Public Holidays. All deliveries to the store between the hours of 07.30 and 08.00 hours on Mondays to Fridays shall be carried out in accordance with the 'Code of Best Practice for the Management and Operation of the Delivery Process at the Co-op Store, Dore' as submitted in October 2009.

7 In the interests of the amenities of the locality and occupiers of adjoining property.

Attention is drawn to the following justifications:

1. The decision to grant planning permission and impose any conditions has been taken having regard to the policies and proposals in the Sheffield Unitary Development Plan and adopted Core Strategy set out below:

S10 - Conditions on Development in Shopping Centres

and to all relevant material considerations, including Supplementary Planning Guidance.

This informative is intended as a summary of the reasons for grant of planning permission. For further detail on the decision please see the application report by contacting the Planning Records section on 2734220 or by visiting Sheffield City Council’s website at www.sheffield.gov.uk/your- city-council/council-meetings/planning-boards

8 Site Location

LOCATION AND PROPOSAL

The site is an A1 Retail, mini-supermarket use, located on the east side of Devonshire Terrace Road, which is a one-way street with vehicles being allowed to travel northward along Devonshire Terrace Road.

It is located within a Local Shopping Centre under the provisions of the Unitary Development Plan, however, there are a number of residential dwellings to the north and west of the site. Those to the north are designated as being in the Local Shopping Centre, whilst those to the west are designated within a Housing Area.

The application seeks consent to vary a condition which was imposed upon a previously granted consent (95/5151P), to enable deliveries to the store to be made between the hours of 07.30 and 18.00 on weekdays and 08.00 and 18.00 on weekends and bank holidays. The condition imposed upon 95/5151P allows

9 deliveries between 08.00 and 18.00 on weekdays and 08.00 and 18.00 on weekends and bank holidays.

This application is therefore seeking consent to commence deliveries 30 minutes earlier, on weekdays only.

RELEVANT PLANNING HISTORY

A consent was granted in November 2008 (under reference 08/05087/FUL) also allowing a variation of condition 4 of 95/5151P, to:

Deliveries to the retail building shall only take place between 0800 and 1800 hours on Monday to Friday and 0800 and 1800 hours on Saturday, Sunday and Public Holidays, except for a period of 12 months from the date of this permission, during which period deliveries between 0700 and 0800 hours will also be permitted on Mondays to Fridays.

SUMMARY OF REPRESENTATIONS

Following neighbour notification and the placement of a site notice, a total of five representations have been received. The comments can be summarised as follows:

Impact upon peace and quiet within Dore village, and on quality of residents’ lives.

Impact on Sunday or Bank Holiday lie-ins. Lorries can be heard from bedroom windows.

Lorries arrive before the allowable delivery time, and drivers prepare to carry out deliveries. Engines and refrigeration equipment is often left running. Noisy metal wagons are taken over public footpath as the delivery bay is too small.

Drivers overlook neighbours getting dressed etc. An earlier time would push these impacts earlier into the day.

Query reason for granting previous application for 12 month period. Neighbours have not been involved in any assessment or discussions.

Query what has changed since the original delivery hours were imposed to the proposed change.

Lorries have a detrimental impact upon the conservation area.

Query details and accuracy of noise assessments.

The stated reason of providing extra flexibility, ignores neighbours’ observations that all opportunities are exploited to the full by the store.

Activity now takes place during 15 of every 24 hours, 7 days a week.

10 Current parking difficulties/congestion.

Compatibility within a Conservation Area.

In addition a letter has been received from Nick Clegg M.P. on behalf of a neighbouring resident, asking that the residents comments sent independently are taken into account.

Applicant’s Submission

A Noise Assessment has been submitted with the application, and can be summarised as follows:

-Noise assessments were taken during the 7-8am period on two separate days. No deliveries took place during these periods but assessments did continue to cover later deliveries.

-On both occasions there were intermittent traffic movements on Devonshire Terrace Road through the 7-8am period, with more frequent traffic on Causeway Head Road. There is also the bus terminus on Devonshire Terrace Road to the south of the store, where buses generally arrive and wait a while (normally with engine off). Four buses passed the measurement point in the 7-8am period on both days.

- The area is described as being busy in the 7-8am period with considerable levels of traffic and pedestrians including working people and school pupils catching the bus. Therefore, the noise impact of deliveries in this period would not be as high as they would be if the area were otherwise quiet. The ambient noise levels in the absence of deliveries are reasonably high because of passing cars, vans, buses and other noises such as refuse collection vehicles.

-The noise levels are said to be variable in the 7-8am period. During the period high noise levels were recorded in the period immediately after 7am, meaning that extension of the delivery period back to 7am does not move it into a time which is significantly quieter in the absence of deliveries.

-7-8am is still within the period normally considered as daytime for noise assessment purposes.

-During the 1st of the 2 surveys delivery noise levels were 3-4dB above the highest ambient noise levels recorded in the 7-8am period. No deliveries occurred in this period. The 2nd survey information was adversely affected by refuse vehicle activity.

-There is said to be a modest uplift in noise levels but the delivery noise impact would be controlled by adherence to the Code of Best Practice which formed a condition of the temporary planning consent. It is advised that he Code of Best Practice is continued to be followed in this case.

11 PLANNING ASSESSMENT

Land Use Policy

The site is identified by the Unitary Development Plan (UDP) as being within a Local Shopping Centre. The proposal is required to be assessed under the provisions of policy S10 of the UDP, covering “Conditions on Development in Shopping Centres”, which amongst other things states that in shopping centres development will be permitted provided it would: b. not cause residents or visitors in any housing to suffer from unacceptable living conditions, including air pollution, noise, other risk or health or safety c. provide, where appropriate, an environmental buffer to shield sensitive land uses.

Impact of Proposed Variation in the Condition

The application seeks consent to amend the condition covering the hours during which deliveries to the store are able to be made. The initially proposed variation sought to allow deliveries from 07.00 to 18.00 on weekdays, and this has been revised to 07.30 to 18.00. No variation to the allowable delivery hours at weekends and bank holidays is proposed.

The existing condition allows deliveries from 08.00 to 18.00 on weekdays.

The Noise Survey submitted with the application states that the ambient noise levels from approximately 07.00 to 08.00 hours were variable, with high ambient noise levels immediately after 7am. Consequently it was argued that deliveries at 7am would not lead to them taking place at a time which is significantly quieter.

Officers have visited the site during the 7-8am period, and observed that background noise levels were very low between 7am and 7.30am. There were only a handful of car/vehicle movements along Devonshire Terrace Road during this period. Only two buses are scheduled to pass during this same phase. Indeed the noise levels recorded during the noise assessment back this up, rather than wholly supporting the view given in the noise assessment that noise levels immediately after 07.00 are high.

In addition a delivery was observed by officers, during which the main noises were caused by the wheeling of goods trolleys (full and empty) from the vehicle across the footpath to and/or around the service yard. Additionally, bangs, crashes and single loud noise occurrences associated with the opening and closing of the hydraulic tail lift, the dropping of the plates on to the road/footpath, and the removal of support framework inside the lorry to secure the trolleys were observed.

There are several houses located within 10 - 12 metres from where deliveries are most likely to take place. It is considered that the impacts of these noises would be sufficiently significant to have a detrimental impact on the amenities of these neighbours, in addition to less immediate neighbours.

12 During the period after 7.30am the level of noise at Devonshire Terrace Road increased, with more vehicle movements being the most notable source. It is considered that this increase in noise levels would be sufficient to enable the noise created during deliveries to be of less impact. On this basis it is not considered that deliveries during the 7.30 to 8.00am period would have a harmful impact on amenities of the neighbouring occupiers referred to here.

It is recommended within the Applicants Noise Assessment that the Code of Best Practice which was imposed as a condition of the temporary consent is required to be followed as part of any approval in this case. The Code of Best Practice requires delivery vehicle engines and refrigeration equipment to be turned off, and radios/music in the cab to be turned off etc. This is considered to be an appropriate approach.

On the basis of the details of the revised proposal, it is considered that the amended condition would have an acceptable impact upon the amenities of neighbouring occupiers. As such the proposal would be considered to be acceptable, and to satisfy the provisions of adopted UDP policy S10.

Highways Issues

Comments have been made by neighbours relating to parking difficulties and congestion along Devonshire Terrace Road being worsened by the proposed additional delivery period. The existing levels of parking along Devonshire Terrace Road would not be considered to be sufficiently high to result in the proposed additional delivery period leading to harmful impacts in highway safety and vehicular movement terms. As such the proposal is considered to be acceptable in this regard.

RESPONSE TO REPRESENTATIONS

The majority of points raised above have been addressed in the main assessment. In relation to the outstanding points the following comments can be made:

It is conceivable that drivers preparing to make a delivery would constitute a delivery being made, which should only be carried out within the allowed delivery hours.

Comments have been made stating that neighbours have not been involved in discussions through the 12 month period. The intention of granting consent for 12 months was to allow for monitoring to occur, rather than to engage in direct liaison with neighbours. This monitoring, and assessment of the acceptability of additional deliveries being made has been undertaken. This has involved notification of neighbours, providing opportunities to make representations.

The point has been made that the store operates to the maximum extent of any restrictions placed on it. It is understood that approximately 20 deliveries in total have been made during the 7-8am period during the last 12 months. Having said this obviously the application has to be assessed on the basis that any increase of

13 allowed delivery hours will be utilised to their maximum potential. This assessment has been carried out with the conclusion that the impacts would be acceptable.

The proposal is not considered to lead to any detrimental impacts upon the character of the Conservation Area.

SUMMARY AND RECOMMENDATION

The application seeks consent to alter Condition 4 of 95/5151P which restricts deliveries to the store to between 08.00 and 18.00 hours on any day. The application seeks to enable deliveries to commence at 07.30 hours on weekdays. This is considered to avoid having a significantly demonstrable harmful impact upon the amenities of neighbouring occupiers. Compliance with the Delivery Management Document / Code of Best Practice would secure certain provisions which would minimise the impacts of any deliveries undertaken during this period, and is therefore recommended to be added as a condition. Overall, the proposal is considered to be acceptable and conditional approval is recommended.

Case Number 09/02978/FUL

Application Type A Full Planning Application

Proposal Application to vary condition 2 of planning application 09/01796/FUL (Use of parking bays for selling food from a mobile catering van) to allow opening from 18:30 to 04:00 (Application Under Section 73)

Location Parking Bay Opposite The Hicks Building (University Of Sheffield) Hounsfield Road Sheffield S3 7RF

Date Received 24/09/2009

Team CITY CENTRE AND EAST

Applicant/Agent Mr D Hamroun

Recommendation Grant Conditionally

Subject to:

1 The site shall be used for the above mentioned purpose only between 1830 hours and 0400 hours on any day.

In the interests of ensuring adequate public parking is available and in the interest of traffic and pedestrian safety.

Attention is drawn to the following justifications:

CF7 Development in Institution: Education Areas CF8 Conditions on Development in Institution Areas

and to all relevant material considerations, including Supplementary Planning Guidance.

15 Site Location

LOCATION AND PROPOSAL

The application site is located at the north end of Hounsfield Road close to Western Bank. It comprises of 5 on street parking bays that are pay and display bays between 8 am and 6.30 pm Monday to Saturday. The site adjoins buildings in education use and also a surface car park.

The applicant was granted planning permission in July of this year to park his catering van on the site between the hours of 6.30 pm and 2am. The applicant had applied to operate the use until 2am on Fridays and Saturdays and until 1am on other days. However as there was considered to be no significant amenity issues, consent was granted to until 2am on all days.

Having operated for a short period of time, the applicant has now decided that he needs open until 4am in order for the business to be viable. Therefore an application has been made to vary the operating hour’s condition on the original permission.

RELEVANT PLANNING HISTORY

Planning permission was granted in July 2009 for use of parking bays for selling food from a mobile catering van, planning permission 09/01796/FUL.

SUMMARY OF REPRESENTATIONS

None received.

PLANNING ASSESSMENT

Policy Issues.

The application site lies in an Institution Education policy area in the Unitary Development Plan, policy CF7. Preferred uses are education uses and other community facilities, food and drink uses are acceptable in this policy area. Policy CF8 states that in institution areas development must not cause residents or visitors to any hotel, hostel, residential institution or housing to suffer from unacceptable living conditions, including air pollution, noise, or other nuisance.

Amenity Issues.

There are no residential uses near the site. The adjoining education buildings are also only likely to have low levels of usage when the catering van is on site. Therefore the extended operating hours should not cause noise disturbance or detract from the amenities of adjoining properties due to smells.

SUMMARY AND RECOMMENDATION

Due to the location of this particular site, it is considered that extending the opening hours to 4am, will not be detrimental the amenities of the area. Therefore it is recommended that planning consent be granted.

Case Number 09/02904/FUL

Application Type A Full Planning Application

Proposal Two/single storey rear extension, including juliet balcony and front porch (as amended plan received 19.10.09)

Location 199 Dobcroft Road Sheffield S11 9LF

Date Received 15/09/2009

Team SOUTH

Applicant/Agent Paul Goudge Design

Recommendation Grant Conditionally

Subject to:

1 The development shall be begun not later than the expiration of three years from the date of this decision.

In order to comply with the requirements of the Town and Country Planning Act.

2 The proposed facing materials shall match the facing materials to the existing building.

In the interests of the visual amenities of the locality.

3 The proposed roofing materials shall match the roofing materials to the existing building.

In the interests of the visual amenities of the locality.

4 The window on the side elevation of the two-storey rear extension hereby permitted facing No. 201 Dobcroft Road shall be top-opening only and shall be glazed with obscure glass to a minimum privacy standard of Level 4 Obscurity and shall not at any time be side opening or glazed with clear glass without the prior written agreement of the Local Planning Authority.

In the interests of the amenities of occupiers of adjoining property.

5 Notwithstanding the provisions of the Town and Country Planning (General Permitted Development) Order 1995 (and any order revoking and re- enacting the order) no windows or other openings shall be formed in the

18 side elevations of the two-storey rear hereby permitted facing Nos. 197 and 201 Dobcroft Road without the prior written consent of the Local Planning Authority.

In the interests of the amenities of occupiers of adjoining property.

6 The development must be carried out in complete accordance with the following approved documents, 3777/1/09 and 3777/3/09 unless otherwise authorised in writing by the Local Planning Authority.

In order to define the permission.

Attention is drawn to the following justifications:

H14 - Conditions on Development in Housing Areas and SPG - Designing House Extensions

and to all relevant material considerations, including Supplementary Planning Guidance.

19 Site Location

LOCATION AND PROPOSAL

The application relates to a brick built detached dwellinghouse located in a Housing Area, as designated in the Sheffield Unitary Development Plan (UDP). The site comprises a lawned front garden with sufficient hardstanding for the parking of approximately two vehicles in addition to an integral single garage and a large rear garden with mature trees adjacent to the rear boundary.

The streetscene is characterised by large detached dwellinghouses located within ample plots. There are a range of building forms along Dobcroft Road with no prevailing architectural style or palette of materials.

Planning permission is sought for the construction of a two-storey rear extension adjacent to the boundary with 197 Dobcroft Road and a single-storey rear extension along the remainder of the rear elevation. A Juliet balcony is proposed on the rear of the two-storey extension and it is also proposed to construct a front porch.

RELEVANT PLANNING HISTORY

There is no planning history associated with the application property.

The neighbouring property, 201 Dobcroft Road, obtained planning permission 05/00775/FUL for the erection of a single-storey rear extension to dwellinghouse. This extension has been constructed and is located adjacent to the boundary with the application site.

SUMMARY OF REPRESENTATIONS

There have been three neighbour representations received regarding this application. One expressed no objection to the proposal. The other two objected on the following grounds:

201 Dobcroft Road:

− Overlooking/loss of privacy of garden and dwelling from side facing bedroom window − In general design of proposal is in keeping and sympathetic

197 Dobcroft Road:

− 1.1 metres between landing windows and side of proposed two-storey extension therefore considerable overshadowing/loss of light − Overly dominant two-storey extension − Detrimental impact on outlook − Extension contravenes 45o rule − No other light sources to hall and landing − Concerns regarding impact on drainage and the surface of the narrow path between the two properties − Health and safety issues during construction and restricted access to this neighbouring property − Juliet balcony out of keeping − Suggest single-storey extension or relocation of two-storey extension closer to No. 201

Cllr Reynolds has submitted a representation supporting the objections of No. 197 on the grounds of loos of light and detrimental impact on outlook.

Cllr Dunkley has also written in supporting the objections of No. 197 on all grounds.

PLANNING ASSESSMENT

Design and Appearance

The proposed extensions have been well designed to reflect the form, scale and character of the subject dwelling. All materials employed in the construction of the

21 two and single-storey rear extensions and the front porch are to match the existing and this will prevent the structures from appearing as incongruous additions to the property. This supports the aims of the SPG on Design House Extensions and Unitary Development Plan Policy H14 ‘Conditions on Development in Housing Area’ which states that:

In Housing Areas, new development or change of use will be permitted provided that: a) new buildings and extensions are well designed and would be in scale and character with neighbouring buildings

The front porch has a hipped roof that reflects part of the roof of the main dwelling. The porch is a relatively modest structure that ties in with the form and character of the dwelling. A feature window with curved lintel has been incorporated into the design of the porch. This feature is replicated on the front elevation of the dwelling (to the staircase) which gives the frontage a co-ordinated and attractive appearance.

The two-storey rear extension has a hipped roof that ties into the main roof of the dwelling albeit at a lower level than the main ridgeline. The hipped roof form keeps the mass of the two-storey extension to a minimum.

A Juliet balcony with glazed balustrade is proposed on the rear of the two-storey extension. This feature is not visible from any public areas and as such will not impact on the character of the subject dwelling. The Juliet is recessed behind the rear building line of the nearest dwelling, 197 Dobcroft Road, and its modest scale will ensure that it does not appear overly prominent when viewed from neighbouring properties.

The single-storey extension has a mono-pitched roof of a similar pitch to the main roof of the dwelling. The single-storey extension and ground floor of the two-storey extension have large glazed doors. These give the structure a contemporary appearance that complements the character of the original dwelling whilst not impacting on the privacy of adjoining properties.

Amenity Issues

UDP Policy H14 also states that development will be permitted provided that: c) the site would not be over-developed or deprive residents of light, privacy or security, or cause serious loss of existing garden space which would harm the character of the neighbourhood

This is further emphasised in the SPG on Designing House Extensions in which Guideline 5 is concerned with overshadowing and overdominance and Guideline 6 relates to overlooking and issues of privacy

The windows on the front and rear of the proposed extensions are a sufficient distance from directly facing dwellings to ensure no overlooking or threat to

22 privacy. The first-floor Juliet is located in close proximity to the boundary with No. 197. However, it is recessed behind the rear building line of this neighbouring dwelling which will screen it from their private amenity space. The field of view from the Juliet will predominantly encompass the rear garden of the site and will not intrude on the privacy of either adjoining property.

One side facing window is proposed at first-floor level to the master bedroom. This window faces towards 201 Dobcroft Road and is located approximately 7.5 metres from the shared boundary. This window is a secondary window to the bedroom which also has double opening glazed doors on the rear. After discussion with the agent it has been agreed that this window will be obscure glazed and top-opening in the interest of neighbouring privacy. A condition to this affect will be attached to any planning approval.

The neighbouring property No. 201 has an existing single-storey rear extension adjacent to the boundary with the application site. The proposed single-storey extension is located parallel to the boundary with No. 201 and projects approximately 3 metres from the rear elevation. This extension will be screened from No. 201 by their existing extension and will not have an overbearing impact on it. It should also be noted that if constructed alone a single-storey rear extension of up to 4 metres from the original rear elevation of the property could be constructed under permitted development rights without the need for a full planning application.

The subject dwelling has an unusual relationship with No. 197 Dobcroft Road with the neighbouring dwelling projecting significantly beyond the rear building line of No. 199. There are also three windows located on the side elevation of No. 197 that are approximately 1.1 metres from the boundary with the application property. One of these windows is small and obscure glazed. However, the two larger windows are glazed with clear glass and directly overlook the application site. These windows are to a ground floor hallway and first-floor landing, neither of which are considered main habitable rooms.

The proposed two-storey extension runs adjacent to the boundary with No. 197 and is located approximately 1.1 metres from the hall and landing windows of this neighbouring property. These windows will experience a loss of light and outlook from the proposed two-storey extension which is not an ideal situation. However, these windows are unreasonably borrowing amenity from the application site and would not be permitted if they themselves were part of a planning proposal (for reasons of overlooking as well as the unacceptable borrowing of amenity from the application site). Moreover, these windows are not to habitable rooms and although the neighbour states that they are the only light source to the hall and landing there is in fact a second window to the landing on the front elevation and a glazed porch to the hallway. Therefore, although not an ideal situation it is considered that on balance a planning refusal could not be substantiated on the grounds of loss of light to the landing and hall windows of No. 197.

Highways

23 The parking provision at the property will remain as existing and the number of bedrooms will decrease as a result of the works. The two parking bays within the front curtilage of the site and single garage are deemed sufficient to serve the existing four bedroomed dwelling and remain ample to serve the resulting three- bedroomed property.

RESPONSE TO REPRESENTATIONS

Extensions contravenes 45o rule

The 45o rule as outlined in SPG Guideline 5 is applied to two-storey extensions that project to the rear of a neighbouring property and associated rear facing windows and not to extensions to the side of neighbouring windows

Issues of health and safety, construction and damage to neighbouring properties are all private matters that cannot be dealt with as part of a planning application

SUMMARY AND RECOMMENDATION

The proposed two and single-storey rear extension and front porch are considered acceptable in terms of the scale, form, materials and impact on neighbouring dwellings. It therefore complies with Unitary Development Plan Policy H14 and the Supplementary Planning Guidance: Designing Housing Extensions.

Case Number 09/02852/LBC

Application Type Listed Building Consent Application

Proposal Amendment to Listed Building Consent 07/02475/LBC comprising alterations to Cut and Core Design in relation to Park Hill Phase 1

Location Park Hill Flats (formerly 27-84 Gilbert Row Duke Street, 27-84 Hague Row, Long Henry Row And Norwich Row, Talbot Street) Duke Street Park Hill Sheffield

Date Received 07/09/2009

Team CITY CENTRE AND EAST

Applicant/Agent Hawkins/Brown

Recommendation Grant Conditionally Subject to S of S

Subject to:

1 The development shall be begun not later than the expiration of three years from the date of this decision.

In order to comply with the requirements of the Planning (Listed Buildings and Conservation Areas) Regulations 1990.

2 The development must be carried out in complete accordance with the following approved documents:

Plans 21-100 Rev 01, 21-200 Rev 01, 21-201 Rev 01, 21-202 Rev 01, 21- 203 Rev 01, 21-204 Rev 01, 21-205 Rev 01, 21-206 Rev 01, 21-207 Rev - 01, 21-302 Rev 01, 21-301 Rev 01, 21-303, 21-304, 21-305, 21-401, 815- 21-501, 815-21-502, 815-21-603, 815-21-504, 815-21-505, 815-21-506, 815-21-507, 21-400, 21-402

unless otherwise authorised in writing by the Local Planning Authority.

In order to define the permission.

3 Samples of all proposed external materials and shall be submitted to and approved in writing by the Local Planning Authority before the development is commenced to specifically include the following:

25 (i) Glazing; (ii) Balustrade; (iii) All finishes within the Cut (floor and walls).

Thereafter, the development shall be carried out in accordance with the approved details.

To ensure an appropriate quality of development in relation to this Grade II* Listed Building in accordance with Policy BE15 and BE19 of the Unitary Development Plan.

4 Notwithstanding the approved plans, details and specifications of the balustrade shall be submitted to and approved in writing by the Local Planning Authority before the commencement of development. Thereafter, the development shall be carried out in accordance with the approved details.

To ensure an appropriate quality of development in relation to this Grade II* Listed Building in accordance with Policy BE15 and BE19 of the Unitary Development Plan.

Attention is drawn to the following justifications:

1. The decision to grant listed building consent and impose any conditions has been taken having regard to the policies and proposals in the Sheffield Unitary Development Plan and adopted Core Strategy set out below:

BE15 - Areas and Buildings of Special Architectural and Historic Interest BE19 - Development affecting Listed Buildings PPG15

and to all relevant material considerations, including Supplementary Planning Guidance.

Attention is drawn to the following directives:

1. The applicant is advised to note that this permission relates solely to the Cut and Core. As such, in order to commence the construction of Phase 1, the conditions set out in accordance with Listed Building Consent 07/02475/LBC and Reserved Matters application 07/02476/REM remain relevant.

26 Site Location

INTRODUCTION

Members may recall granting outline planning permission and listed building consent on 21st August 2006 for the comprehensive refurbishment and regeneration of the entire Grade II* Listed Park Hill Estate in four phases (06/00848/OUT and 06/00849/LBC).

Subsequently, on 2nd October 2007 the City Centre South and East Planning and Highways Board approved a reserved matters application (07/02476/REM) and associated listed building consent (07/02475/LBC) for the detailed re-development of Phase 1 in terms of its design, external appearance, access arrangements and landscaping. Phase 1 relates to the north block, which directly overlooks the City and the Railway Station; it is the block upon which preparation work is presently underway.

27 This Listed Building Consent application arises as a consequence of a design alteration to the ‘Cut and Core’ of Phase 1, as approved by the 2007 reserved matters and associated LBC consents. “The Cut’ is the description given by Urban Splash to the main entrance to Park Hill from the City within the above applications whilst ‘The Core’ refers to the means of access (lift and stair cores) for future occupiers of Phase 1 onto the access decks. This current application is deemed necessary because the revised cut and core design results in internal remodelling, which could not be considered as a revision to the Phase 1 Listed Building Consent approved in October 2007 (07/02475/LBC). However, given that the works are largely internal and a relatively minor amendment in the context of the overall scale of the development at Park Hill, it has been determined that there is no separate need for planning permission.

Members will note that scaffolding has been erected on part of the front flank of the Phase 1 North Block. This was initially installed in November 2007, principally to enable asbestos removal and the complete demolition of the interior walls and removal of the façade. The scaffolding was erected once more on 5th May 2009, principally to enable repairs to the concrete structure and waterproofing of the roof. It will also subsequently enable ‘enveloping works’ in terms of the installation of the external façade treatment in accordance with the approved scheme.

For Members information, the entire Park Hill Estate was Grade II* Listed by English Heritage in 1998. Grade II* Listed Buildings are defined by English Heritage as particularly important buildings of more than special interest. Indeed, Park Hill is one of only nine listed post-war public housing schemes in England. At the time of construction, the aspiration to re-create the social mix of traditional streets by using external access decks, or “streets in the sky” was considered groundbreaking and it was one of the main reason that the Estate was listed. The listing also acknowledges that Park Hill’s significance comes from a very strong architectural design that is expressed typically through its plan, its external decks and its exposed concrete structure, which are all retained as part of the 2007 approvals to be implemented on site.

LOCATION AND PROPOSAL

As set out above, this Listed Building Consent application relates to Phase 1 of the regeneration of Park Hill, which is also referred to as the North Block. Phase 1 formerly comprised 312 residential units at 1 – 84 of Gilbert Row, 1-84 of Hague Row, 1-84 of Long Henry Row and 1-84 of Norwich Row with retail and commercial units (Use Class A1 – A4) located on the ground floor. It has three principal flanks that are cranked at obtuse angles of between 112 and 135 degrees. The block varies in scale between 10 and 13 storeys albeit that it retains a continuous roofline to emphasise the slope of the site, which is one of the characteristic features of Park Hill.

These flats and commercial units have now been dismantled in preparation for the implementation of the approved Phase 1 scheme in accordance with the 2007 consents (07/02476/REM and 07/02475/LBC).

The approved Reserved Matters application principally secured the following:

− The reconfiguration and refurbishment of all residential units within the North Block to create 321 units comprising 196 x 1-bedrooms, 107 x 2-bedrooms and 18 x 3 bedrooms;

− External alterations to the facades to include repair to the concrete frame, removal of the existing concrete balustrades and replacement with new concrete balustrades, removal of existing fenestration and replacement with new thermally efficient fenestration, removal of the existing brickwork infill panels and replacement with anodised aluminium panels that reflect the colour tones of the former brickwork;

− The removal of a bay four storeys high and four wide to create ‘The Cut’ as a new entrance to Park Hill from the City;

− The construction of external stair and lift cores as separate structures to the rear of the north block;

− The conversion and change of use of the ground floor to secure a double- height space comprising a mix of retail and commercial units (bars and restaurants, gallery space);

− Approval for the construction of a 9-storey split-level multi-storey car park fronting Duke Street to provide approximately 800 spaces to serve the entire Park Hill Estate; and

− Landscaping of Phase 1 including the creation of a new landscaped route through South Street Park to the Station.

The accompanying Listed Building Consent effectively secured approval for the specific structural alterations to the Grade II* Listed required as part of the Phase 1 reserved matters approval.

This application is a Listed Building Consent that relates solely to the design of the “Cut and Core’ and is effectively sought as a revision to the approved Phase 1 Listed Building Consent (07/02457/LBC).

As part of the approved 2007 scheme, ‘The Cut’ comprises the removal of a section of the structural concrete frame that is four storeys high and four bays wide to create a new entrance to Park Hill and a transformed sense of arrival at Park Hill from the City. The approved plans also propose external lift and stair cores as separate structures situated to the rear of the main North Block façade (‘The Core’).

Urban Splash and their design team subsequently reviewed this aspect of the development as part of the evolutionary design process. They determined that the transformation of the entrance was the only function of ‘The Cut’, which is effectively already secured by the substantial alterations to the external appearance of Park Hill. Furthermore, the provision of external lift and stair cores as separate structures situated to the rear of the main North Block façade was not

29 considered to be the most successful solution in terms of creating an appropriate sense of arrival for future occupiers of the Estate. Consequently, Urban Splash reassessed this element of the scheme and developed a revised approach, which is the subject of this application.

The revised ‘Cut and Core’ design still creates a generous gateway into Park Hill as it remains four bays wide and four bays high and in the same location as the previously approved Cut. However, this application also seeks to retain part of the vertical concrete grid structure in situ and removes only a single horizontal concrete strut and two of the vertical columns between the ground and first floor to provide an open double-height walkway through the building as the entrance to the Estate. Within this new space, a steel bridge with glazed balustrades is proposed, effectively at first floor level, to provide a link between the upper levels of the double height ground floor commercial units. It is proposed that the internal walls within the Cut will be fully glazed adjacent to the ‘Core’ area with the remainder of the internal walls and soffit to be constructed in white render with the retained concrete columns within the Cut treated with mosaic tiles to create a visually clean and interesting entrance space.

The Core (comprising both lifts and stairs) is also integrated within the Cut as part of the existing structure such that the lifts are provided within two bays to the front of the building adjacent to the open walkway; the lift core sits within the external concrete frame, which is then in-filled with toughened glass, that is fixed to the existing concrete structure. To the rear of the lifts, a lobby and concierge area is provided internally to create a secure and attractive entry point for future residents. A staircase from the concierge area provides safe access to the upper floors. The lifts comprise one x 13 persons lift and a fire fighting lift. Adjacent to the fire lift, within the external concrete frame, is a helical fire stair for fire escape purposes. The glazed lift cores and helical stair will be externally visible from the front elevation to emphasize the main entrance. This approach to the Core will require the removal of five horizontal concrete beams but it broadly retains the existing concrete frame in situ.

RELEVANT PLANNING HISTORY

There is an extensive planning history to the Park Hill Estate, which is summarised below:

06/00848/OUT: Refurbishment and partial redevelopment of the Park Hill Estate to provide residential accommodation (Use Class C3), multi-storey car park, landscaping, new vehicular and pedestrian access routes and A1, A2, A3, A5, B1 and D1 uses.

Approved by the City Centre, South and East Highways and Planning Board on 21.08.2006

The outline consent established the principle of the redevelopment of the entire Park Hill Estate in four phases.

30 06/00849/LBC: Removal of buildings and structures within the curtilage of Park Hill Flats.

Approved by the City Centre, South and East Planning and Highways Board on 21.8.2006 (decision issued 08.09.2006, after Secretary of State referral)

This gave approval for the demolition of unlisted buildings that were independent of the main listed structure, principally in the area to the south of the north block, including shops, the community centre, offices and Park Hill School, which have now been demolished.

07/01962/OUT: Application under Section 73 of the Town and Country Planning Act to vary Condition No.1 imposed by 06/00848/OUT to allow for the phased development of the site.

Approved on 10.07.2007 under Delegated Authority as an application under Section 73 to amend conditions previously imposed.

Although the original outline application envisaged a four-phase approach to the redevelopment of Park Hill, the conditions of the outline permission did not entirely reflect this phasing. This variation of condition application procedurally rectified this matter.

07/02476/REM: Partial demolitions, refurbishment and reconfiguration of the existing flats, erection of multi-storey car park with ancillary A1 (retail), A3 (cafes/restaurants), A4 (bars), A5 (takeaways), D1 (health/education) and B1 (offices) uses and landscaping (Reserved matters in accordance with 06/00848/OUT in relation to Phase 1)

Approved by the City Centre South and East Planning and Highways Board on 02.10.2007

This application is the ‘reserved matters’ proposal for Phase 1 of the Park Hill development outlined above. It effectively represents the detailed planning permission for this phase in terms of design, external appearance, access arrangements and landscaping and it is this application that will be implemented on site and for which preparation works are currently underway.

07/02475/LBC: Partial demolitions, refurbishment and reconfiguration of existing flats, erection of multi-storey car park with ancillary uses and landscaping.

Approved by the City Centre, South and East Planning and Highways Board on 2.10.2007 (decision issued 30.10.2007 following Secretary of State Referral).

This is the supporting Listed Building Consent (LBC) application for Phase 1 and relates to the specific structural alterations to the Grade II* Listed required as part of the Phase 1 reserved matters approval.

31 08/02793/OUT: Application under Section 73 to vary Condition 7 (details of multi- storey car park) and Condition 12 (car parking strategy) of application 06/00848/OUT.

Approved on 01.10.2008 under Delegated Authority as an application under Section 73 to amend conditions previously imposed.

As with the Section 73 (variation of condition) application above, although the original outline application envisaged a four-phase approach to the redevelopment of Park Hill, the conditions of the outline permission did not entirely reflect this phasing. This Section 73 application varied Conditions 7 and 12 of the outline approval to enable a phased approach to the delivery of car parking across the site to be fully consistent with the phased approach to development. The applicant reasonably advised that it was not viable to construct the multi-storey car park as part of Phase 1 when the multi-storey car park was designed to serve the entire development site (Phases 1-4) and would be more appropriate as part of a later phase.

Condition 7 was therefore revised to require external details of the car park before construction of the car park commences; it also requires that no flat shall be occupied until either the multi-storey car park has been constructed or alternative temporary car parking to serve the relevant phase(s) has been approved.

Similarly, Condition 12 was amended to allow phased consideration of parking provision such that a car parking strategy for each phase must be agreed and implemented before that particular phase commences.

SUMMARY OF REPRESENTATIONS

The application has been advertised by means of site notices and a press notice (advert placed in the Sheffield Telegraph on 17th September) as a development affecting a Listed Building. To date, no representations have been received.

It is relevant to note that the consultation by site notice does not expire until Thursday 5th November. However, it is anticipated that any representations that may arise from the site notices will most likely be submitted by the date of the Board meeting as the notices will have been positioned for 19 days by that time. Any such representations will be reported directly to Board.

A formal consultation response from English Heritage is awaited and will also be reported directly to Board.

PLANNING ASSESSMENT

The principle of redeveloping the Park Hill Estate is established by the previous outline planning permission (06/00848/OUT) and the detailed Reserved Matters and Listed Building Consent applications for Phase 1 (07/02476/REM and 07/02475/LBC). This application therefore relates solely to the proposal for a revision to the design of the ‘Cut’ and “Core’. The key issue to consider in the

32 determination of this application is therefore the impact of the revised design on the special character and appearance of the North Block.

In terms of relevant planning policy, national planning policy guidance in respect of Listed Buildings is clearly set out in Planning Policy Guidance 15: Planning and the Historic Environment and S66 of the Planning (Listed Buildings and Conservation Areas) Act 1990. The latter states that in considering whether to grant planning permission for development which affects a Listed Building or its setting, the local planning authority must have special regard to the desirability of preserving the building or its setting or any features of special architectural or historic interest which it possesses. PPG15 provides more specific advice in respect of development affecting both Listed Buildings and Conservation Areas. However, with specific regard to alterations and extensions to Listed Buildings, Paragraph 3.12 of PPG15 advises that in judging the effect of any alteration or extension it is essential to have assessed the elements that make up the special interest of the building in question.

In the context of local planning policy, set out in this case within the Sheffield Unitary Development Plan, Policy BE15 advises that buildings and areas of special architectural of historic interest will be preserved or enhanced and development that would harm their character or appearance will not be permitted. Policy BE19 requires that internal and external alterations and new buildings within the curtilage of Listed Buildings should preserve the building’s character, appearance and setting. These policies reflect guidance contained in PPG15.

The Listing description for Park Hill is an extensive document that describes the form and appearance of the original estate. Its significance as a listed building is deemed to derive from its strong architectural design, which is typically expressed through its plan, its external decks and its exposed concrete structure. The external treatment in terms of the cladding and the internal partitioning are considered by English Heritage to be of secondary interest.

As with the original ‘Cut’ proposal approved as part of 07/02476/REM and 07/02475/LBC, this application still seeks to ‘open up’ the concrete frame to create a generous and legible open entrance into Phase 1 from the City. The ‘Cut’ remains as a feature that is four bays wide and four bays high but it retains the vertical concrete grid structure in situ and removes only two vertical and a single horizontal concrete grid between the ground and first floor to provide a double- height entrance. As such, the exposed concrete structure that is deemed to form part of the significance of Park Hill is more apparent as part of this application than the previously approved design and more of the original structure is retained. In this regard, the principle of the revised Cut design is therefore considered to respect the special character of the Listed Building.

Significantly, the lift and stair cores are then integrated within the existing structure rather than constructed as separate entities to the rear of the block, which is deemed to deliver an improved sense of arrival for future occupiers of Phase 1 and removes the previously awkward relationship between the external stair towers and the rear façade of Phase 1. The lifts are provided within two bays to the front of the building such that they will be visible from the front façade. However, this

33 approach still retains the strong concrete grid structure and, to some extent, will draw attention to this special characteristic of the building. The main stair cores are fixed within the central grid space and rise up through the centre of the north block, which again, will not alter the most significant elements of the estate in terms of the scale of the building, the concrete structure or the external decks. The helical fire escape stair is also positioned within the external frame of the concrete structure; it will be visible within the building but is considered to add interest to the elevation and not detract from its appearance or impact upon the building’s special character.

It is therefore considered that the revised “Cut and Core’ design actually represents an improvement on the previously approved scheme. In terms of securing the transformation of the Estate, the introduction of the glazed lift cores within the concrete frame to the front façade will ensure that the entrance is highly visible from the City whilst the ‘Cut’ still provides a generous double height space and legible opening in the façade. The detailing of the Cut and Core, in terms of securing the appropriate quality of glazing, render and mosaic tiles, will be secured by means of a planning condition.

With regard to the special character of this Grade II* Listed Building, it is determined that this revised approach to the ‘Cut and Core’ retains more of the distinctive grid structure of Park Hill. Furthermore, the application does not alter the scale of the Park Hill complex, the external access decks or the predominant grid character of the concrete structure, which are deemed to be the important characteristics of the estate. As such, it is considered that the proposal sufficiently preserves the features of special architectural and historic interest within the building and will also preserve the building’s character and appearance, whilst also enabling its practical re-use. The application is therefore considered to comply with the requirements of S66, guidance within PPG15 and Policies BE15 and BE19 of the UDP.

SUMMARY AND RECOMMENDATION

This application seeks to amend the design of the Cut and Core in relation to Phase 1 of the Park Hill estate (North Block), for which this Board approved a detailed Reserved Matters and Listed Building Consent application on 2nd October 2007 (07/02476/REM and 07/02475/LBC). The 2007 approvals sought to remove part of the concrete grid structure to the extent of four storeys high and four bays wide to create the ‘Cut’, with this ‘incision’ into the building treated with metal cladding. It also proposes the construction of external stair and lift cores as separate structures to the rear of the block. As part of the evolutionary design process, this means of access into the building was reviewed by the applicant, principally in terms of ensuring that an appropriate and secure sense of arrival could be provided for future occupiers of the Estate. The design team considered that a revised approach that integrated the lift and stair cores within the main structure of the building could be achieved. However, it did require some internal remodelling in comparison to the previously approved listed building consent and on the basis, a new LBC application was deemed necessary.

34 This application represents the revised Cut and Core design. It still seeks to open the concrete frame to create a sense of arrival by creating a double-height entrance but it seeks to retain more of the vertical concrete grid structure in situ. The lift and stair cores are then integrated within the existing structure rather than constructed as separate entities to the rear of the block with the glazed lift cores visible to the front of the building and a stair core provided behind. A helical escape stair is also integrated within the building, which will be visible from the front façade. This approach also enables the inclusion of a concierge area to provide future security for residents.

It is considered that this revised design approach to the ‘Cut and Core’ retains more of the distinctive grid structure of Park Hill. It does not alter the scale of the Park Hill complex, the external access decks or the predominant grid character of the concrete structure, which are deemed to be the important characteristics of the estate. As such, it is considered that the proposal sufficiently preserves the features of special architectural and historic interest within the building and will also preserve the building’s character and appearance, whilst also enabling its practical and viable re-use as a mixed use development. The application is therefore considered to comply with the requirements of Section 66 of the Planning (Listed Buildings and Conservation Areas) Act 1990, guidance within PPG15 and Policies BE15 and BE19 of the UDP and is recommended for approval subject to conditions and subject to the following:

For any application affecting a Grade II* listing building where the Council intends to grant consent, the application must be referred to the Secretary of State. It is also the case that the site notice consultation period does not expire until 5th November.

It is therefore recommended that the application is approved subject to conditions and no significant adverse public representation arising from the site notice public consultation (expiring 5th November 2009) and no adverse direction being received from the Secretary of State.

Case Number 09/02783/FUL

Application Type A Full Planning Application

Proposal Erection of a single span bridge to be used as a bridleway across the Sheffield Parkway and ancillary works, including the creation of engineered embankments, landscape works, and a 3 metre high fence

Location Sheffield Parkway Iconic Bridge Sheffield Parkway Sheffield

Date Received 04/09/2009

Team CITY CENTRE AND EAST

Applicant/Agent Scott Wilson Limited

Recommendation Grant Conditionally subject to Legal Agreement

Subject to:

1 The development shall be begun not later than the expiration of three years from the date of this decision.

In order to comply with the requirements of the Town and Country Planning Act.

2 The gradient of the bridleway/footpath formed on the bridge crossing shall not exceed a gradient of 1 in 21 unless otherwise authorised in writing by the Local Planning Authority.

To ensure ease of access and facilities for disabled persons at all times.

3 The approved landscape works shall be implemented prior to the use of the development commencing or within an alternative timescale to be first agreed with the local planning authority. Thereafter the landscaped areas shall be retained and shall not be used for any other purpose without the prior consent of the Local Planning Authority. They shall be cultivated and maintained for a period of 5 years from the date of implementation and any plant failures within that five year period shall be replaced.

In the interests of the visual amenities of the locality.

4 The Local Planning Authority shall be notified when the landscape works are completed.

To ensure that the Local Planning Authority can confirm when the maintenance periods specified in associated conditions/condition have commenced

5 The proposed 3 metre high fencing to the northern edge of the proposed new bridleway/footpath as it descends the embankment on the Sheffield side of the bridge structure is not approved. Before the bridleway/footpath is brought into use an alternative proposal to provide safety fencing to the Tinsley Golf Course Practice Area shall have been submitted to and approved in writing by the Local Planning Authority and arrangements shall have been entered into to ensure that such approved fencing is erected before the bridleway/footway is brought into use.

In the interests of the visual amenities of the locality.

6 The design and location of any lighting to the bridge structure and bridleway/footpath shall be submitted to and approved in writing by the Local Planning Authority before installation on site.

In the interests of the visual amenities of the locality.

7 Before the bridleway/footpath is brought into use barriers to prevent motorcycle access shall have been installed but before installation the location and style of barriers shall have first been approved in writing by the Local Planning Authority.

In the interests of the users of the bridge.

8 Before the development is commenced, details of the means of ingress and egress for vehicles engaged in the construction of the development shall have been submitted to and approved in writing by the Local Planning Authority. Such details shall include the arrangements for restricting the vehicles to the approved ingress and egress points. Ingress and egress for such vehicles shall be obtained only at the approved points.

In the interests of traffic safety and the amenities of the locality.

Attention is drawn to the following justifications:

GE1 - Development in the Green Belt GE2 - Protection and Improvement of the Green Belt Landscape GE3 - New Building in the Green Belt GE4 - Development and the Green Belt Environment GE11 - Nature Conservation and Development CS74 - Design Principles

and to all relevant material considerations, including Supplementary Planning Guidance.

Attention is drawn to the following directives:

1. From the 6th April 2008, the Town and Country Planning (Fees for Applications and Deemed Applications) Regulations 2008 require that all requests for confirmation of compliance with planning conditions require a fee payable to the Local Planning Authority. An application to the Local Planning Authority will be required using the new national standard application forms. Printable forms can be found at www.sheffield.gov.uk/planning or apply online at www.planningportal.gov.uk. The charge for this type of application is £85 or £25 if it relates to a condition on a householder application for development.

38 Site Location

LOCATION AND PROPOSAL

This application is for the proposed installation of a new single span bridge which is to traverse the A630 Sheffield Parkway and provide a new footpath and bridleway access between Sheffield and Rotherham. The bridge is part of the Advanced Manufacturing Park development (Waverley Phase 1), which was approved by Rotherham Metropolitan Borough Council. As part of this development, there is a condition requirement the bridge be constructed and completed before a set amount of gross floor area of development was created on the site.

The site of the bridge is adjacent to the Advanced Manufacturing Park on the Rotherham boundary. It is intended that the bridge will extend across the Sheffield Parkway and terminate on Tinsley Park Golf Course, which is within Sheffield’s boundary and Local Authority jurisdiction. Therefore, the application proposal spans two Local Planning Authority boundaries and Members are advised that identical planning applications have been submitted to Rotherham and Sheffield for consideration – as required by Planning Circular 04/08.

The application comprises a Vierendeel bridge design as its centrepiece, which is characterised by tubular steelwork that curves upwards from 0.7m at its ends to 3.55m at its mid-span. Below the curve there are structural steelwork columns and a 1.8m high equestrian parapet across its length. The bridge leans outwards and increases in width from bottom to top - approximately 4m at deck level rising to 5.4m at the top. The bridge has a clear deck width of 3.5m and it will be surfaced using a recycled rubber block paving system.

There are significant engineering works required to accommodate the bridge, which largely comprise the creation of new embankments to raise the structure to the appropriate height so that it can gain acceptable clearance across the Parkway. It is considered that the most significant engineering works will occur on the Sheffield side as it is proposed to build a large embankment on land adjacent to the Parkway, which is currently partly used as a golf practice area for the adjoining golf course. The embankments will not result in the loss of this practice area but will require it to be reconfigured.

It is proposed that the new embankments will increase the land level to a maximum of 5m above the existing land level on site. The embankment will require the removal of some existing vegetation in order to accommodate the works. The embankment will be visible from the Sheffield Parkway and it is proposed that this be landscaped in order to improve its physical appearance as well as compensate for any existing vegetation lost during the installation of the embankment and re- siting of the golf practice area.

RELEVANT PLANNING HISTORY

There are no planning applications determined by Sheffield City Council which are considered to be relevant to this application. The following development history is, however, considered to be of relevance to Members:

An outline planning application for development of the Advanced Manufacturing Park with related infrastructure and landscaping was approved by Rotherham Metropolitan Borough Council in April 2005 (ref. RB2003/0046). Condition No.29 of that consent required the installation of the subject bridge prior to the occupation of more than 10,000sq.m. of gross floor area of development.

In August 2008, an application to vary Condition No.29 and allow 23,225m² of buildings to be occupied before all bridge work are implemented was approved by Rotherham MBC.

Following the above applications, Members may recall that it was intended that the bridge should have an “iconic” status and the developer, Yorkshire Forward, commissioned the RIBA to conduct an international design competition to secure an outstanding design for the bridge. A bridge design was successful, however the estimated cost of the structure was significantly higher than the competition budget. As Yorkshire Forward has primary duty to invest in the economic health of the region, it has decided to abandon the iconic design and propose the Vierendeel

40 design which is now the subject of the current scheme. This is a significantly less expensive product that is within the available budget.

SUMMARY OF REPRESENTATIONS

The application has been advertised by site notice, neighbour notification letter and press advert. No local representations have been received.

Sustrans have commented on the application and express support for the application. They state that:

- It will vastly improve the safety of the existing footpath crossing arrangements. This is turn will make the route more attractive to a wider selection of the community and help to minimise isolation of communities caused by Sheffield Parkway. Usage and enjoyment of the route will increase.

The Trans Pennine Trail Group has stated:

- The provision of this bridge will provide a needed and safe crossing point of the busy road for people walking and cycling in the area, and will considerably enhance the attractiveness of routes in this area. This will encourage more people to walk or cycle as part of their daily lives.

Highways Agency

At the current time the Highways Agency (HA) has issued a holding direction on the application, which means that the Council cannot issue a formal decision until this direction is lifted.

This is because the bridge is located within 2 to 3 miles of M1 Junction 33 and consideration must be given to the impact that construction of the bridge may have on traffic using this junction.

Additional information has been supplied to the HA to cover this issue and it is hoped that the direction will be lifted before the Board meeting. Members will be advised accordingly in a Supplementary Report.

Friends of High Hazels Park have made the following comments:

- concern about nett loss of trees and tree composition. Newly planted trees should reflect that of Tinsley Park Wood. - The proposed fencing at 3 metres high is too imposing and be a blot on the landscape, as well as hindering wildlife movement. Alternatives should be considered such as hedging (with temporary fencing whilst it is established) - There should be motorcycle protection measures - The proposal to build 4,000 homes at Waverley could add to pressure on this sensitive habitat - Concern about money wasted on the iconic bridge design with no results (not a planning matter)

41 - There should be compensation for loss of habitat and 70 Acre Hill would be a suitable location for compensatory measures as it supports a wide variety of species.

PLANNING ASSESSMENT

The main issues that should be considered in the assessment of this planning application are:

1. The policy issues surrounding the application; 2. The impact of the engineering works on the application site and the quality of the landscape mitigation scheme.

It should be noted that the bridge structure itself is within the remit of Rotherham Metropolitan Borough Council’s area and, as such, comments on the design of the structure are within their jurisdiction. This report, therefore, necessarily concentrates on the impact of the embankment and alterations to the golf course and landscaping as these elements fall within Sheffield’s jurisdiction.

Policy Issues

The application site is within an area designated as Green Belt in Sheffield’s adopted Unitary Development Plan (UDP). As well as the UDP, the content of the recently adopted Core Strategy document is also a relevant consideration.

UDP Policy GE1 relates to ‘Development in the Green Belt’ and states that development will not be permitted, except in very special circumstances where it would (a) lead to unrestricted growth of the built-up area; or (b) contribute towards merging of existing settlements; or (c) lead to encroachment of urban development into the countryside; or (d) compromise urban regeneration.

UDP Policy GE3 relates to ‘New Building in the Green Belt’ and indicates that the construction of new buildings will not be permitted, except in very special circumstances, for purposes other than agriculture, forestry, essential facilities for outdoor sport and outdoor recreation, cemeteries and other uses.

The principle of the development is considered to be acceptable at this site in Green Belt terms. It is felt that the engineered embankment is an important piece of infrastructure that must be installed to help accommodate the new bridge. The bridge cannot happen without these works, which would in turn compromise the regeneration of Advanced Manufacturing Park and its links with Sheffield’s outdoor recreation space at Tinsley Golf Course.

Furthermore, it is considered that installation of the bridge will improve the recreational facilities and options available for users of footpaths and bridleways in the area. The current footpath takes pedestrians straight to the Parkway edge to a very dangerous crossing which leads across four lanes of traffic where the speed limit is 50mph. The provision of a bridleway across the Parkway will provide a much safer option for recreation users such as walkers, cyclists, horse riders etc.

In light of the above it is considered that there are very special circumstances available to warrant the acceptance of the principle of this application in Green Belt policy terms and as the bridge and embankments are not ‘buildings’ the proposal is not considered to represent a departure from adopted policy. Whilst it is not ideal for these engineering works to take place in such a sensitive location, the benefits of the overall project are considered to outweigh the concerns. The acceptability of the embankments is, however, subject to the implementation of high quality design and landscape works to ensure that the existing landscape and natural environment is conserved and enhanced.

Landscape Issues

UDP Policy GE2 has regard to ‘Protection and Improvement of the Green Belt Landscape’ and expects that measures be taken (a) maintain and enhance those areas with generally high landscape value; and (b) improve poor landscapes in priority areas.

UDP Policy GE4 ‘Development and the Green Belt Environment’ states that the scale and character of any development which is permitted in the Green Belt, or would be conspicuous from it, should be in keeping with the area, and wherever possible, conserve and enhance the landscape and natural environment.

Core Strategy Policy CS 74 ‘Design Principles’ expects high quality development that respects, takes advantage of and enhances the distinctive features of topography, landforms and open spaces.

The revised landscape proposals for the site are broadly acceptable and have taken account of officers comments.

We have not yet received details for the make up of the surface covering of the embankment. This should include details of the base materials, subsoil and topsoil, depth of materials, proposals for the retention of these materials and detailed sections showing bank gradients and any keying in that may be required to retain the materials. It is anticipated that these details will be received before the Board meeting and Members advised accordingly.

Nature Conservation and Tree Issues

The development will affect Tinsley Park Site of Importance for Nature Conservation (SINC) these are equivalent to Areas of Nature Conservation Interest (ANHI) in the UDP. SINCs are covered by UDP policy GE13 and development which would damage such an area will not normally be permitted. Where development would decrease the nature conservation value of an ANHI or Local Nature Site, the decrease must be kept to a minimum and compensated for, which could include enhancement of wildlife habitats elsewhere within the site or the local area.

There will be a further loss of habitat to provide the temporary access point onto the site. Tinsley Park is also part of a green corridor. This is covered by Policy

43 GE10 of the UDP, which seeks to protect the green network and natural environment and the design, siting and landscaping of development should respect and promote nature conservation and include measures to reduce any harmful effects of development on natural features of value.

70 Acre Hill lies to the north-west of the development (and is under the control of the City Council). The site has just had a survey done as part of the Biodiversity Action Plan for Grasslands. There are some management issues that the survey has raised and this would be an ideal site for some investment as compensation for loss of habitat in the local area. The site is also used by skylark (a priority species). The applicants have agreed to provide compensation in the form of a financial contribution towards enhancing the 70 Acre Hill area. This will be secured by legal agreement, the exact terms of which are currently under consideration and will be reported to the Board in a supplementary report.

The proposals make provision for a nett increase in tree numbers over those lost to development using native planting mixes which are acceptable. However, consideration needs to be given to a more suitable grass mix than that currently proposed.

The current proposal is a BSH (British Seed Houses) low maintenance mix which is suitable as a low maintenance grass cutting regime but with little biodiversity value. As stated above the area is important in biodiversity terms (GE10 Green Network and GE11 Nature Conservation and Development) and the loss of habitat should be replaced with native species. The current proposed grass seeding specification does not meet these requirements.

A revised landscape specification is anticipated to be submitted before the Board meeting to address this concern and Members will be advised accordingly.

Disabled Access

The bridge has been designed with all users in mind and barriers are proposed to prevent motorcycle misuse, although the final details are reserved by condition. The gradient of the crossing will not exceed 1 in 21 in order to avoid the need for landing areas

Bridge Design Issues

As detailed earlier in this report, the design of the bridge structure and the engineering works required on the Rotherham side cannot be assessed by Sheffield City Council under this application. These works fall into the Rotherham boundary and are therefore the responsibility of its Local Planning Authority. Sheffield’s role in relation to these works is purely as a consultee.

Members are, however, advised that Officers have no significant objection to the design of the bridge. Whilst an “iconic” bridge would have been preferred on this prominent roadway, it is considered that the Vierendeel bridge proposed is satisfactory in design and appearance terms at this location. Yorkshire Forward have advised that they are commissioning an artist to design some feature lighting,

44 probably to be incorporated into the handrail across the bridge and this will improve the overall appearance of the bridge and provide an attractive night-time feature. The details of this are reserved by condition.

SUMMARY AND RECOMMENDATION

The proposed bridge is intended to replace an existing at-grade and dangerous crossing on the Parkway. It will provide a link between the Advanced Manufacturing Park (AMP) in Rotherham and Sheffield communities, most notably Darnall, giving potentially better access to employment opportunities for Sheffield residents by providing a means of reaching the employment area by walking and cycling. The bridge is a requirement of the planning permission for the AMP development.

The proposed embankments ensure that the bridge oversails the Parkway at an appropriate height to give clearance to all vehicles. The bridge will allow pedestrians, wheelchair users, cyclists and horse riders to access a wide network of paths in the area and provides the missing link to the network. At the same time, abuse by motorcycles will be prevented and safety of users will be further protected by some form of protective fencing area around the golf practice range to prevent stray balls from hitting users of the bridge.

The landscaping proposals are broadly acceptable and will result in a nett gain in the number of trees on the Sheffield side. Further minor improvements are still being sought, particularly in terms of the grassland planting and it is anticipated that the final landscape plan will be submitted ahead of the Board meeting. In order to compensate for habitat loss, the applicants have agreed to fund improvements to 70 Acre Hill nearby, where a recent site survey has revealed some measures that would improve its biodiversity. This will be secured by legal agreement.

It is therefore recommended that the application be approved subject to the conditions listed and the completion of a legal agreement, the heads of terms of which will be circulated in a supplementary report, and subject to the Highways Agency direction being lifted.

Case Number 09/02740/CHU

Application Type Planning Application for Change of Use

Proposal Change of use of redundant public footpath to domestic curtilage and erection of boundary fencing

Location 31 And 33 Romandale Gardens Sheffield S2 1DL

Date Received 27/08/2009

Team CITY CENTRE AND EAST

Applicant/Agent Acis Group Limited

Recommendation Grant Conditionally

Subject to:

1 The development shall be begun not later than the expiration of three years from the date of this decision.

In order to comply with the requirements of the Town and Country Planning Act.

2 The development must be carried out in complete accordance with the following approved documents, Sheet 1 received on the 27th August 2009, unless otherwise authorised in writing by the Local Planning Authority.

In order to define the permission.

Attention is drawn to the following justifications:

H14 - Conditions on Development in Housing Areas

and to all relevant material considerations, including Supplementary Planning Guidance.

Site Location

LOCATION AND PROPOSAL

The application site comprises of an approximately 20 metre long section of public footpath located on the edge of a Housing Area as defined in the Unitary Development Plan (UDP). The path runs between two semi-detached dwellinghouses on Romandale Gardens providing access to a large area of designated Open Space.

Planning permission is sought for the change of use of the footpath to domestic cartilage and its enclosure which with metal powder coated palisade fencing.

RELEVANT PLANNING HISTORY

47 In August 2005, the City Centre and East Planning and Highways Area Board authorised the processing of the Extinguishment Order required to close the footpath at Romandale Gardens.

SUMMARY OF REPRESENTATIONS

One letter of objection was received from the occupant of a dwellinghouse in Romandale Gardens who regularly uses the footpath to access the adjacent open space. They state that the path is used by many residents on a daily basis and do not understand why it has been declared redundant.

PLANNING ASSESSMENT AND RECOMMENDATION

The loss of the 20 metre long section of public footpath will result in the occupants of properties on Romandale Gardens having to access the nearby open space via an alternative route, adding approximately 150 to 200 metres to some journeys. While this may cause an inconvenience for some, the footpath closure was originally proposed in the belief that it would help with the management of the estate. Indeed, South Yorkshire Police have recorded 63 incidents taking place or being reported from Romandale Gardens in the last 12 months. Of these incidents, 13 were recorded as anti-social behaviour and 6 of the 13 were recorded as youth-related anti-social behaviour.

The footpath is bound on both sides by a 2 metre high timber fence and there is very little in the way of natural surveillance from the surrounding properties. Secure By Design is designed to promote the creation of safer and more secure environments. It states that ‘Networks of separate footpaths to unsupervised areas should be avoided’, and that ‘footpaths that are unduly secluded provide opportunities for crime with a low risk of detection.

On balance it is considered that, while the closure and subsequent conversion of the footpath to domestic curtilage would cause inconvenience to some local residents, it is likely to improve security by reducing the permeability of Romandale Gardens and removing a potential crime generator or escape route for offenders. The provision of a new means of enclosure to the area will tidy up and improve the appearance of the land as well as providing security to the garden areas.

This application is therefore recommended for approval.

Case Number 09/02726/LBC

Application Type Listed Building Consent Application

Proposal Demolition and rebuilding of existing gable wall, and formation of additional ground floor window opening facing courtyard

Location 35 Well Meadow Street Sheffield S3 7GS

Date Received 02/09/2009

Team CITY CENTRE AND EAST

Applicant/Agent Birkett Cole Lowe Architects

Recommendation Grant Conditionally Subject to Secretary of State

Subject to:

1 The development shall be begun not later than the expiration of three years from the date of this decision.

In order to comply with the requirements of the Planning (Listed Buildings and Conservation Areas) Regulations 1990.

2 A sample panel of the proposed masonry shall be erected on the site and shall illustrate the colour, texture, bedding and bonding of masonry and mortar finish to be used. The sample panel shall be approved in writing by the Local Planning Authority prior to the commencement of the rebuilding of the gable wall and shall be retained for verification purposes until the completion of such works.

In order to ensure an appropriate quality of development.

3 Masonry shall be pointed or bedded using a lime mortar mix that is weaker than the surrounding masonry. The colour of the new mortar, which should match the original mortar before weathering, should be achieved by the use of appropriate sand. No propriety coloured mixes of pigments shall be used. The joints should be finished flush then brushed back to expose the aggregate and the edges of the adjacent stone. On no account should the joints be struck or finished proud of the masonry face to form strap or ribbon pointing or feathered over the edge of eroded blocks. A sample panel of proposed pointing shall be approved in writing by the Local Planning Authority before the rebuilding of the gable wall commences.

In order to ensure an appropriate quality of development.

4 Heads and cills shall match in size, style, construction and materials those of the existing building.

In order to ensure an appropriate quality of development.

5 The abutment of new walls to the Listed Building shall not be bonded into existing walls by removing existing masonry unless otherwise agreed in writing by the Local Planning Authority.

In order to ensure the protection of the original fabric of the Listed Building

6 Prior to the rebuilding of the gable wall, details of the extent and specification of brick/stone repair and cleaning shall have been submitted to and approved in writing by the Local Planning Authority and the development shall be carried out in accordance with the approved details thereafter.

In order to ensure an appropriate quality of development.

7 Repairs and new areas of infill masonry shall match the existing surrounding masonry in bonding, colour, size, shape and texture and in the colour and finished treatment of mortar joints.

In order to ensure an appropriate quality of development.

8 There shall be no replacement, alteration or repair of any part of the original roof structure without the prior written approval of the Local Planning Authority of details of timbers to be removed, altered and repaired and details and specifications of all new replacement timber members.

In order to ensure an appropriate quality of development.

9 Chimney stacks and pots shall be retained and, where repaired, should be reinstated to their original appearance using materials to match existing unless otherwise agreed in writing by the Local Planning Authority.

In order to ensure an appropriate quality of development.

10 Unless otherwise agreed in writing by the Local Planning Authority the windows shall consist of timber frames with timber opening casements. The glazing pattern, the thickness and profile of the frame and glazing bars and the reveal depth shall match those of the existing windows in the property and the windows shall be finished in gloss paint.

In order to ensure an appropriate quality of development.

11 The development must be carried out in complete accordance with the approved documents received with the Council on the 2nd September 2009, unless otherwise authorised in writing by the Local Planning Authority.

In order to define the permission.

Attention is drawn to the following justifications:

Planning Policy Guidance Note 15: Planning and the Historic Environment Policy BE19: Development Affecting Listed Buildings Policy BE16: Development in Conservation Areas

and to all relevant material considerations, including Supplementary Planning Guidance.

51 Site Location

LOCATION AND PROPOSAL

This application relates to an earlier approval of planning permission to convert 35 Well Meadow Street, also known as Joel's Yard, or Well Meadow Works into offices under planning reference 07/02464/FUL. As part of the subsequent restoration works the applicant now wishes to demolish and rebuild a gable wall and form an additional window opening.

Joel’s Yard is a Grade II* Listed integrated metal trades development dating from 1823, incorporating a master house, an intact 6 hole crucible workshop and cellars, related storage and workshop accommodation. The complex of buildings is arranged around an internal courtyard.

With the adjacent metal trades complex at 54 Well Meadow Street, which also possesses a small crucible workshop, they are considered the only surviving collection of crucible works within Sheffield's City Centre. Crucible steel making was developed in Sheffield by Benjamin Huntsman in the 1840's, and the crucible

52 workshop building type now appears only to survive in Sheffield; there are no known examples left anywhere else in the world.

The site is set within the St Vincent’s Area of the city and within the Well Meadow Conservation Area.

RELEVANT PLANNING HISTORY

Consent was granted for the partial demolition, refurbishment, alterations and extension to No. 35 Well Meadow Street and attached workshop ranges and crucible furnace (Grade II* Listed Buildings) to form office space (B1) including new two-storey building to southern range in December 2007, under reference 07/02464/FUL.

SUMMARY OF REPRESENTATIONS

English Heritage

‘The application should be determined in accordance with national and local policy guidance, and on the basis of your specialist conservation advice’.

The following bodies have been consulted in respect of the proposal but have not commented:

- Council for British Archaeology.

- The Society For The Protection Of Ancient Buildings.

- Ancient Monuments Society.

- The Georgian Group.

- The Victorian Society.

PLANNING ASSESSMENT

Unitary Development Plan (UDP)

Policy BE16: Development in Conservation Areas

The site is located within the Well Meadow Conservation Area. In compliance with Policy BE16 it must meet specific criteria to be deemed acceptable, most notably, new development in conservation areas is expected to preserve or enhance the character or appearance of that area.

Policy BE19: Development Affecting Listed Buildings

BE19 states that proposals for internal or external alterations will be expected to preserve the character or appearance of the building and, where appropriate, to preserve or repair original details and features of interest.

Planning Policy Guidance Note 15: Planning and the Historic Environment (PPG15)

PPG15 provides comprehensive national advice on controls for the protection of historic buildings and conservation areas. It states that issues that are generally relevant to the consideration of listed building consent applications include:

- The importance of the building, its intrinsic architectural and historic interest and rarity, in both national and local terms.

- The particular physical features of the building, which justifies its inclusion in the list.

The insertion of the new window, which will provide light into a new office space has already been completed and is considered to demonstrate a very high standard of workmanship. It is located in a logical position, being directly below a first floor window, which it will match in terms of proportions. This element of the proposal is therefore considered to preserve the character of the building, whilst allowing for adaptation to cater for the new office use.

It is clear from a visit to the site that the existing gable wall is in a very poor state of repair, it is currently seriously bowed and during the approved restoration works the fear would be that it could be prone to collapse. In light of this a strategy has been agreed with the applicant that will see this gable wall removed during the relevant works and rebuilt once they have been complete. This will ensure the much needed repair of this feature and the safe continued progression of the wider restoration works.

Suitable conditions will be imposed on any consent should Members be minded to approve the application to ensure the gable wall is rebuilt to the correct specifications, bearing in mind the conservation setting and listed nature of the structure.

In light of the above the proposals are considered to meet the relevant national and local conservation and listed building policy requirements set out above.

Referral to Secretary of State

Given that the works involve the demolition of a principle external wall the scheme must be referred to the Secretary of State for formal approval in accordance with Circular 1/2001 and Planning Policy Guidance Note 15: Development Affecting Listed Buildings.

SUMMARY AND RECOMMENDATION

The insertion of a new window into the courtyard elevation has already been completed to a very high standard and is considered to preserve the character of the building.

54 The demolition and rebuilding of the gable wall is considered essential to ensure the much needed repair of this feature and the safe continued progression of the wider restoration works.

It is therefore recommended that Members grant consent subject to the proposed conditions and the approval of the Secretary of State.

Case Number 09/02640/FUL

Application Type A Full Planning Application

Proposal Erection of medical centre (Use Class D1) and pharmacy (Use Class A1) with associated landscaping and car parking works

Location Land Between Arc Car Wash And Church Of Jesus Christ Apostolic Incorporated Main Road Darnall Sheffield

Date Received 25/08/2009

Team CITY CENTRE AND EAST

Applicant/Agent Blue Sky Architects

Recommendation Grant Conditionally

Subject to:

1 The development shall be begun not later than the expiration of three years from the date of this decision.

In order to comply with the requirements of the Town and Country Planning Act.

2 Large scale details, including materials and finishes, at a minimum of 1:20 scale of the items listed below shall be approved in writing by the Local planning Authority before the commencement of development:

(a) Windows (b) Window reveals (c) Doors (d) Roof (e) External wall construction (f) Brickwork detailing (g) Main entrance (h) Cladding size and fixing

Thereafter, the works shall be carried out in accordance with the approved details

In order to ensure an appropriate quality of development.

3 Before the development is commenced samples of all proposed external materials and finishes, including windows, shall be submitted to and approved in writing by the Local Planning Authority. Thereafter, the development shall be carried out in accordance with the approved details.

In order to ensure an appropriate quality of development.

4 Before the development is commenced, full details of proposals for the inclusion of public art within the development shall have been submitted to and approved in writing by the Local Planning Authority. Such details shall then be implemented prior to the occupation of the development unless otherwise authorised in writing by the Local Planning Authority.

In order to meet the requirements of Policy H16 of the Unitary Development Plan.

5 Before any work on site is commenced, a comprehensive and detailed hard and soft landscape scheme for the site shall have been submitted to and approved by the Local Planning Authority. The landscape works shall be implemented prior to the development being brought into use or within an alternative timescale to be first agreed in writing with the Local Planning Authority. Thereafter the landscaped areas shall be retained and shall not be used for any other purpose without the prior consent of the Local Planning Authority. They shall be cultivated and maintained for a period of 5 years from the date of implementation and any plant failures within that five year period shall be replaced.

In the interests of the amenities of the locality.

6 This development shall be carried out in complete accordance with the approved plans;

LL 165 003 Rev E dated16/10/09 109034 P003 Rev B dated 04/09/09 P004 Rev B dated 04/09/09 P005 Rev B dated 04/09/09 P007 Rev A dated 04/09/09 P008 Rev A dated 04/09/09 P009 dated 04/09/09 P012 dated 04/09/09 P013 dated 04/09/09 P006 dated 28/08/09

unless otherwise authorised in writing by the Local Planning Authority

In order to define the permission.

7 The development shall not be used unless the car parking accommodation for 52 cars as shown on the approved plans has been provided in

57 accordance with those plans and thereafter such car parking accommodation shall be retained for the sole purpose intended.

In the interests of traffic safety and the amenities of the locality.

8 The development shall not be begun until the improvements (which expression shall include traffic control, pedestrian and cycle safety measures) to the highways listed below have either;

a) been carried out; or

b) details have been submitted to and approved by the Local Planning Authority of arrangements which have been entered into which will secure that such improvement works will be carried out before the development is brought into use.

Highway Improvements:

i. Right turn lane for access to the development as shown on drawings provided to the satisfaction of the Local Planning Authority.

ii. Yellow hatched junction protection marking provided to the satisfaction of the Local Planning Authority on Main Road at the access to the development.

iii. The footway to the front of the development site for its entire length along Main Road shall be reconstructed to Sheffield City Council specification to the satisfaction of the Local Planning Authority.

To enable the above-mentioned highways to accommodate the increase in traffic, which, in the opinion of the Local Planning Authority, will be generated by the development.

9 Prior to the improvement works indicated in the preceding condition being carried out, full details of these improvement works shall have been submitted to and approved in writing by the Local Planning Authority.

In the interests of traffic safety and the amenities of the locality.

10 The development shall not be used unless all redundant access have been permanently stopped up and reinstated to footway, and means of vehicular access shall be restricted solely to those access points indicated in the approved plans.

In the interests of traffic safety and the amenities of the locality.

58 Authority. Such details shall include the arrangements for restricting the vehicles to the approved ingress and egress points. Ingress and egress for such vehicles shall be obtained only at the approved points.

In the interests of traffic safety and the amenities of the locality.

12 There shall be no gates or barriers erected at the means of access to the site unless otherwise agreed in writing by the Local Planning Authority.

In the interests of traffic safety and the amenities of the locality.

13 At all times that development is being carried out equipment shall be provided to the satisfaction of the Local Planning Authority for the effective cleaning of the wheels and bodies of vehicles leaving the site so as to prevent the depositing of mud and waste on the highway but before the development is commenced full details of such equipment shall have been submitted to and approved by the Local Planning Authority. When the above-mentioned equipment has been provided thereafter such equipment shall be used for the sole purpose intended in all instances and be properly maintained.

In the interests of the safety of road users.

14 The development shall not be used unless provision has been made within the site for accommodation of delivery/service vehicles in accordance with the approved plans. Thereafter, all such areas shall be retained free of all obstructions, including the storage, display and depositing of materials, packaging or other objects so that the service yard is fully available for the parking, turning and manoeuvring of delivery/service vehicles.

In the interests of highway safety and the amenities of the locality.

15 The development shall not be used unless the cycle parking accommodation for 20 cycles as shown on the approved plans has been provided in accordance with those plans and, thereafter, such cycle parking accommodation shall be retained.

In the interests of traffic safety and the amenities of the locality.

16 Before any building operations are commenced, space shall be provided within the site curtilage for site accommodation, storage of plant and materials, parking and manoeuvring of site operatives and visitors vehicles together with the loading/unloading and manoeuvring of goods vehicles, designed, laid out and constructed all to the satisfaction of the Local Planning Authority in advance of construction works commencing and maintained free from impediment throughout the duration of the construction works.

In the interests of traffic safety and the amenities of the locality.

59 17 Before development of the car parking area commences details shall be submitted and approved the scheme to provide parking within the site for off street parking for residents on Main Road. The development shall not be used unless such approved details are implemented and retained unless otherwise approved in writing by the Local Planning Authority.

In the interests of traffic safety and the amenities of the locality.

18 No externally mounted plant or equipment for heating, cooling or ventilation purposes, nor grilles, ducts, vents for similar internal equipment, shall be fitted to the building unless full details thereof have first been submitted to and approved by the Local Planning Authority, and once installed such plant or equipment should not be altered without prior written approval of the Local Planning Authority.

In the interests of the amenities of the locality and occupiers of adjoining property.

19 Any remediation works recommended in the Phase II Intrusive Site Investigation Report shall be the subject of a Remediation Strategy Report which shall have been submitted to and approved in writing by the Local Planning Authority prior to the development being commenced The Report shall be prepared in accordance with Contaminated Land Report CLR11 (Environment Agency 2004) and Local Planning Authority policies relating to validation of capping measures and validation of gas protection measures.

In order to ensure that any contamination of the land is properly dealt with.

20 All development and associated remediation shall proceed in accordance with the recommendations of the approved Remediation Strategy. In the event that remediation is unable to proceed in accordance with the approved Remediation Strategy, or unexpected contamination is encountered at any stage of the development process, works should cease and the Local Planning Authority and Environmental Protection Service (tel: 0114 273 4651) should be contacted immediately. Revisions to the Remediation Strategy shall be submitted to and approved in writing by the Local Planning Authority. Works shall thereafter be carried out in accordance with the approved revised Remediation Strategy.

In order to ensure that any contamination of the land is properly dealt with.

21 Upon completion of any measures identified in the approved Remediation Strategy or any approved revised Remediation Strategy a Validation Report shall be submitted to the Local Planning Authority. The development or any part thereof shall not be brought in to use until the Validation Report has been approved in writing by the Local Planning Authority. The Validation Report shall be prepared in accordance with Contaminated Land Report CLR11 (Environment Agency 2004) and Local Planning Authority policies relating to validation of capping measures and validation of gas protection measures.

In order to ensure that any contamination of the land is properly dealt with.

22 The pharmacy (Use Class A1) shall only be open between 08.00 hours and 21.30 hours Monday to Sunday.

To define hours of opening of the pharmacy.

23 Surface water and foul drainage shall drain to separate systems.

To ensure satisfactory drainage arrangements.

24 No piped discharge of surface water from the application site shall take place until surface water drainage works including off-site works have been completed in accordance with details to be submitted to and approved in writing by the Local Planning Authority.

To ensure satisfactory drainage arrangements.

25 No development shall take place until details of the proposed means of disposal of foul water drainage, including details of any balancing works off- site works, have been submitted to and approved in writing by the Local Planning Authority.

To ensure satisfactory drainage arrangements.

26 The development permitted by this planning permission shall only be carried out in accordance with the approved Flood Risk Assessment (FRA) by Lees Roxburgh Limited, dated 17 July 2009, and the following mitigation measures detailed within the FRA:

(i). Finished floor levels are set no lower than 61.8 m above Ordnance Datum (AOD) (which is 600mm above the potential overland flow route), as stated on page 9 of the FRA ); page 8 of the FRA also states that the floor level of the building shall be a minimum of 150 mm above external ground levels.

(ii). A permanent strip of land 4.5 metres wide adjacent to the top of the bank of Car Brook to be kept clear of all new buildings and structures (including decking, gates, walls, fences and trees) unless otherwise agreed in writing with the Local Planning Authority in consultation with the Environment Agency.

To reduce the impact of flooding on the proposed development and future occupants and to allow access for future maintenance and/or improvements works.

27 The development hereby permitted shall not be commenced until such time as a scheme for the following has been submitted to, and approved in writing by, the Local Planning Authority:

Limiting the surface water run-off generated by the proposed development so that it will not exceed the run-off from the undeveloped site and not increase the risk of flooding off-site, as stated on page 9 of the FRA. The site drainage shall be designed to accommodate runoff from the 1 in 100 year storm (plus an allowance for climate change), without flooding, as stated in the FRA.

The scheme shall be fully implemented and subsequently maintained, in accordance with the timing / phasing arrangements embodied within the scheme, or within any other period as may subsequently be agreed, in writing, by the local planning authority.

To prevent flooding by ensuring the satisfactory storage of/disposal of surface water from the site.

28 The design and location of all new external light fittings shall be approved in writing by the Local Planning Authority before the development commences. Thereafter the development shall be carried out in accordance with the approved details.

In order to ensure an appropriate quality of development.

29 Surface water discharge from the completed development site shall be restricted to a maximum flow rate of 5 litres per second. Before the development is occupied written confirmation shall be given to the Local Planning Authority that the necessary equipment has been installed on site to achieve the required restricted rate of discharge.

In order to mitigate against the risk of flooding.

30 Details of the proposed biodiesel tank are not approved. Before development commences structural details of the tank, excavation work, the tank surround, associated pipework and monitoring system, together with a justification for an underground rather than overground tank, and risk assessment demonstrating that risks to groundwater and the adjacent Car Brook can be satisfactorily managed, shall have been submitted to and approved in writing by the Local Planning Authority. The tank shall not be used unless such approved details have been implemented and thereafter retained unless otherwise authorised in writing by the Local Planning Authority.

To reduce the risk of pollution to controlled waters.

31 Prior to the commencement of development a detailed method statement for the removal or long term management/eradication of Japanese Knotweed on the site shall be submitted to and approved in writing by the Local Planning Authority. The method statement shall include proposed measures to prevent the spread of Japanese Knotweed during any operations such as mowing, strimming or soil movement. It shall also

62 contain measures to ensure that any soils brought onto the site are free of any seeds/root/stem of any evasive plant covered under the Countryside and Wildlife Act 1981. Development shall proceed in accordance with the approved method statement.

Japanese Knotweed is an evasive plant the spread of which is prohibited under the Wildlife and Countryside Act 1981. Without measures to prevent its spread as a result of the development there would be the risk of an offence being committed and avoidable harm to the environment occurring.

Attention is drawn to the following justifications:

H10 - Development in Housing Areas H14 - Conditions on Development in Housing Areas BE5 - Building Design and Siting BE7 - Design of Buildings Used by the Public CF1 - Provision of Community Facilities CS64 - Climate Change, Resources and Sustainable Design of Developments CS65 - Renewable Energy and Carbon Reduction CS67 - Flood Risk Management

and to all relevant material considerations, including Supplementary Planning Guidance.

Attention is drawn to the following directives:

1. Failure to carry out this development in accordance with the approved plans may result in enforcement action. Please contact the Planning Department if you wish to amend any design or specifications for your proposed development.

2. As the proposed development abuts the public highway you are advised to contact the Highways Co-ordination Group on Sheffield 2736677, prior to commencing works. The Co-ordinator will be able to advise you of any pre- commencement condition surveys, permits, permissions or licences you may require in order to carry out your works.

3. You are required, as part of this development, to carry out works within the public highway. You must not start any of this work until you have received

63 a signed consent under the Highways Act 1980. An administration/inspection fee will be payable and a Bond required as part of the consent.

You should apply for a consent to: -

Highways Adoption Group Development Services Sheffield City Council Howden House, 1 Union Street Sheffield S1 2SH

For the attention of Mr S Turner Tel: (0114) 27 34383

4. Before the development is commenced, a dilapidation survey of the highways adjoining the site shall be jointly undertaken with the Council and the results of which agreed in writing with the Local Planning Authority. Any deterioration in the condition of the highway attributable to the construction works shall be rectified in accordance with a scheme of work to be agreed with the Local Planning Authority.

5. The developer's attention is drawn to:

(i) Sections 4 and 7 of the Chronically Sick and Disabled Persons Act 1970, as amended; and

(ii) the code of Practice for Access of the Disabled to Buildings (British Standards Institution code of practice BS 8300) or any prescribed document replacing that code.

Section 4 sets requirements for access to, and facilities at, premises. Section 7 requires a notice or sign to be displayed, indicating that provision is made for the disabled.

If you require any further information please contact Brian Messider or Simon Ovendon on Sheffield 2734197.

6. The applicant is advised that noise and vibration from demolition and construction sites can be controlled by Sheffield City Council under Section 60 of the Control of Pollution Act 1974. As a general rule, where residential occupiers are likely to be affected, it is expected that noisy works of demolition and construction will be carried out during normal working hours, i.e. 0800 to 1800 hours Monday to Friday, and 0800 to 1300 hours on Saturdays with no working on Sundays or Public Holidays. Further advice, including a copy of the Council's Code of Practice for Minimising Nuisance from Construction and Demolition Sites is available from the Environmental

64 Protection Service, 2-10 Carbrook Hall Road, Sheffield, S9 2DB: Tel - 0114 2734651.

7. The applicant is advised that the predicted carbon emissions reduction required by Core Strategy Policies CS64 and CS65 should be measured against recognised criteria, such as the Building Regulations Target Emission Rate or other officially recognised method.

8. From the 6th April 2008, the Town and Country Planning (Fees for Applications and Deemed Applications) Regulations 2008 require that all requests for confirmation of compliance with planning conditions require a fee payable to the Local Planning Authority. An application to the Local Planning Authority will be required using the new national standard application forms. Printable forms can be found at www.sheffield.gov.uk/planning or apply online at www.planningportal.gov.uk. The charge for this type of application is £85 or £25 if it relates to a condition on a householder application for development.

Site Location

INTRODUCTION

This proposal is for a further medical centre submitted by Community 1st., a LIFT (Local Investment Finance Trust) company, which is a vehicle for improving and developing frontline primary care and community facilities. It is allowing Local Authorities, NHS Primary Care Trusts, and other public sector participants to invest in new community premises. It is providing the public with modern and integrated community and health services in high quality and purpose built premises.

Investigations have taken place over several years to find a suitable site for a LIFT medical centre around the centre of Darnall. Other sites have not been considered acceptable or available hence the proposal to develop the site which is the subject of his application. The proposal will replace two existing healthcare facilities on Prince of Wales Road and Darnall Road.

LOCATION AND PROPOSAL

The site is located on the south side of Main Road, to the east of its junction with Greenland Road/ Prince of Wales Road (outer ring road). Between the site and Prince of Wales Road is a church and grounds (Church of Jesus Christ Apostolic Incorporated) the boundary in part being formed by the Car Brook which is in a channel. At the eastern end of the site is a car wash operation. To the south is railway land set on an embankment which includes tracks of the Sheffield-Worksop line. Uses on the opposite side of Main Road adjacent to the site are predominantly residential with a few shops and commercial premises close to Greenland Road on the edge of Darnall district shopping centre, the majority of the centre being west of the outer ring road.

The site was formerly occupied by housing served by roads set at right angles to Main Road. Although the houses have been cleared the road surfaces remain. Regeneration of trees and shrubs has taken place since clearance with a number of mature trees along the highway frontage and brook boundary. The site rises from west to east by approximately 3 metres.

It is proposed to erect a flat roofed, single and two storey medical centre with a ‘100 hour’ pharmacy and associated car parking. The medical centre will be open 08.00 hrs to 22.30 hrs Mondays to Saturdays and 09.30 to 22.30 hrs Sundays and the pharmacy between 08.00 hrs and 21.30 hrs daily. The centre will consist of two buildings, the two storey with a single storey fronting Main Road containing front of house facilities such as waiting and reception areas and a pharmacy. This building will linked by glazed walkways through a courtyard to an ‘L’ shaped wrap-around two storey element to the east and south, housing clinical and staff facilities. For ease of access, public areas are at ground floor, including consulting, treatment and counselling rooms. The separation of buildings provides the opportunity for community use in the single storey block whilst maintaining security for clinical areas.

The front main entrance building has horizontal stained glass bands with the adjacent pharmacy having vertically laid trespa panels with colours taken from

66 stained glass windows featured in an existing practice. Other facing materials are trespa and zinf effect cladding and red brick. Red brick is the main facing material of the L-shaped element with small scale punched-in windows and zinc effect projections to the first floor. Due to changes in level, ramps and steps provide access to the main entrance.

Vehicular access to car parking areas and for servicing is to the east of the building, off Main Road. Car parking is to be located to the east and south of the L-shaped element of the building with 52 spaces in total. The eastern section will be for visitors to the centre and for residents use outside centre opening hours. A gate separates staff parking on the southern section. Both areas contain disabled parking areas and cycle storage provision.

Landscaped areas are provided along the edges of the car parks with an area projecting into the southern parking area containing existing trees. Apart from some parking spaces, the western part of the site up to the brook is to be landscaped including existing trees and a staff sitting out area. Hard and soft landscaping is provided in the courtyard area. Boundary treatment will consist of a 1.8 metre high close meshed fence to the rear and eastern boundary with a low wall and patterned steel fence to the west of the building frontage.

RELEVANT PLANNING HISTORY

None

SUMMARY OF REPRESENTATIONS

Two letters commenting on the proposal have been received from local residents and three via the York Road Darnall Medical Centre raising objections to the proposal. Issues raised are:

-How will the loss of verge parking for local residents be dealt with. -The medical centre is to be welcomed.

Objections to the proposal are;

-The proposal is on the wrong side of a busy dual carriageway, which pedestrians will have to cross, from Darnall centre away from the main residential areas. -The location will not help to improve local services. -Clive Betts MP assured the writer that the new centre would be on the opposite side of the dual carriageway. -Such is the scale of the building that it cannot be considered user friendly and create security problems due to the need for secondary waiting areas. -Potential anti social activities around the building due to its location must be taken into consideration as must be security for out of hours users. -The building is too large for the size of the community it will serve.

Other issues such as funding, the need for the centre and the lack of choice as no additional services are to be provided, are not planning issues.

67 Sheffield Urban Design Panel

As originally proposed the scheme was presented to The Sheffield Urban Design Panel. The Panel felt that the proposal was a well considered scheme that might benefit from a number of simple design developments: namely the reconsideration of the location of the entrance ramp and the pedestrian route around the building and the simplification of the elevational treatment in order to realise a successful scheme.

The East End Strategy Group commented on the proposal in the form of a Workshop. The summary of the Workshop is:

A new good quality well designed building and new facilities for the healthcare of the Darnall area is welcomed and supported. Reuse of a long vacant site close to the centre of Darnall is welcomed. A good relationship with appropriate resourcing and support between the PCT the GP practices and local community and voluntary groups is key to embedding and promoting the work of this facility within Darnall and delivering services that meet the needs of a disadvantaged community. Early and ongoing discussions with the Darnall Well Being Group who are keen and excited to be involved in this project is encouraged by the EESG. Without local groups such as Darnall Well Being many of the sustainability aims related to community sustainability perform poorly. Some suggestions as to how to improve these elements have been made. An energy efficient, low carbon building with improved surrounding landscaping is welcomed, and some suggestions are made as to how this building could be made even better by helping to raise awareness in local communities of the importance of reducing energy and resource use and how improved biodiversity contributes to good health.

PLANNING ASSESSMENT

Policy Issues

The site is located in a Housing policy Area (Policy H10) in the Unitary Development Plan. In such Areas community facilities and institutions (Use Class D1), which includes the use proposed in this application, are acceptable. This is subject to non residential uses not being so large or numerous that they damage the appearance and residential character of a Housing Area or cause disturbance to people living there. Similarly small shops (Use Class A1), under 280 sq m, in which the pharmacy falls are also acceptable, again subject to the above criteria. The UDP must also be read in conjunction with Government guidance in PPS6 which deals with town centres and town centre uses such as retail. Whilst the D1 element is not a town centre use as such, paragraph 2.55 of PPS6 promotes town centres as a focus for investment in local services such as health centres. The site is not in Darnall centre but it is considered to be close enough to be readily accessible by foot from it, and the proposed pharmacy is small enough to be considered ancillary to the D1 use.

Development must also meet the criteria in Policy H14 ‘Conditions on Development in Housing Areas’. The proposal also accords with Policy CF1 ‘Provision of Community Facilties’ which promotes the provision of community facilities

68 particularly where they are located within the community they are intended to serve. As the proposal provides improved health care and community facilities it meets the requirements of Policy CF1.

The site is designated as a Housing Area in the unadopted Darnall Attercliffe and Tinsley Neighbourhood Development Framework Master Plan which was approved by Cabinet in May 2007 and is thus a material consideration. The Master Plan promotes housing lead regeneration and also considers District centre improvements as aiding regeneration. Although the proposal is not in the centre it is close enough such that the new facilities will have an influence on the centre, thus it accords with the Master Plan.

Design Issues

New development must take into account the criteria in Policy BE5, ‘Building Design and Siting’ in the Unitary Development Plan and Policy CS74, ‘Design Principles’ in the Sheffield Development Framework Core Strategy. Both Policies require good quality development in terms of design and materials taking into account scale, form and architectural style of surrounding buildings and distinctive features of the neighbourhood. Section (l) of Policy H14 of the UDP, ‘Conditions on Development in Housing Areas’ states that new development will be permitted “provided that it would also : be on a scale consistent with the residential character of the Area or meet primarily local needs..”. The scheme is also a potential landmark development within a Housing Market Renewal Area. A high quality building will assist in the aims of the HMR to lift the built environment of the area.

The building has specifically been designed to be a distinctive landmark, to identify its position as a public building adjacent to the District centre. This has been achieved by a building of contemporary design which reflects local characteristics. The contemporary elements include the ‘stained glass’ horizontal panelled front entrance and main public area alongside the pharmacy which is clad in panels of colours that complement the stained glass areas although the panels are vertical. The coloured glazing reflects a feature included in a health centre to be replaced and the remainder of the building’s facing material will be red brick (the material used for housing on Main Road opposite the site). Frontage features although separated from Darnall centre by Prince of Wales Road will still be prominent from the centre due to their design and orientation. Modelling on the building will be provided by deep window reveals.

In response to the Urban Design Panel’s comments the applicant has amended elements of the scheme. The access ramp which was originally located to the west of the entrance obscured the steps and did connect directly with other access routes. It has now been relocated to the east allowing it to be provided directly from the public highway creating more of a civic presence. The colours of the frontage glazing and panelling are complementary.

The contemporary appearance of the building will be enhanced by it having a flat roof unlike the traditional roofs of the terraced housing opposite. Being two storey the building is scale with the housing. Main Road is considered to provide

69 adequate separation to allow such a feature not to appear out of character with the street scene.

Subject to the submission of details and materials it is considered that the proposal, incorporating amendments based on comments from the Design Panel, is of a high standard of quality, The building is of a contemporary design whilst reflecting local characteristics and provides community services. It thus accords with Policies BE5 and H14(I) of the Unitary Development Plan and Policy CS74 of the Core Strategy.

Amenity Issues

Policy H14 (k), ‘New Development in Housing Areas’ of the UDP requires that, to be permitted, new development: “would not lead to air pollution , noise, smell, excessive traffic levels or other nuisance, or risk to health”.

The closest residential area is to the north of the site and separated from it by Main Road. Traffic is relatively heavy on that highway and background noise is likely to be higher than any noise arising from plant in the building. It should also be added that plant room louvers are located on the far western elevation of the two storey element. This elevation is closer to the church than the residential area. Servicing and deliveries will also be on the south of the site. The entrance to the public and staff car park areas is opposite houses on Main Road but taking into account the amount of traffic already using Main Road the amount of traffic generated by the health centre is not considered to significantly increase overall traffic on that part of Main Road. The location of the pharmacy away from the residential area, should, including any security measures proposed, reduce any potential anti social behaviour during the pharmacies daily opening hours, protecting the amenities of local residents.

To the east and west of the site respectively is a car wash operation and church and associated car parking. Land to the east is raised on an embankment containing trees and bushes and consists of former railway sidings, beyond which is an existing railway line. None of these uses are likely to be adversely affected by the health centre.

The proposal will bring benefits to the local community and the area by developing land that has been unused for decades. Although the land is overgrown with regenerated vegetation, it has little amenity value and the outer edge is used for off street car parking closest to Main Road. Apart from the quality of the design of the building, a purpose built health centre will provide modern integrated community and health services for the Darnall Area. The building’s entrances and exits will be well lit and provide adequate sightlines to help increase natural surveillance. The design also aims to achieve the Secured by Design accreditation standards. Amenities for staff include an outside landscaped area to the west of the building and landscaped outlooks from staff rooms. The waiting area has a high ceiling with glazing to the north and high level windows to the south. Ground floor rooms have an outlook onto the inner courtyard.

70 Taking the above issues into account the proposal is thus considered to accord with Policy H14 (k) of the UDP.

Access Issues

Policy BE7 of the Unitary Development Plan ‘Design of Buildings Used By The Public’ states that: “In all buildings which are to be used by the public, provision will be expected to allow people with disabilities safe and easy access to the building and appropriate parking spaces”. The medical centre has been designed to provide and promote equal and convenient access. The building approaches and internal design will allow such access. Internally the building has been designed with a fully inclusive environment with level access on the ground floor for independent use. A lift provides access to the first floor.

The applicant intends that all facilities will comply with the requirements of Building Regulations Document M alongside recommendations of BS8300. The health facilities will also meet the more stringent requirements of the Department of Health design Guides which sit alongside the Disability Discrimination Act legislation. Eight disabled parking spaces have been provided, four for public visiting the centre and four for staff. The distance from the disabled visitor spaces to the entrance is longer than that normally acceptable (i.e. 20 metres) however the spaces were located as close as possible to the main entrance taking into account the location of the car park to the side of the building. The proposal thus accords with Policy BE7 of the UDP

In terms of overall access the location of the site was chosen as being close to a central location i.e. Darnall Centre. It is well served by public transport services and is in easy walking distance of several residential areas. There are bus stops on both sides of Main Road by the site.

Highways Issues

Policy H14 (d) of the Unitary Development Plan requires that new development will only be permitted if: “it would provide safe access to the highway network and appropriate off-street parking and not endanger pedestrians”. The access to car parking areas and servicing is located to the east of the site, setting it away from the major junction at Prince of Wales Road and staggered from the Senior Road Junction with Main Road. The entrance is set back from the highway with a lifting barrier securing access to the parking areas and adequate sight lines have been provided at the entrance to provide safe pedestrian/vehicular intervisibility.

52 car spaces have been provided including 8 disabled spaces. 30 are for public use and 32 for staff. For the scale of development this number of spaces is considered acceptable. Concerns have been raised about the potential loss of informal parking for local residents if the site is developed. It is intended that the public parking spaces will be available for use by local residents outside health centre opening hours. This will be achieved by providing residents who live opposite the site with tokens to allow access through the lifting barrier to park in the public area. A travel plan has been submitted to encourage other means of travel to the site rather than the car. Two covered cycle stands are to be provided, each

71 accommodating ten stands. Refuse bins are located to the south east corner of the site with a turning area for refuse collecting vehicles. Similarly, a turning area is also situated in the south west corner for delivery vehicles including biodiesel fuel tankers.

It is considered that the distribution of pedestrian journeys is accommodated within the existing pedestrian crossing facilities. Pedestrian access from the west i.e. from Darnall Centre will be via signal controlled crossings over the outer ring road. The number of potential visitors to the centre east Prince of Wales Road do not justify the provision of a pedestrian crossing on Main Road. Further information is required from the applicant on any potential increase in the numbers using the centre which could impact on the crossings. However it is anticipated that such information will be provided prior to the Board meeting and any amendments will be presented in the form of a supplementary report. Subject to the submission of such details the proposal will accord with Policy H14 (d) of the Unitary Development Plan.

Sustainability Issues

Policy CS64 of the Core Strategy relates to climate change, resources and sustainable design of developments and advises that all new buildings must be designed to reduce emissions of greenhouse gases and function in a changing climate. They must be designed to use resources sustainably such that all new development over 500 square metres should achieve a BREEAM rating of very good or equivalent. Policy CS65 of the Core Strategy requires all significant development to secure the following unless it can be shown not to be feasible or viable:

(i) Provide a minimum of 10% of the protected energy needs from decentralised and renewable or low carbon energy, and (ii) Generate further renewable or low carbon energy or incorporate design measures sufficient to reduce the development’s overall predicted carbon dioxide emissions by 20%. This would include the decentralised and renewable or low carbon energy required to satisfy (i).

The applicant has submitted a sustainability statement advising that the medical centre is being developed with a target of achieving a rating of ‘excellent’ under BREEAM; Healthcare 2008 assessment scheme. BREEAM has been integrated into the design process from the earliest stages and a significant number of features designed to enhance overall sustainability have been incorporated into the scheme to meet this standard.

In terms of energy reduction the proposal has been designed to utilise natural light and restrict mechanical ventilation. To minimise the need for energy, intensive cooling methods and occupant controllable glaze control and solar glazing will be utilised in appropriate areas of the building. The centre will incorporate several innovative low carbon technologies and other measures such as a highly efficient and insulating building envelope (wall, roof and flooring) which the applicant

72 considers will result in an efficient, low carbon facility. This will achieve thermal insulation values (U-values) 20% better than those required by building regulations

A bespoke power system, generating both power and heat and fuelled by sustainable biodiesel (sourced from waste vegetable oil) is likely to be incorporated into the centre. This system generates sufficient electricity for the entire building and also exports some to the grid. It will be fuelled using UK sources which will result in very significant carbon savings, even compared to efficient gas-fired systems.

Members will recall that the Environment Agency objected to a similar biodiesel fired system at the approved Bluebell Medical Centre on Wincobank Avenue due to insufficient information on whether the biodiesel storage tank could pollute surrounding land. This is particularly relevant in this case due to the proximity of the Car Brook to the location of the tank. The EA has again objected to the proposal due to lack of information regarding the justification for an underground how the of the tank and pipes be sealed and a risk assessment to protect ground waters. Such details will be conditioned, to be provided as per the previous application.

A green roof was considered as part of the development, and as requested by the East End strategy Group. However the centre includes rain water harvesting and the green roof would have resulted in discolouring and sedimentation/plant matter interference in water harvested from the roof. A long term warranty would also not be available for a green roof.

Taking into account the proposed energy and emission reduction features that the applicant proposes for the medical centre it is considered that the proposal concurs with Policies CS64 and CS65 of the Core Strategy.

Flood Risk

Policy CS67 of the Core Strategy relates to flood risk management and advises that the extent of, and impact of flooding, can be reduced by a number of measures including the use of sustainable urban drainage (SUDS). The proposed building development is situated adjacent part of the site which is in a high risk flood zone 3, along the boundary with the Car Brook. A flood risk assessment has been submitted on which the Environment Agency has been consulted. The EA has no objections to the proposal subject to conditions being included which meet measures detailed in the flood risk assessment. These measures include finished floor levels and restrictions in run off not exceeding that from the site prior to development, which would include surface water attenuation. Such proposals would include BREEAM credits. As such the proposal accords with Policy CS67 of the Unitary Development Plan.

Ecology

The site includes two in Green Links, as defined in Policy GE10, Green Networks, of the Unitary Development Plan. This Policy States that; “A network of Green Corridors and Green Links will be (a) protected from development which would

73 detract from their mainly green and open character or would cause serious ecological damage…”. As the Car Brook forms the western boundary of the site Policy GE17, Rivers and Streams must also be taken into account. This Policy requires the protection of rivers and streams as part of the Green Network, and encourages opening up of water courses.

The east west corridor is partially formed of the railway land to the south of the site. A number of mature trees have been retained in the landscape plan and overall the green and open character of the corridor is not affected by the development. The north south corridor which runs along the Car Brook has been reduced by the provision of a car parking and turning head to the south and west of the buildings. In order to reduce the impact of the hard surfaced areas close to the brook the applicant has agreed to re-orientate the car parking spaces and shorten the turning head to widen the green space adjacent to the brook. A native species hedge is to be planted on the perimeters of the parking bays. Although not ideal the Green Link is considered to be maintained and this is balanced with the benefits of the community in providing a new purpose built medical centre with adequate off street parking.

The opportunity to decanalise the brook in this location was also investigated. This was not possible as the Environment Agency requires a 4.5 metre wide access strip along the bank of the brook. Banking instead of straight sides to the brook would have resulted in the narrowing of any green strip adjacent to the parking area.

An ecological survey has been carried out as part of the submitted application. The report concluded that it was unlikely that any protected species would utilise the site. It was recommended that in the interests of biodiversity vegetation be restored or enhanced where ever possible and to enhance the ecology of the site by the planting of native species. The existence of Japanese Knotweed was noted in a large area of the site, clearance of which requires a detailed method statement. This is due to the spread of such an evasive plant being prohibited under the Wildlife and Countryside Act.

An Ecological Input t the BREEAM report has also been submitted. This report includes details of BREEAM credits that would arise from the ecological measures proposed.

The proposal therefore concurs with Policies GE10 and GE17 of the Unitary Development Plan.

RESPONSE TO REPRESENTATIONS

The proposal meets the needs of local residents parking and overall most of the aspirations of the East End Strategy Group are met apart from the provision of green roofs. It should be noted that most of the Groups comments are addressed to the PCT. Other comments regarding the location of the centre are dealt with in the above report. Matters relating to spending and need of the proposal are not planning considerations. The proposed pharmacy will be located in a location separated from residential areas by a busy road.

SUMMARY AND RECOMMENDATION

It is considered that the proposal will bring benefits to the local communities of the Darnall area by providing a purpose built high quality designed medical centre, plus a pharmacy, replacing two other smaller health centres and it will aid local regeneration. The building will be of a contemporary design whilst reflecting local characteristics and it will be prominent on the street scene whilst still of a height similar to adjacent a houses. The main entrance will be have coloured glass panels replicating a feature of one of the replaced centres.

The location of the site is not ideal as it is separated from the main areas of Darnall by the dual carraigeway outer ring Road. It was originally proposed to locate the medical centre closer to Darnall District centre however no other sites were suitable or available. There are good pedestrian and public transport links and the building will have a presence as viewed from Darnall centre. The building is separated from adjacent residential areas and it will not adversely affect the amenities of local residents. It is intended that the building will be highly sustainable being designed to BREEAM ‘excellent’ standards and utilising renewable energy sources.

Car parking and servicing facilities are adequate to meet the needs of users of the centre, both public and staff and will not create a traffic hazard. Green links and biodiversity will be maintained.

It is therefore recommended that subject to the following conditions and the submission of acceptable pedestrian crossing details that the Area Board approve the application.

Case Number 09/02597/FUL

Application Type A Full Planning Application

Proposal Erection of 8 retail units (Use Class A1, A2, A3, A5), and Market Hall with service yard, storage and administrative offices (as amended 15.10.2009)

Location Land Between Cumberland Street Eyre Street Earl Street And The Moor (New Block 6, The Moor) Sheffield

Date Received 18/08/2009

Team CITY CENTRE AND EAST

Applicant/Agent NJL Consulting

Recommendation Grant Conditionally

Subject to:

1 The development shall be begun not later than the expiration of five years from the date of this decision.

In order to comply with the requirements of the Town and Country Planning Act.

2 Before the corresponding part of the development is commenced samples of all proposed external materials and finishes, including windows, shall be submitted to and approved in writing by the Local Planning Authority. Thereafter, the development shall be carried out in accordance with such approved details, and shall not be carried out otherwise without the prior written approval of the Local Planning Authority.

In the interests of the visual amenities of the locality.

3 Before the external facings are fitted full height sample panels at a scale of 1:1 of the following external facings (unless authorised in writing by the Local Planning Authority) shall be erected on site including any windows, grilles or other feature elements:

(i) Brickwork (Smooth Red and Alternate Recessed Bands and blue facing brickwork) including blockwork plinths (ii) Reconstituted stone panels and plinths of slate pre-cast panels (iii) Timber Weave Rainscreen (iv) Glazed Curtain Walling System

76 (v) Curved Glass and Timber Roof to Market Entrance and main Market Hall (vi) Plinths to Market roof on Earl Street (vii) Opaque glass coloured panels (viii) Galvanised channel section columns and channel cross beams (ix) Timber Brise Soleil (x) Powder coated ventilation cowls

The sample panels shall be approved in writing by the Local Planning Authority prior to the installation of the corresponding external facing material and shall be retained for verification purposes until the completion of such works.

In order to ensure an appropriate quality of development.

4 Notwithstanding the 1:50 sections submitted for approval, further modelling details in sections at a scale of 1:20 of the items below (unless authorised in writing by the Local Planning Authority) on each facade shall have been approved in writing by the Local Planning Authority before the construction of the corresponding part of the building:

(i) Window Reveals (ii) Window Heads and Sills (iii) Floor Slab Edges (iv) Eaves, Verges and Soffits (v) Joints and Fixing Details (vi) Shutter Fitting to Service Entrance (vii) Louvres and Grilles (viii) Junctions between materials (including blockwork plinth, alternating brickwork and galvanised channels).

Thereafter the works shall be carried out in accordance with such approved details, and shall not be carried out otherwise without the prior written approval of the Local Planning Authority.

In order to ensure an appropriate quality of development.

5 Large scale design details including materials, finishes and fixings at a scale of 1:20/1:50 as appropriate of the items listed below (unless authorised in writing by the Local Planning Authority) shall have been approved in writing by the Local Planning Authority before the construction of the corresponding part of the building is commenced:

(i) Canopies above entrances to market hall and shops (ii) Cladding to columns within the market hall entrance (iii) Decorated frieze above shops (iv) External lighting (v) Service Yard entrance gates (vi) Railings to Eyre Street and Earl Street steps (vii) Inclusive Access and Doors to Earl Street.

77 Thereafter the works shall be carried out in accordance with such approved details and shall not be carried out otherwise without the prior written approval of the Local Planning Authority.

In order to ensure an appropriate quality of development.

6 Notwithstanding the drawings hereby approved, revised details of that part of the Eyre Street elevation in the area of the rear steps, the curved façade to the market hall and its junction with the market office wing shall have been submitted to and approved by the Local Planning Authority before work on that part of the development is commenced, and the development shall not be used unless the building has been built in accordance with such approved details.

In order to ensure an appropriate quality of development.

7 The shop units shall not be used unless one or other of the alternative shop front designs hereby approved has been carried out in its entirety to the exclusion of the other, and the alternative shop front designs shall not be carried out in combination or part-combination with each other.

In the interests of the visual amenities of the locality.

8 The development shall not be used for the purposes hereby permitted unless either the specific measures to produce Energy Efficiency, Low Carbon Energy and Renewable Energy proposed in Section 6 “Climate Change” of the Sustainability Statement by NJL Consulting (August 2009, Ref NJL/AC/2007-014) or appropriate alternative measures that shall have received the prior written approval of the LPA shall have been installed before the development is first used, and such approved measures shall thereafter be retained in place and operational for the lifetime of the development.

In order to ensure that new development makes energy savings in the interests of mitigating the effects of climate change.

9 Unless shown not to be feasible and viable to the satisfaction of the LPA the development shall not be used for the purposes hereby permitted unless a Validation Test Report showing that the building meets at least the BREEAM “Very Good” standard has been submitted to approved by the Local Planning Authority.

In order to ensure that new development makes energy savings in the interests of mitigating the effects of climate change.

10 The following Use Classes hereby permitted:

Class A2 - Financial and Professional Services Class A3 - Restaurants and Cafes Class A5 – Hot Food Takeaways

78 shall only operate so that at least 60% of the retail frontage of the development to The Moor between Earl Street and Cumberland Street remains in use as Class A1 Shops.

In order to protect city centre shopping on The Moor.

11 No Class A3 use (Restaurants and Cafes) nor A5 use (Hot Food Takeaways) hereby permitted shall be operated except between the hours of 0530 and 0030 hours daily.

In the interests of the amenities of the locality and occupiers of adjoining property.

12 No Class A3 use (Restaurants and Cafes) nor A5 use (Hot Food Takeaways) hereby permitted shall be used unless suitable apparatus for the arrestment and discharge of fumes or gases has been installed. Before such equipment is installed details thereof shall have been submitted to and approved by the Local Planning Authority. After installation such equipment shall be retained and operated for the purpose for which it was installed.

In the interests of the amenities of the locality and occupiers of adjoining property.

13 Before the occupation of any part of the development a detailed management strategy for the operation of the service yard shall be submitted to and approved in writing by the Local Planning Authority. The management strategy shall cover the following issues:

(i) full details of the proposed refuse and recycling storage and collection facilities and how they will be managed (including the movement, sorting & removal of waste bottles, materials, other articles, skips & bins, which should be restricted to between 0530 hours and 2300 hours daily); (ii) hours of operation of the service yard (which should only be between 0530 hours and 2300 hours daily) and how it will be managed; (iii) delivery times for the different users of the development;

Thereafter the development shall be operated in accordance with the approved management strategy and any subsequent variations to the strategy shall have received the prior written approval of the Local Planning Authority.

In the interests of traffic safety, the proper provision for refuse and recycling and the amenity of the area generally.

14 Amplified sound or live music shall only be played within the building in such a way that noise breakout to the street does not exceed:

(i) background noise levels by more than 3dB(A) when measured as a 15 minute LAeq,

79 (ii) any octave band centre frequency by more than 3dB

when measured as a 15 minute Leq, when measured at the façade of the buildings opposite.

In the interests of the amenities of the locality and occupiers of adjoining property.

15 Notwithstanding the approved drawings, before work on site is commenced, full revised details of the side doors to Earl Street shall have been submitted to and approved in writing by the Local Planning Authority and the development shall not be used unless such revised door details have been provided in accordance with the approved plans and thereafter such details shall be retained.

To ensure ease of access and facilities for disabled persons at all times.

16 Before the development is commenced, full details of proposals for the inclusion of public art within or adjacent to the development shall have been submitted to and approved in writing by the Local Planning Authority. Such details shall then be implemented prior to the occupation of the development unless otherwise authorised in writing by the Local Planning Authority.

In order to satisfy the requirements of Policy BE12 of the Unitary Development Plan and to ensure that the quality of the built environment is enhanced.

17 No externally mounted plant or equipment for heating, cooling or ventilation purposes, nor grilles, ducts, vents for similar internal equipment, shall be fitted to the building unless full details thereof have first been submitted to and approved by the Local Planning Authority, and once installed such plant or equipment should not be altered without prior written approval of the Local Planning Authority.

In the interests of the amenities of the locality and occupiers of adjoining property.

18 The service yard shall not be used unless 2.0 metres x 2.0 metres vehicle/pedestrian intervisibility splays have been provided on both sides of the means of access such that there is no obstruction to visibility greater than 600 mm above the level of the adjacent footway and such splays shall thereafter be retained.

In the interests of traffic safety and the amenities of the locality.

19 The development shall not be begun until the improvements (which expression shall include traffic control, pedestrian and cycle safety measures) to the highways listed below have either;

a) been carried out; or

80 b) details have been submitted to and approved by the Local Planning Authority of arrangements which have been entered into which will secure that such improvement works will be carried out before the development is first brought into use (or an alternative timescale to be agreed in writing by the Local Planning Authority) . Highway Improvements:

(i) Improvements to Eyre Street (Footway Surfacing to Urban Design Compendium materials requirements (ii) Improvements to Cumberland Street (Footway surfacing/reconstruction to Urban Design Compendium materials requirements; Contra-flow cycle lane at the bottom of The Moor; Bus gate camera enforcement works; Completion of Taxi Rank provision including feeder rank works to South Lane) (iii) Improvements to Earl Street/Earl Way (Footway and carriageway reconstruction to Urban Design Compendium materials requirements including the formal creation of a turning head for HGV’s (iv) The Moor: Completion of paving works along the site frontage (v) General pedestrian signage works together with appropriate traffic signage to Cumberland Street and South Street (vi) Contribution towards refreshing the connect signage map system to incorporate this development

To enable the above-mentioned highways to accommodate the increase in traffic, which, in the opinion of the Local Planning Authority, will be generated by the development.

20 Before the development is commenced, details of the means of ingress and egress for vehicles engaged in the construction of the development shall have been submitted to and approved in writing by the Local Planning Authority. Such details shall include the arrangements for restricting the vehicles to the approved ingress and egress points. Ingress and egress for such vehicles shall be obtained only at the approved points.

In the interests of traffic safety and the amenities of the locality.

21 At all times that being carried out equipment shall be provided to the satisfaction of the Local Planning Authority for the effective cleaning of the wheels and bodies of vehicles leaving the site so as to prevent the depositing of mud and waste on the highway but before the development is commenced full details of such equipment shall have been submitted to and approved by the Local Planning Authority. When the above-mentioned equipment has been provided thereafter such equipment shall be used for the sole purpose intended in all instances and be properly maintained.

In the interests of traffic safety and the amenities of the locality.

22 The development shall not be used unless provision has been made within the site for accommodation of delivery/service vehicles in accordance with

81 drawings hereby approved. Thereafter, all such areas shall be retained free of all obstructions, including the storage, display and depositing of materials, packaging or other objects so that the service yard is fully available for the parking, turning and manoeuvring of delivery/service vehicles.

In the interests of traffic safety and the amenities of the locality.

23 Before the development is commenced, full details of suitable and sufficient cycle parking accommodation within the site shall have been submitted to and approved in writing by the Local Planning Authority and the development shall not be used unless such cycle parking has been provided in accordance with the approved plans and, thereafter, such cycle parking accommodation shall be retained.

In the interests of sustainable transport.

24 The development shall not be used unless details have been submitted to and approved in writing by the Local Planning Authority, showing how surface water will be prevented from spilling onto the public highway. Once agreed, the measures shall be put into place prior to the use of the development commencing, and shall thereafter be retained.

In the interests of traffic safety and the amenities of the locality.

25 Prior to the occupation of any part of the development, a detailed Travel Plan(s), designed to: reduce the need for and impact of motor vehicles, including fleet operations; increase site accessibility; and to facilitate and encourage alternative travel modes, shall have been submitted to and approved in writing by the Local Planning Authority. Detailed Travel Plan(s) shall be developed in accordance with a previously approved Framework Travel Plan for the proposed development, where that exists. The Travel Plan(s) shall include:

a) Clear and unambiguous objectives and modal split targets; b) An implementation programme, with arrangements to review and report back on progress being achieved to the Local Planning Authority in accordance with the 'Monitoring Schedule' for written approval of actions consequently proposed, c) The results and findings of the monitoring shall be independently verified/validated to the satisfaction of the Local Planning Authority. d) The verified/validated results will be used to further define targets and inform actions proposed to achieve the approved objectives and modal split targets.

On occupation, the approved Travel Plan(s) shall thereafter be implemented, subject to any variations approved in writing by the Local Planning Authority.

82 In the interests of delivering sustainable forms of transport, in accordance with the Transport Policies in the adopted Unitary Development Plan for Sheffield and PPG13.

26 Notwithstanding the drawings hereby approved , unless otherwise approved in writing by the Local Planning Authority, no outward opening doors shall be fitted so as to open over the public highway, and before the development is commenced further drawings showing inward opening doors shall have been submitted to and approved by the Local Planning Authority.

In the interests of traffic safety and the amenities of the locality.

27 No external lighting shall be fixed to the development and operated unless full details thereof have first been submitted to and approved by the Local Planning Authority.

In order to ensure an appropriate quality of development.

28 Development shall not begin until a surface water drainage scheme for the site, based on sustainable drainage principles and an assessment of the hydrological and hydrogeological context of the development, has been submitted to and approved in writing by the Local Planning Authority. The scheme shall be subsequently implemented in accordance with the approved details before the development is completed. The scheme must include the following:

(i) Details of how the 30% reduction in the existing peak surface water run- off rate will be achieved. This applies up to and including the 1 in 100 (plus climate change) rainfall event, (ii) Details of how the scheme shall be maintained and managed after completion.

To prevent the increased risk of flooding and ensure future maintenance of the surface water drainage system.

29 Unless otherwise agreed in writing by the Local Planning Authority no building or other obstruction shall be located over or within 3.5 metres either side of the centre line of any sewer that srosses the site.

In order to allow sufficient access for maintenance and repair work at all times.

30 The site shall be developed with separate systems of drainage for foul and surface water on the site and up to its boundary.

In the interests of satisfactory and sustainable drainage.

31 Unless otherwise approved in writing by the Local Planning Authority, there shall be no piped discharge of surface water from the development prior to the completion of the approved surface water drainage works and no

83 buildings shall be occupied or brought into use prior to the completion of the approved foul drainage works.

To ensure that no foul or surface water discharges take place until proper provision has been made for their disposal.

32 Surface water from vehicle parking and hardstanding areas shall be passed through an interceptor of adequate capacity prior to discharge to the public sewer. Roof drainage should not be passed through any interceptor.

In the interests of satisfactory drainage.

33 The development must be carried out in complete accordance with the following approved documents, Documents:

Leslie Jones Architects Drawing No’s:

3359/AL(04)1000 Rev PO2 1001Rev P01 1002 Rev P01 Unnumbered A3 Earl St Elevation at 1:100 1010 Rev P04 1012 Rev P02 1013 Rev P02 3359/AL(06)1050 Rev P02 1051 Rev P02 3359/AL(05) 1030 Rev P02 1031 Rev P02 3359/AA(20)2000 Rev P01 2001 Rev P01 2001 Rev P01 2004 Rev P01

NJL Consulting Sustainability Statement, August 2009, Ref NJL/AC/2007/- 014

unless otherwise authorised in writing by the Local Planning Authority.

In order to define the permission.

Attention is drawn to the following justifications:

CS17 - City Centre Quarters CS18 - Shopping in the City Centre CS74 - Design Principles

84 CS64 - Climate Change, Resources and Sustainable Design of Developments CS65 - Renewable Energy and Carbon Reduction CS67 - Flood Risk Management S1 - The City Centre and the Location of Major Shop Developments S3 - Development in the Central Shopping Core S10 - Conditions on Development in Shopping Areas S11 - Design of Retail Development BE5 - Building Design and Siting BE7 - Design of Buildings Used by the Public BE8 - Access to Workplaces BE12 - Public Art BE22 - Archaeological Sites and Monuments GE25 - Contaminated Land

and to all relevant material considerations, including Supplementary Planning Guidance.

Attention is drawn to the following directives:

1. As the proposed development will involve the closing/diversion of a highway(s) you are advised to contact the Principal Engineer of Highway Information and Orders, Development Services, Howden House, 1 Union Street, Sheffield, S1 2SH, as soon as possible.

3. You are required, as part of this development, to carry out works within the public highway. You must not start any of this work until you have received a signed consent under the Highways Act 1980. An administration/inspection fee will be payable and a Bond required as part of the consent.

You should apply for a consent to: -

Highways Adoption Group Development Services Sheffield City Council Howden House, 1 Union Street

85 Sheffield S1 2SH

For the attention of Mr S Turner Tel: (0114) 27 34383

4. The Council is responsible for allocating house numbers and road names to both new developments and conversions of existing buildings. Developers must therefore contact the Council’s Street Naming and Numbering Officer on (0114) 2736127 to obtain official addresses for their properties as soon as construction works commence.

5. Before the development is commenced, a dilapidation survey of the highways adjoining the site shall be jointly undertaken with the Council and the results of which agreed in writing with the Local Planning Authority. Any deterioration in the condition of the highway attributable to the construction works shall be rectified in accordance with a scheme of work to be agreed with the Local Planning Authority.

86 Site Location

LOCATION AND PROPOSAL

The buildings on the lower part of The Moor through to Eyre Street have already been demolished to allow the previously approved market development to be built.

Meanwhile, in view of the changed economic climate, this revised proposal has been made omitting both the student accommodation above and the lower ground floor commercial unit, allowing not only the design but also the sustainability of the building to be improved.

The proposal will provide a new market for Sheffield to replace the existing Castle Market, assisting the regeneration of the Castlegate area of the city and consolidating city centre shopping within a more compact area. In this sense it will complement the New Retail Quarter (Sevenstone) between Pinstone Street, Barker’s Pool and Charter Square.

There is a fall of 3.6m across the site from north to south.

The proposed building is two main parts. Firstly, the market hall will be at the rear of the site with its floor level at 67.5m AOD, 2.2m above Eyre Street at the rear and 1.4m below entrance level from The Moor. A glazed entrance hall will lead from The Moor falling at the same gradient as Earl Street, over which it will extend by 2.5m, providing pedestrian entrance doors on one side to Earl Street and a row of stalls on the other. The market will provisionally accommodate about 200 stalls, with meat and fish stalls at one corner and café stalls at the other next to Eyre Street.

The market hall will have a second pedestrian entrance to Eyre Street via steps and a lift close to the bus stops, and a third with steps to Earl Street close to the multi-storey car park already built. Highway improvements will provide access for wheelchair users from the car park.

The second part will be a row of two storey deep plan modern shop units to The Moor, with full height glazed fronts. Two alternative shopfront designs are proposed.

As in the previous scheme, a service yard with access from Cumberland Street will be shared by the market and shops. A two storey building at the corner of Eyre Street and Cumberland Street will accommodate plant, toilets and other facilities as well as the administrative offices for the Council’s Markets staff.

There will be no accommodation this time for a mobility scooter hire facility. This follows from the omission of the lower ground floor on cost grounds. There will no longer be an upper floor link bridge across Earl Street to the multi-storey car park.

The repaving of The Moor next to the site, on which work has already commenced, including a demountable 3 day a week outdoor market, is not the subject of this application.

HISTORY

Application No 06/04145/FUL: Planning permission was granted on 30 January 2007 for 8,388 square metres of retail space (Use Class A1), 2,731 square metres of leisure space (Use Class D2), an indoor market with ancillary facilities, a link bridge and student accommodation comprising approximately 1100 student bed spaces.

Application No 06/04147/FUL: Permission was also granted on 30 January 2007 for a multi-storey car park. This is complete and in use.

PRE-APPLICATION DISCUSSION

Discussions with the applicants began in autumn 2008, proceeding from initial concept through to the present submission.

Issues covered include: Internal character of the market hall, including Thermal Modelling to create sustainable climate control of the interior; Front elevation of the

88 shops to The Moor; Character of the buildings to the corner of Cumberland Street and on Eyre Street; Active frontage to Eyre Street and Earl Street; Public art; Floor levels and inclusive access; Interface with the public realm; Servicing and highways issues; Archaeology.

Urban Design Panel 7.5.09: (1) Welcome proposals for an identifiable, iconic market building that would a destination in its own right, contributing to regeneration. Main design decisions, especially the roof, are convincing, but more detailed design work needed to elevations to The Moor and Eyre Street; (2) Support ambition for a low energy building with natural ventilation, underfloor heating and possible link to District Heating network; (3) Relationship to public realm is critical to success of the scheme, including positioning and layout of temporary outdoor market stalls, and detail of public realm design; (4) Proposed Moor elevation not appropriate to the strong context prevailing in the street. More positive expression of the structure in the façade is imperative, and in the materials chosen. Height of building satisfactory, but unconvinced about timber elements. Suggest a shop front design code to ensure coherence of different units; (5) Eyre Street elevation should be improved by greater transparency, especially the café area, to give animation. Steel frame could be expressed more, with timber weave sitting within it. Simplify diamond patterned brickwork; (6) Support internal diagonal route, but disappointed that more not made of café stalls overlooking Eyre Street. Scope for improvement in design of stalls; (7) Supportive of proposed roof structure, as it would give drama and interest, and confident that modelling could resolve design issues. Support EFTE panelling at high level over the flat areas, but less appropriate closer to ground level where glazing more appropriate.

The following have required further work during the consideration of the application:

Inclusive access; Sustainability; Shop Frontage Policy; Archaeology; Public art; Public realm improvements.

PUBLIC CONSULTATION

Exhibitions were held on 4-6 June 2009 at the Bandstand on The Moor and on 8- 10 June at the Castle Market.

684 people attended at The Moor, and 480 people at the Castle Market.

Of those, 6.1% were black or from ethnic minorities at The Moor, and 5.6% at Castle Market. 1.5% were wheelchair users at The Moor, and 3.7% at Castle Market.

127 Questionnaires were returned at The Moor; 54 at Castle Market.

At The Moor, 90% strongly agreed or agreed with the Market Hall layout; at Castle Market 79.6%.

At The Moor, 89% strongly agreed or agreed with the proposed design; at Castle Market 83.3%.

At The Moor, 92.3% strongly agreed or agreed with the proposed public transport arrangements; at Castle Market 70.4%.

At The Moor, 47% wanted to call it “Sheffield Market”; at Castle Market 54%.

There is strong support in the city for the proposal. There is a strong preference for meat and fish stalls and fruit and vegetable stalls in the new market, as well as cafes whether grouped or not, amongst a wide range of stalls selling other household and personal goods.

REPRESENTATIONS

3 Objections received from Sheffield residents in S2 and S10: (1) Shops too low- rise for location, more like a retail estate, (2) Eyre Street frontage a poor, bland design, more like existing warehouses nearby, (3) Design lacks innovation and distinctiveness, and contrary to Urban Design Compendium, (4) Stronger architectural statement required, (5) Good design sacrificed to financial expediency, (6) Sub-standard design will blight city centre for next 25 years , (7) Grants/Subsidies required from ERDF or Objective One to improve design, (8) At odds with proposed high density office quarter at Moorfoot, (9) Could raise roof level to provide indoor garden, (10) Prudent to wait until the property market improved to improve design quality and materials, (11) Market section looks interesting architecturally, (12) City desperately needs replacement for Castle Market, (13) Proposed location is out-of centre. Would be better at top of The Moor with leisure or retail on upper floors due to higher rent yields, (14) Will elongate city’s shopping centre contrary to Master Plan, (15) Poor pedestrian connectivity with rest of the city centre to north, (16) Local people with no car will have to walk over 1km to or from train and bus stations.

1 Letter of critical support from resident of Worrall: (17) Much better proposal, no longer a mixed use overdevelopment, but two buildings with clear presence and identity, human in scale and sympathetic to architectural spirit of The Moor, (18) But large dead frontage to Cumberland Street must be activated, perhaps by a bar or restaurant with views to future open space across Cumberland Street. Replace dead panels proposed with glazing and solar shading as necessary, (19) Eyre St/Cumberland St corner is weak and should be strengthened by a clock or visual display tower and by more showy and spectacular elevations, (20) Alternatively, the Eyre Street Market entrance needs a landmark feature above roof level, (21) North elevation lacks refined detail, and should include restrained decoration that is integral rather than attached, (22) Proposed frieze is excellent, but should be more than decorative, requiring an artist’s commission to explore, market’s origins, city’s history, modern trades and successes, in a contemporary version of the Town Hall frieze, (23) Reconstituted stone disappointing, (24) 8 shops in a Council sponsored building should have a green roof.

1 Objection received from Green Party: (25) Welcome the omission of student flats above the market, (26) Welcome the renewable energy proposed, (27) Welcome the continuation of the existing street market, (28) Oppose the location of the Market, 1km from train and bus stations, and remote from north Sheffield, (29)

90 Unclear how will relate to proposed Sevenstone and Moorfoot shopping developments, (30) Low-rise design may be at odds with other high rise proposals nearby, (31) Would prefer affordable 2 bedroom flats at upper levels, (32) Suspect the proposal is based on minimum cost for RREEF, (33) Oppose bland design of retail units, (34) New application needed with full low carbon use of energy, higher architectural merit with affordable residential accommodation.

ASSESSMENT

Land Use

Policy CS17 aims to strengthen The Moor as a linear retail area anchored by several major stores and the proposed new indoor market. The Moor generally has considerable potential for mixed office and residential uses.

Policy CS18 in the Core Strategy seeks to concentrate major non-food retail development in the Primary Shopping Area, extending from Moorhead to the north end of Fargate. In addition it requires retail uses on the ground floor frontages of The Moor north of Fitzwilliam Gate. It also envisages alternative roles for areas such as Castlegate outside the Primary Shopping Area.

The provision of a limited amount of second floor retailing in this proposal is not considered to conflict materially with Policy CS18. The relocation of the market from Castlegate is considered to be consistent with Policies CS17 and CS18.

Policy S1 in the Unitary Development Plan promotes major retail development in the City Centre to encourage its regeneration to help develop and consolidate its role as the principal commercial centre of South Yorkshire.

The site lies within the Central Shopping Area in the Unitary Development Plan.

Policy S3 lists Shops and Food and Drink as preferred uses. Policy S10 requires development to be well designed and of a scale and nature appropriate to the site; it should comply with policies for built and green environment; and be adequately served by transport, provide safe access to the highway network, appropriate off- street parking and not endanger pedestrians.

The Government’s Planning Policy Statement 6: Planning for Town Centres is also in force in addition to the UDP. It aims to strengthen shopping and other uses in central areas.

The proposal complies with land use policy. The dominance of Shops in the proposed shop units is required by condition, whilst allowing a good proportion of Financial and Professional Service, Cafes, Restaurants and Hot Food Takeaways if the market would enable it.

Design

Policy CS74 expects high quality design taking advantage of distinctive features of topography, and of the city centre townscape with its scale, built form, layout,

91 building styles and materials. Development should contribute to place-making, promoting the city’s transformation and improving areas that have become run down and lacking in distinctiveness.

Policy BE5 expects original architecture, good quality materials, and a co-ordinated approach to overall design where there is more than one building. The overall mass of buildings should be broken down, and special architectural treatment should be given to corner sites.

The proposed buildings meet all the above requirements. The market hall design is unique and could only be realised in this way on this site. The entrance hall from The Moor has a distinctive curved glazed roof with timber panels, leading to a diagonal route through the main market hall emphasised by the bespoke design of the timber roof, timber supports and glazed panels in a special material (EFTE) that will avoid overheating of the interior.

The market hall will have an adiabatic cooling system dispersing air cooled at lower level, whilst heating on cold days will be provided by pipework in the concrete floor. Recycled rainwater will provide the means of cooling, and high efficiency gas boilers will supply the heating.

The side doors from Earl Street to the entrance hall may be held open in warm weather, helping pedestrian flow into the building. The Eyre Street entrance adjoins the café stalls and tables close to a glazed area screened by brise soliel, providing a lively frontage close to the main bus stops.

The elevations to the market hall have improved considerably in discussion, addressing most of the points raised by the Urban Design Panel. The entrance designs and proportions of the plinths, brickwork and timber weave panels at high level are all satisfactory.

The only area requiring further design work is the curved corner to the market hall to Eyre Street and its junction with the eaves above and adjoining office wall. This is conditioned.

Likewise the presence of the shop units to The Moor was improved considerably before submission, with stronger vertical emphasis to the columns between the units, and the provision of a frieze above the eaves line. Reconstituted stone to match the existing facades to The Moor is the main element here, successfully framing the glazing and frieze.

Two alternative shopfront designs are submitted, both of which are considered acceptable. The provision of one or the other in its entirety is required by condition.

Further detailed work is required on the brickwork, stone and slate panels, rainscreen, curtain walling, glass and timber roofs an supporting plinths, opaque glass panels, galvanised channel section columns and cross beams, timber brise soleil, and powder coated ventilation cowls. All these are conditioned.

92 Modelling details of the facades are required by condition, as are large scale details of shop canopies, column claddings, high level frieze, external lighting, service yard entrance gates, railings to steps, and door designs to Earl Street.

Overall the design is to be commended and meets policy requirements.

Inclusive Access

Policy S11 requires provision of access for people with disabilities, safe and easy pedestrian movements at ground level, and adequate car and cycling provision.

Policy BE7 requires safe, equal and easy access for people with disabilities to buildings used by the public. Policy BE8 promotes suitable access to workplaces where there are 20 or more employees especially reception and toilet facilities.

The revised drawings confirm that platform lifts large enough for scooters will be fitted at the Eyre Street and Earl Street entrances. The Eyre Street footway will be raised to reduce the height to 2 metres maximum. This can be accommodated in the highway. The height reduction allows 12 steps of 166.67mm risers with 350mm goings. This is acceptable.

A raised plateau in the Earl Street carriageway will link the footways allowing access from the multi-storey car park to the Earl Street entrance. Detail design will be done as part of the external works in the public realm.

The front doors to The Moor have been changed to Spacesaver doors set back behind the back edge of the footway. The unacceptable automatic swing doors previously proposed have been deleted, as they opened over the highway and are difficult for some disabled users.

The ramped entrance parallel to Earl Street presents design difficulties because of physical limitations. The side doors to Earl Street will require an internal levels change but this has been reduced to one diminishing step with level access at one end to the ramp. The possible width of the doors, at present uncertain, will be governed by the amount of twisting that the Earl Street footway can accommodate. Details of this design are reserved by condition to allow co-ordination with external works design which is in progress.

The column bases to the Earl Street roof supports have been designed so as to eliminate footway areas of inadequate headroom. Details are required by condition.

The provision of a Changing Places toilet within the market hall is being examined.

The proposal is much improved and provides a good level of inclusive access considering the levels difficulties, and complies with policy.

Public Art

93 Policy BE12 encourages public art as an integral part of the design of major developments.

Possible locations for public art on the building include the high level frieze above the shop units, and the glazed entrances to the Market Hall front and rear. This is still under discussion, but it is intended that an artist will be commissioned to provide public art before completion.

This will comply with public art policy.

Climate Change - Sustainable Design

Core Strategy Policy CS64 requires all new buildings to be designed to reduce greenhouse gas emissions and use resources sustainably.

The proposal has various measures to achieve this including: (i)Extensive natural daylight and low energy artificial lighting, (ii) Intelligent energy control features, (iii) High performance glazing, (iv) Enhanced U-Values, (v) Mixed mode ventilation including natural ventilation, (vi) Use of “free” cooling from recycled rainwater feeding into an adiabatic cooling system to the market hall, (vii) High efficiency gas boilers to supply underfloor heating to the market hall, (viii) Roof mounted solar panels to supply domestic hot water for public and non-public toilet areas.

The BREEAM Pre-Assessment Estimator shows that the building has a “Very Good” rating, meeting the Policy CS64, subject to validation after the building has been completed which is confirmed by condition.

Climate Change - Renewable Energy and Carbon Reduction

Policy CS65 requires (a) all new development to provide a minimum of 10% of their predicted energy needs from decentralised and renewable or low carbon energy; and (b) generate further renewable or low carbon energy, or be designed to reduce overall predicted carbon emissions by 20%; all the above subject to viability not being affected.

The scheme does not propose wind generation as the buildings are too low to provide sufficient wind in this location. Solar photovoltaic panels are not considered to be financially viable as they cannot provide power requirements at reasonable cost. The building being low energy in design does not provide a good enough summer heat load for decentralised combined heat and power. Connection to the district heating scheme from the Bernard Road incinerator is not financially viable owing to high connection costs relative to the low energy demand of the building.

The solar water heating panels proposed are viable and a suitable form of renewable energy for this building.

However the whole development, both market hall and shops, is still predicted to reduce its carbon emissions by 28% because of its low energy sustainable design and will comply with Policy CS65.

Climate Change - Summary

Although renewable energy produced on site is less than 10%, the overall performance of this sustainable building is good and is considered acceptable. The provision and retention of the measures proposed, or alternative measures acceptable to the Council, is required by condition.

Refuse and Recycling

Both the market hall and the shops will have recycling and compacting facilities located in the service yard, to enable good use of the space available. Details of the operation of the yard in a Method Statement are required by condition.

Archaeology

Policy BE22 requires an adequate archaeological record to be made where development creates unavoidable disturbance to an archaeological site.

Much of the site has basements that will have already interfered with any below- ground remains. In other areas there is relatively undisturbed ground close to the surface, although the likelihood of significant remains is considered to be low.

Site clearance work has already commenced. In undisturbed areas this should have been done in accordance with the scheme of archaeological work already undertaken in connection with the previously approved market development. An updated report of this work is still awaited, but the applicant has confirmed that site clearance work will cease by the end of October and no further excavation will take place in the sensitive area at the rear of the former shop buildings.

Flood Risk

Policy CS67 requires all development to reduce the extent and impact of flooding as appropriate to the site, and to limit surface water run-off.

The site lies on higher land above the flood plain of the Porter Brook, classed as Flood Zone 1, and the proposal therefore satisfies the Sequential Test under Planning Policy Statement 25.

The 1 in 1000 year water level at the nearest point on the Porter Brook is 64.77m AOD, including allowances for climate change. The lowest land level adjoining the site on Eyre Street is above this level at 65.32m. The main floor levels are at 67.5m, and the service yard is at 67.08m. This is considered satisfactory.

The site is over 1 hectare in area. As required by PPS25 the submitted Flood Risk Assessment proposes a reduction in surface water run-off of 30% to meet Council and Environment Agency requirements. This will be achieved by a cellular storage system on site, and this requirement is confirmed by condition.

Land Contamination

Policy GE25 requires any contaminated land to be effectively treated prior to development.

Phase 1 and Phase 2 ground investigation reports were submitted with the previous application, giving results of trial boreholes drilled on site. As the site was almost completely built over, and will be totally covered when the development is complete, the report is considered satisfactory.

Highways

Traffic flows will be lower than the previously approved scheme, as it is a smaller development, and are considered unlikely to create difficulties.

The service yard has been analysed and is expected to operate satisfactorily. All service vehicles, including large articulated heavy goods vehicles, can enter and leave the site in forward gear. The management of the yard is conditioned.

A formal turning head at Earl Street/Earl Way is provided to allow the occasional HGV to turn should the need arise. This requirement is covered by condition, as is the detailed design in progress.

A number of small areas of public highway will need to be closed along The Moor frontage, mainly column bases, and along Earl Street, Cumberland Way and Cumberland Street. Likewise several small areas of private land will become public highway on Cumberland Street, Eyre Street, and Earl Street. This will be dealt with under the Highways Act.

To mitigate then loss of the former cycle route along Cumberland Way (now closed) a contra-flow cycle lane is to be provided on Cumberland Street across The Moor. Additional demand for taxis is to be catered for by means of a new taxi- rank on Cumberland Street and a feeder rank on South Lane. These features are required by the condition covering Highway Improvement Works under Section 278.

There is no longer a requirement for Car Club parking spaces in the absence of residential accommodation in the scheme.

The drawings lack a satisfactory 2 x 2m visibility splay for pedestrian safety at the entrance to the service yard. This is conditioned.

Staff cycle parking and a Travel Plan are also conditioned.

As recommended the proposal meets Highways requirements.

Public Realm Improvements

These are not proposed as part of the application, being mostly outside the boundary of the site. Using external funding the Council is carrying out some of this work to The Moor and Earl Street to Urban Design Compendium standards

96 (primary palette). This is separate although co-ordinated with the market development. The other highways improvements to secondary palette standards are still a planning requirement however funded. This is under discussion.

There will be an outdoor street market 3 days per week on The Moor next to the development, with demountable stalls removed when not in operation.

All highway works are to be completed before the development is commenced.

RESPONSE TO REPRESENTATIONS

Objections (1)-(4), (11)-(15), (17)-(19), (21), (22), (25)-(27), (29), (33), (34): Answered in Report.

Objections (5)-(8) Noted; (9) Noted, but not a planning requirement; (10) Market cannot wait any longer; (11) Eyre Street and The Moor are well served by bus services; Castle Market is same distance from train station as this site; (20) Noted, but could not be insisted on; (23) Noted, but reconstituted Portland stone is considered a good substitute; (24) Noted, but could not be insisted on as building otherwise very sustainable; (28) Not considered remote, as buses serve the site. Closer to south Sheffield; on balance little disadvantage; (30) Building is higher rise than previous buildings on the site, especially on Eyre Street. Other high rise proposals not yet built, townscape here still evolving; (31) Housing has been proved to be unviable on this site, creating too complex a project to realise the new market; (32) Noted.

CONCLUSION

The design of the development is considered to be most satisfactory and worthy of support.

The proposal will give Sheffield a market hall to be proud of, all on one level in a purpose designed building. Together with the new shops it can be expected to bring much-needed new life to The Moor, consolidating city centre shopping in preparation for the Sevenstone development in years to come.

New uses may be found for the Castle Market site, reviving the fortunes of the whole Castlegate area and resolving one of the most intractable problems of city centre regeneration.

RECOMMENDATION

Grant subject to the recommended conditions.

Case Number 09/02571/CHU

Application Type Planning Application for Change of Use

Proposal Use of site as hand car wash (Renewal of temporary permission - 07/01979/CHU)

Location Express Hand Car Wash 270 Handsworth Road Sheffield S13 9BX

Date Received 12/08/2009

Team CITY CENTRE AND EAST

Applicant/Agent Express Hand Car Wash

Recommendation Grant Conditionally

Subject to:

1 The development hereby approved shall be used for the above-mentioned purpose only between the hours of 09.00 and 18.00 hours Monday to Saturday and between 10.00 and 16.00 on Sundays and Bank Holidays.

In the interests of the amenities of the locality and occupiers of adjoining property.

2 Within two months of the date of this permission, written confirmation of the drainage layout and interception of effluent from washing and cleaning operations shall be submitted to and approved in writing by the Local Planning Authority. The details shall illustrate the areas designated for washing and cleaning operations and the development shall be operated in accordance with the approved details and thereafter retained.

To prevent pollution of the water environment.

Attention is drawn to the following justifications:

IB7 - Development in Business Areas

and to all relevant material considerations, including Supplementary Planning Guidance.

Attention is drawn to the following directives:

1. The applicant is advised that a number of the advertisements within the site require advertisement consent and should be removed in the absence of that consent being granted.

2. The applicant is advised that the signage indicated on the submitted drawings is not approved as part of this permission and will require separate Advertisement Consent. To discuss arrangements for obtaining such consent, and to request application forms, the applicant should contact Development Control Section, Development Services, on Sheffield (0114) 2734215 or go to www.sheffield.gov.uk/in-your-area/planning-and-city- development

99 Site Location

LOCATION AND PROPOSAL

The application comprises a former petrol filling station on the east side of Handsworth Road that has been used as a hand car wash since August 2007. The car wash utilises the buildings of the former filling station with cars typically washed beneath the retained canopy. Signage is positioned around the canopy with four flagpoles flying the Union Jack on the boundary of the site with Handsworth Road.

The application site is located within a mixed-use area; to the north it is adjoined by commercial retail/showroom units and to the south by residential properties and most immediately, by the dwelling at 278 Handsworth Road, which is separated from the application site by a band of trees and an advertisement hoarding. To the west, the site adjoins an area of unkempt land, beyond which lies the boundary to the rear gardens of residential properties on Parsley Hay Gardens at a distance of approximately 36 metres.

100 This application seeks the continued permanent use of the site as a hand car wash. In terms of the ‘Use Class’ of a hand car wash in accordance with the Town and Country Planning (Use Classes) Order 1987 (as amended), planning case law suggests that hand car wash services are not ancillary to another use such as a filling station and are akin to car valeting, but limited in scope to external washing. The thrust of appeal decisions on the subject is that a valeting use should be classified as light industry (B1) provided that no noisy machinery or tools are employed; inclusion of the latter would bring the use within the B2 general industrial class. Only if the use does not fit comfortably within that Class could it be considered sui-generis. In this case, the only machinery at this site is a pump, which is not considered to warrant designation of the site as a general industrial use but it possibly exceeds the definition of a Use Class B1 industrial use that can be undertaken in any residential area without detriment to the amenity of that area. On this basis, it is considered that the hand car wash at this site falls neither within B1 or B2 and is therefore a sui-generic use, which means that it falls outside of any specified use class.

The site utilises the access arrangements previously in place for the filling station with two access points onto Handsworth Road. The operation was given temporary planning approval for a period of two years in August 2007 to allow the Council to monitor the business in terms of any potential impact on adjoining residential properties. The hand car wash operates between the hours of 0900- 1800 Mondays to Saturdays and 1000-1600 on Sundays and Bank Holidays and presently employs up to 10 people at peak times.

It is also relevant to note that a ‘caravan’ has been placed on site and the applicant has acknowledged that he intended to introduce a small café facility as part of the car wash. He has subsequently been advised by Officers that this element of the site would require separate planning permission and it will therefore be the subject of further discussion and a separate application in due course should the applicant wish to pursue it.

RELEVANT PLANNING HISTORY

The most relevant planning history is the previous temporary approval:

07/01979/CHU: Use of the site as a hand car wash (retrospective) Approved: 16th August 2007 for a temporary period of two years.

SUMMARY OF REPRESENTATIONS

The application was advertised by means of neighbour notification. No letters of representation have been received from adjoining occupiers. However, one letter has been received from the Handsworth Community Forum who have written to object to the application on the following grounds: i. The appearance of the street is diminished due to the flags and multi-coloured design of the banners and signage; ii. Handsworth Road already has one unsightly car wash business but this particular proposal is a blight on the physical landscape;

101 iii. The pollution created from this car wash if of concern with the use of chemicals to spray off dirt/grime potentially polluting the local sewer; iv. Members of the public are often sprayed with jets of water and the Forum has received a number of complaints; v. The footpath running parallel to this site is often impassable for pedestrians due to spray being produced; vi. There is often water running onto the highway as the car wash attendants rinse the vehicles too close to the exit/entrance. This is a danger that has been reported to the Council’s Highways Department; vii. At busy periods, cars frequently queue up by the entrance creating a backlog of traffic on Handsworth Road.

Following receipt of this representation, Handsworth Community Forum were contacted in writing to confirm that they were referring to this application at 270 Handsworth Road on the grounds that the case officer was not aware of any complaints to the Council in respect of water running onto the highway and have received no complaints from nearby residents. It was considered that Handsworth Community Forum might be referring to 386 Handsworth Road, where planning approval for use of the restaurant car park as a hand car wash was approved for a further two-year period by Planning Board on 21st September 2009. In the report of this application to Board, it is noted that two objections were received as well as an objection by Councillor Mick Rooney on the grounds of spray from the car cleaning reaching the pavement, car wash operations outside of the approved hours of use and that the use was a regular source of complaint by local residents. Handsworth Community Forum has not confirmed which site they are referring to and their objection must therefore be considered as part of this application.

PLANNING ASSESSMENT

This application proposes the continued permanent use of the site as a hand car wash, following the granting of temporary planning permission for a two-year period in August 2007. The principle issues to consider in the determination of this application include the following:

(i) Principle of development: Policy and Land Use; (ii) Traffic considerations; (iii) Amenity issues.

The Council is also required to consider responses received as a result of the consultation exercise.

Policy and Land Use

The application site falls within a Business Area as defined in the Adopted Unitary Development Plan. Within a Business Area, Policy IB7 of the UDP advises that business uses (Use Class B1) are preferred but a range of other uses are also considered acceptable including petrol filling stations on strategic roads; the previous use of the site. The principle of a B1 use is that it can be undertaken in a residential area without detriment to the amenity of that area.

102 As a sui-generic use, the proposed hand car wash cannot be identified as a preferred or acceptable use within a Business Area and must therefore be assessed on its merits. However, it is considered reasonable to draw some similarity between the former use of the site as a petrol filling station with car wash facilities and a hand car wash in terms of the relatively constant flow of traffic and the commercial nature of the use; in this regard, it is considered that a hand-car wash is not dissimilar to a petrol filling station in terms of its impact and a petrol filling station would be acceptable in this location and is in fact, the former use. The principle of a hand car wash in this business location is therefore considered acceptable but it is acknowledged that such a use does raise specific issues in respect of the impact on the amenity of surrounding properties and users of Handsworth Road, which are assessed in the report below.

Traffic considerations

The site was formerly a petrol filling station and it is understood that there were car wash facilities within the site. As such, it is considered unlikely that a hand car wash would generate significantly greater levels of traffic than the former garage and it can utilise the same access and egress routes as the previous use. The Council’s Highways Officer has raised no objection to the proposal and is not aware of any complaints being submitted to the Council in respect of this particular site within the past two years. The continued use of the site as a hand car wash is therefore acceptable with regard to highway impact.

Amenity issues

When considering the original recommendation for temporary approval of a hand car wash at this site, the impact on the amenity of residents that live in relatively close proximity to the site was a key issue. Indeed, in response to that original application (07/01979/CHU) three letters of objection were received, one from a business close to the site on Handsworth Road and two from residents of Parsley Hay Gardens. At that time, the residents were concerned about the noise and in particular, the noise generated by the pump, which is a constant humming sound. Indeed, at that time, the Council’s Environmental Protection Service (EPS) also had a concern that the car wash could cause some disamenity to neighbours due to the outside working and operation of noisy equipment. In seeking to address the concerns raised by residents in 2007, the applicant did seek to mitigate the potential noise issues arising from the pump by adjusting the machine such that the noise was tempered. The applicant also advised that he reminded his employees to keep any noise to a minimum.

The 2007 temporary permission was granted retrospectively and prior to granting, EPS confirmed that they had not received any complaints of noise disturbance. Equally, within the past two years, EPS have again not received any complaints about the operation of this site and no objections from adjoining residents have been received.

The application seeks to open only within daytime business hours during the week and on Saturdays and only between 1000 and 1600 on Sundays and Bank Holidays. On the basis that the site lies within a designated business area, these

103 hours of operation are consistent with its commercial location. Moreover, Handsworth Road is a busy thoroughfare such that road traffic noise is likely to remain the dominant noise source. It is also relevant to note that the façade of the nearest residential property on Parsley Hay Gardens is approximately 40 metres from the application site and the nearest adjoining residential property at 278 Handsworth Road is screened by trees and an advertisement hoarding. On this basis, it is considered that the site can continue to operate as a hand car wash without undue detriment to the amenity of adjoining residential occupiers subject to conditions to limit the hours of use. Furthermore, in light of its existing operation without any complaints being received by the Council’s Environmental Protection Service since the operation commenced, it is also considered that it is unnecessary to recommend a further temporary permission but to allow its permanent use.

RESPONSE TO REPRESENTATIONS

In response to the comments raised by the Handsworth Community Forum it is advised as follows: i. With regard to the flags and multi-coloured design of the banners and signage, there are four flag poles flying the Union Jack and a non-illuminated banner attached to the existing canopy. There does not appear to be any multi-coloured banners. A single flagpole flying the Union Jack does not require advertisement consent although multiple flagpoles may require consent and the advertisements within the site are the subject of further discussion with the applicant who will seek to regularise the advertisement situation pending the outcome of this application. ii. It is the case that there is a second hand car wash at 386 Handsworth Road within the car park of the Koh-I-Noor restaurant, which is a distance of approximately 0.3 miles to the north. However, this application utilises the site of a former petrol filling station, which would be unsightly if left vacant and it does result in its practical re-use, as well as the employment of up to 10 people. iii. In terms of pollution and ground water control, the applicant has verbally confirmed that interceptors have been installed to filter the dirt and grime to ensure there is no pollution of the local water system, which are likely to have been in place in any event, given the site’s former use as a petrol filling station. It is relevant to note that as part of the 2007 consent, written confirmation of the drainage layout and interception of effluent from washing and cleaning operations was sought. There is no evidence to indicate that these details were submitted; accordingly, as this application is now being considered for permanent approval, it is deemed appropriate to seek confirmation at this stage by means of a planning condition. iv. In terms of members of the public being sprayed with jets of water, the Council has not received any complaints in this regard. v. Similarly, in response to concerns raised about water on the footway, the Council has not received any direct complaints and the applicant has also advised that, in any event, he requests his staff to have regard to pedestrians on the footpath and stop spraying if necessary.

104 vi. In terms of water running on to the highway, the Council’s Highways Department have not received any specific complaints about this site; vii. In response to concerns about cars queuing up by the entrance creating a backlog of traffic, Highways Department are not aware of any specific concerns relating to this site, which utilises a former petrol filling station that formerly accommodated a relatively high flow of traffic without detriment to the adjoining highway.

SUMMARY AND RECOMMENDATION

This application proposes the permanent use of the former petrol filling station at 270 Handsworth Road as a hand car wash following the granting of a temporary two-year approval in August 2007.

The application site is designated for Business Use within the Sheffield Adopted Unitary Development Plan where Policy IB7 advises that business uses (Use Class B1) are preferred although a range of other uses, including petrol filling stations on strategic roads, which was the previous use of the site, are also considered acceptable. A hand car wash is determined to be a sui-generic use such that it falls outside of a specific Use Class, as defined by the Town and Country Planning (Use Classes) Order 1987 (as amended) and the application must therefore be considered on its merits. In this regard, it is relevant to note some similarity between the former use of the site as a petrol filling station and a hand car wash in terms of the relatively constant flow of traffic and the fact that car wash facilities were also included within the former use.

Furthermore, with regard to highway and traffic issues, the hand car wash utilises the access arrangements of the former filing station and it is considered unlikely that a hand car wash would generate significantly greater levels of traffic than the former garage. The Council are not aware of any specific complaints arising from the use of this site as a hand car wash in terms of either water spilling onto the highway or traffic queues and there are therefore no highway objections.

Finally, with regard to the impact on the amenity of nearby residential occupiers, no objections have been received from surrounding residents and the Council’s Environmental Protection Service have not received any complaints within the past two years of operation. It is recommended that a planning condition be imposed in respect of hours of operation to restrict the use to a daytime business, which is consistent with the site’s location within a business area. This is more restrictive than the previous operation of the site as a petrol filling station. On this basis, it is considered that the proposed hand car wash can continue to operate without undue detriment to the amenity of nearby residential occupiers.

The application is therefore recommended for approval subject to conditions.

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Case Number 09/02534/FUL

Application Type A Full Planning Application

Proposal Erection of a two-storey teaching building, two-storey extension to and refurbishment of existing building and erection of a two-storey dwellinghouse for use by caretaker

Location All Saints Roman Catholic School Granville Road Sheffield S2 2RJ

Date Received 10/08/2009

Team SOUTH

Applicant/Agent HLM Architects

Recommendation Grant Conditionally

Subject to:

1 The development shall be begun not later than the expiration of three years from the date of this decision.

In order to comply with the requirements of the Town and Country Planning Act.

2 The development must be carried out in complete accordance with the following approved documents:

AS_A(PA)001 A Site Location Plan AS_A(PA)002 A Existing Site Plans and Site Levels AS_A(PA)003 A Existing Ground Floor Plan AS_A(PA)004 A Existing First Floor Plan AS_A(PA)005 A Existing Second and Third Floor Plan AS_A(PA)006 A Existing Elevations Sheet 1 AS_A(PA)007 A Existing Elevations Sheet 2 AS_A(PA)11 A Proposed Ground Floor Plan AS_A(PA)12 A Proposed First Floor Plan AS_A(PA)13 A Proposed Second Floor Plan AS_A(PA)14 A Proposed Third Floor Plan AS_A(PA)15 A Proposed Roof Plan AS_A(PA)16 A Proposed Elevations Sheet 1 AS_A(PA)17 A Proposed Elevations Sheet 2 AS_A(PA)18 A Proposed Elevations Sheet 3

106 AS_A(PA)19 A Proposed Sections AS_A(PA)20 A Proposed Typical Construction Details AS_A(PA)21 A Section Details at Main Entrance AS_A(PA)22 A External Views AS_A(PA)23 A Proposed External Materials Samples AS_A(PA)30 A Proposed Caretakers House AS_A(PA)31 A Proposed Elevations Caretakers House AS_A(PA)32 A Proposed Sections Caretakers House AS_L(PA)001 A Tree Removal Retention and Protection Plan AS_L(PA)002 A Proposed Site Plan & Landscape Proposals AS_L(PA)003 A Site Plans around Building and Car Park AS_A(PA)100 A Proposed External Building Materials AS-VO-ZZ-E-MOT-DR-68E01-0 External Security AS-VO-ZZ-E-MOT-DR-63E01-1 External Lighting

Unless otherwise authorised in writing by the Local Planning Authority.

In order to define the permission.

3 Details of the proposed phasing of the development shall be submitted to and approved in writing before the development commences. Thereafter, the works shall be carried out in accordance with the approved details.

In order to ensure an appropriate quality of development.

4 Before construction works relating to the new buildings hereby approved are commenced the following samples shall have been submitted to and approved in writing by the Local Planning Authority;

i) brickwork ii) cladding panels iii) glazing iv) proposed roofing materials v) proposed windows vi)doors and entrances vii) balustrades

Thereafter, the development shall be carried out using the approved materials.

In order to ensure an appropriate quality of development.

5 Large scale details, including materials and finishes, at a minimum of 1:20 of the items listed below shall be approved in writing by the Local Planning Authority before the commencement of development:

i) Window reveals ii) Rain water goods

107 Thereafter, the works shall be carried out in accordance with the approved details

In order to ensure an appropriate quality of development.

6 Before any work relating to the hard and/or soft landscaping within the site is commenced, a comprehensive and detailed hard and soft landscape scheme for the site shall have been submitted to and approved by the local Planning Authority. The soft landscaping shall include native species. The landscape works shall be implemented prior to the development being brought into use or within an alternative timescale to be first agreed in writing with the local planning authority Thereafter the landscaped areas shall be retained and they shall be cultivated and maintained for a period of 5 years from the date of implementation and any plant failures within that five year period shall be replaced unless otherwise agreed by the Local Planning Authority.

In the interests of the amenities of the locality.

7 Unless otherwise agreed in writing the proposed sedum roof(s) (vegetated roof system) shall be provided on the roof(s) in the locations shown on the approved plans prior to the use of the buildings commencing. Full details of the sedum roof construction and specification, together with a maintenance schedule shall be submitted to and approved by the Local Planning Authority prior to occupation of the building unless otherwise agreed in writing shall include a substrate based growing medium of 80mm minimum depth incorporating 15-25% compost or other organic material. Herbaceous plants shall be employed and the plants shall be maintained for a period of 5 years from the date of implementation and any failures within that period shall be replaced.

In the interests of biodiversity.

8 The Local Planning Authority shall be notified upon completion of the sedum roof.

In the interests of biodiversity.

9 Before any work on site is commenced, measures to protect the existing trees and shrubs to be retained, in accordance with details which shall be submitted to and approved by the Local Planning Authority These measures shall include a construction methodology statement and plan showing accurate root protection areas and the location and details of protective fencing and signs. Protection of trees shall be in accordance with BS 5837, 2005 (its replacement) and the protected areas shall not be disturbed, compacted or used for any type of storage or fire, nor shall the retained trees, shrubs or hedge be damaged in any way The Local Planning Authority shall be notified in writing when the protection measures are in place and the protection shall not be removed until the completion of the

108 development unless otherwise agreed in writing by the Local Planning Authority.

In the interests of the amenities of the locality.

10 The development shall not be used unless the car parking accommodation as shown on the approved plans has been provided in accordance with those plans and thereafter such car parking accommodation shall be retained for the sole purpose intended.

In the interests of traffic safety and the amenities of the locality.

11 Before the development is commenced, details of the means of ingress and egress for vehicles engaged in the construction of the development shall have been submitted to and approved in writing by the Local Planning Authority. Such details shall include the arrangements for restricting the vehicles to the approved ingress and egress points. Ingress and egress for such vehicles shall be obtained only at the approved points.

In the interests of traffic safety and the amenities of the locality.

12 At all times that demolition and construction works are being carried out equipment shall be provided to the satisfaction of the Local Planning Authority for the effective cleaning of the wheels and bodies of vehicles leaving the site so as to prevent the depositing of mud and waste on the highway but before the development is commenced full details of such equipment shall have been submitted to and approved by the Local Planning Authority. When the above-mentioned equipment has been provided thereafter such equipment shall be used for the sole purpose intended in all instances and be properly maintained.

In the interests of traffic safety and the amenities of the locality.

13 Before the development is used, full details of suitable and sufficient cycle parking accommodation within the site shall have been submitted to and approved in writing by the Local Planning Authority and the development shall not be used unless such cycle parking has been provided in accordance with the approved plans and, thereafter, such cycle parking accommodation shall be retained.

In the interests of traffic safety and the amenities of the locality.

14 Prior to the occupation of any part of the development, detailed Travel Plans, designed to: reduce the need for and impact of motor vehicles, including fleet operations; increase site accessibility; and to facilitate and encourage alternative travel modes, shall have been submitted to and approved in writing by the Local Planning Authority. Detailed Travel Plans shall be developed in accordance with a previously approved Framework Travel Plan for the proposed development, where that exists.

109 The Travel Plans shall include:

a) Clear and unambiguous objectives and modal split targets; b) An implementation programme, with arrangements to review and report back on progress being achieved to the Local Planning Authority in accordance with the 'Monitoring Schedule' for written approval of actions consequently proposed, c) The results and findings of the monitoring shall be independently verified/validated to the satisfaction of the local planning authority. d) The verified/validated results will be used to further define targets and inform actions proposed to achieve the approved objectives and modal split targets.

On occupation, the approved Travel Plans shall thereafter be implemented, subject to any variations approved in writing by the Local Planning Authority.

In the interests of delivering sustainable forms of transport, in accordance with the Transport Policies in the adopted Unitary Development Plan for Sheffield and PPG13.

15 Prior to the development being brought into use details of cycle/vehicular directional signage shall be submitted to and approved in writing by the Local Planning Authority. The signage shall be erected on site prior to the development into use unless otherwise agreed in writing by the Local Planning Authority.

To ensure ease of access and facilities for disabled persons at all times.

16 Prior to occupation of the building full details of proposals for the inclusion of public art within the development shall have been submitted to and approved in writing by the Local Planning Authority. Such details shall then be implemented prior to the occupation of the development unless otherwise authorised in writing by the Local Planning Authority.

In order to satisfy the requirements of Policy BE12 of the Unitary Development Plan and to ensure that the quality of the built environment is enhanced.

17 The design and location of all new external light fittings shall be approved in writing by the Local Planning Authority prior to the building being occupied. Thereafter the development shall be carried out in accordance with the approved details.

In order to ensure an appropriate quality of development.

Attention is drawn to the following justifications:

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BE5 - Building Design and Siting BE6 - Landscape Design BE7 - Design of Buildings Used by the Public H10 - Development in Housing Areas BE9 - Design for Vehicles BE12 - Public Art LR5 - Development in Open Space Areas CF1 - Provision of Community Facilities CS43 Schools CS47 Safeguarding Open Space CS53 Management of Demand for Travel CS74 Design Principles CS65 Renewable Energy and Carbon Reduction CS64 Climate Change, Resources and Sustainable Design of Developments

and to all relevant material considerations, including Supplementary Planning Guidance.

Attention is drawn to the following directives:

1. As the proposed development abuts the public highway you are advised to contact the Highways Co-ordination Group on Sheffield 2736677, prior to commencing works. The Co-ordinator will be able to advise you of any pre- commencement condition surveys, permits, permissions or licences you may require in order to carry out your works.

2. Before the development is commenced, a dilapidation survey of the highways adjoining the site shall be jointly undertaken with the Council and the results of which agreed in writing with the Local Planning Authority. Any deterioration in the condition of the highway attributable to the construction works shall be rectified in accordance with a scheme of work to be agreed with the Local Planning Authority.

3. The applicant is advised that noise and vibration from demolition and construction sites can be controlled by Sheffield City Council under Section 60 of the Control of Pollution Act 1974. As a general rule, where residential occupiers are likely to be affected, it is expected that noisy works of demolition and construction will be carried out during normal working hours, i.e. 0800 to 1800 hours Monday to Friday, and 0800 to 1300 hours on Saturdays with no working on Sundays or Public Holidays. Further advice, including a copy of the Council's Code of Practice for Minimising Nuisance from Construction and Demolition Sites is available from the Environmental Protection Service, 2-10 Carbrook Hall Road, Sheffield, S9 2DB: Tel - 0114 2734651.

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4. Green / brown roof specifications must include drainage layers, growing medium type and depths (minimum 75mm, but depends on system and type employed) and plant schedules. It should be designed to retain at least 60% of the annual rainfall. A minimum of 2 maintenance visits per year will be required to remove unwanted species (as is the case with normal roofs). Assistance in green roof specification can be gained from the Sheffield Green Roof Forum - contact Officers in Environmental Planning in the first instance: 2734198 / 2734196. Alternatively visit www.livingroofs.org or see the Local Planning Authorities Green Roof Planning Guidance on the Council web site.

Site Location

LOCATION AND PROPOSAL

The application site relates to All Saints Catholic High School, which is located approximately half a mile from the city centre. The site is in the ownership of the Diocese of Hallam and measures approximately 6.47 hectares in size. It is

112 currently occupied by the secondary school which has access to major indoor and outdoor sports facilities (Goals Soccer Centre) recently built.

The existing teaching accommodation requires significant remodelling with some expansion to meet future needs. The site is also the preferred location for the Councils Special Educational Needs (SEN) strategy, combining the existing East Hill Secondary School and the secondary phase of Oaks Park School. Seven Hills will provide secondary age pupils with severe learning difficulties, complex needs and profound and multiple learning difficulties with similar provision to the new Talbot School. Through co-location the aim is to provide innovative opportunities for both schools to exploit and maximise inclusive learning. The two schools are to be linked physically and will share key elements of accommodation.

Although the site is surrounded by largely urban landscape, it forms the northern part of an extensive area of green open space in combination with Norfolk Heritage Park to the south-east. The site forms a valuable link in the city’s green network between the park and wildlife habitats in Clay Wood and woodland adjoining Park Hill to the north.

The existing buildings on site consist of three teaching blocks. Block A was built in the early 60’s and consists of a four storey block, with adjacent two storey block. Block B was added in the 1980’s and consists of a two storey block, and Block C was added in the 1990’s. The three Blocks are only linked via two glazed links and an open bridge link. The school currently has a number of mobile classrooms along the western edge of the site and a two storey class room to the south of Block B. The three existing Blocks are all different in their design, with a wide palette of materials used.

The land levels change across the site, resulting in a 1.6 metre change between Block B and Block C and also a level change within the existing dining room within Block A. There is also a slope from north down to south with the school being elevated above the playing fields. The site is bound on all sides by a 2 metres plus stone boundary wall, with extensive landscaping behind.

The proposed development breaks down into 5 key areas. These include; (1) The creation of a new two storey teaching block, creating a new shared main entrance and provision of teaching accommodation primarily for Seven Hills, and a shared 6th form area; (2) Re-modelling and refurbishment of the existing All Saints Catholic High School; (3) The erection of a Caretakers House; (4) Associated landscaping work to the site; (5) Alterations to the parking arrangement to including Goals Soccer Centre.

RELEVANT PLANNING HISTORY

There is an extensive planning history to the site; however the most relevant applications are listed below:

Planning permission was granted in 2004 for the erection of an indoor sports hall and ancillary accommodation including 10 x 5-a-side artificial grass outdoor pitches and associated infrastructure. 04/00450/FUL.

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Planning permission was granted in 1992 for the erection of a 2 storey teaching block and link bridge, construction of car park and pedestrian access and widening of vehicular access. Application No. 92/00907/FUL.

A number of temporary consents have been granted for the siting of temporary class room buildings.

An application has just been received for the erection of temporary class rooms to be occupied during the construction period.

REPRESENATIONS

1 Representation has been received. Issues raised include:

Concern over the loss of so many trees on the site, especially those visible in front of the school from Granville Road. These enhance the appearance of the site. If the Council is committed to a reduction in Sheffield’s carbon footprint, how can it allow the removal of these trees.

South Yorkshire Police

Secure by Design aims to assist in the design process, to achieve a safe and secure environment for students and staff without creating a ‘fortress environment’. The comments received include the boundary treatments as shown offer the site an adequate level of security and appropriate to the environment, however the landscaping adjacent to pedestrian access should be maintained to ensure natural surveillance.

CABE is the government’s advisor body on architecture, and has a close interest in the Building Schools for the Future programme. The application has been through the CABE process. CABE have commented that the project responds well to the local authority’s vision for co-located schools, and that re-developing the site is sound. However there are a number of weaknesses identified, including matters relating to entrance design, movement through the school, and materials used. These issues are covered further in the design section below.

PLANNING ASSESSMENT

A planning brief was carried out for the redevelopment of the school which was adopted by the City Centre South and East Planning Board on the 5th January 2009. The proposed scheme has been developed in accordance with this adopted planning brief.

Land Use Policy

All buildings and their immediate curtilages, with the exception of the sports hall, are within a Business: Institution: Leisure Area in the adopted Sheffield Unitary Development Plan (UDP), with the remainder of the site falling within a designated Open Space Area.

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As such Policy LR3 of the UDP is relevant in determining the Land Use Policy. Policy LR3 lists acceptable and unacceptable uses within “Business: Institution: Leisure Areas” with School buildings falling within Use Class D1 which is listed as an acceptable use.

Additionally, the following Unitary Development Plan policies are relevant:

- BE5 ‘Building Design and Siting’ - BE6 ‘Landscape Design’ - BE9 ‘Design for Vehciles’ - BE7 ‘Design of Buildings used by the Public’ - BE12 ‘Public Art’ - CF1 ‘Provision of Community Facilities’ - LR5 ‘ Development in Open Space Areas’

The Sheffield Development Framework –Core Strategy includes the following policies which are of relevance:

- CS43 ‘Schools’ - CS47 ‘Safeguarding of Open Space’ - CS53 ‘Demand for Travel’ - CS64 ‘Climate Change, resources and Sustainable Design of Developments’ - CS65 ‘Renewable Energy and Carbon Reduction’ - CS74 ‘Design Principles’

Sustainability

Policy CS64 requires all new buildings to be designed to help reduce emissions of green houses gases and function in a changing climate. All large scale non- residential developments over 500 square metres will be required to meet a BREEAM rating of Very Good.

Policy CS65 sets a minimum requirement of 10% of the predicted energy of significant developments from decentralised, renewable or low carbon energy, and reduce the overall predicted carbon dioxide emissions by 20%.

Of particular note in this development is the use of Green Roofs to the new build sections of Seven Hills, connection to the city centre district heating system, managed lighting systems, natural ventilation where possible, and a swale feature (natural drainage system).

Connection to the city centre heating system (Veolia) will aid in achieving 60% carbon reduction for the building which far exceeds the 20% requirement of Policy CS65. Whilst no renewable’s are proposed on site at present, they are to be retro- fitted, and are likely to be solar water heating, wind turbines, and photovoltaic cells.

Confirmation that the school will achieve a BREEAM Very Good rating, satisfies policy CS64, with connection to the city centre heating system proposing a carbon reduction of the building of 60% satisfying policy CS65.

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Community Facility / School Enhancement

Unitary Development Plan Policy CF1 states that the provision of community facilities which are readily available to all Sheffield people will be promoted, particularly where they would: a. be for disadvantaged people, or b. be located where there is a shortage and would: c. be easily accessible by public transport d. be located within the community they area intended to serve

The aim of delivering top quality education facilities throughout the City has significant benefits to the community. Community benefit is a material planning consideration and community facilities are encouraged in accordance with UDP Policy CF1.

Both All Saints Catholic School and Seven Hills will have resources that can be made available to the local community, including specialist facilities for music, drama, ICT and technology which have been designed to be accessible for community use and be able to be secured from the rest of the school.

Seven Hills current location provides a community swimming pool, and it is intended that the proposed new 18m x 6m warm water pool is also available for community use.

This proposal is for co-location of the existing All Saints Catholic School and Seven Hills operating as one school campus with improved facilities (and that Seven Hills relocating to the site is a special needs school) and given also that there is a desire to allow better use of those facilities by the wider community, it is felt that this proposal is fully compliant with Policy CF1 of the development plan.

Policy CS 43 from the Core Strategy is also relevant; and states; Provision of sufficient modernised education facilities will include amongst other things: a. the redevelopment and refurbishment of all secondary schools and significant investment to upgrade some primary schools

The facilities proposed would enhance the capabilities of the Education Service to deal with pupils having particular learning requirements, and benefiting from the resources proposed at Seven Hills. These facilities would be brought onto one campus and be provided with modern facilities tailored to the needs of the pupils and users. Furthermore the extension works and the refurbishment works at All Saints Catholic School would represent substantial modernisation which would also enable the improvement of the facilities available at the site, and within the City as a whole, complying with Policy CS43.

Layout and Design Issues

116 Policy BE5 of the Adopted Unitary Development Plan relates to building design and siting and principally states that good design and the use of good quality materials will be expected in all new developments. It also advises that new buildings should complement the scale, form and architectural style of surrounding buildings and be of a human scale.

Policy CS 74 of the Core Strategy relates to ‘Design Principles’ and reiterates the high standards of design that are expected by the Council in new developments.

The design proposals have been developed to utilise the existing spaces in the All Saints campus and complement these with appropriate areas of new build, with a design brief being provided by the Local Planning Authority.

The key factors include:

- New main entrance to serve both schools and community - Separate pedestrian and traffic routes where possible - Link new dining hall in Seven Hills with the existing dining hall in All Saints to integrate both school’s pupils - Link existing All Saints blocks with the a new extension - Combined 6th form department for both schools - Combined administration and staff areas for both schools - Create shared external teaching spaces

It is generally considered that the proposed new Seven Hills, and the extended/refurbished All Saints Catholic School is modern in its design approach, which to some extent reinforces the philosophy of the Building Schools for the Future programme which is to encourage the creation of a forward thinking and progressive learning/teaching environment. The building is of simple geometric form with clean lines and crisp detailing.

The new build Seven Hills creates a new entrance for both schools which is visible from the main entrance to the site off Granville Road, with a new entrance plaza and associated landscaping details. From this main entrance is it was important to create views towards the playing fields, which has been achieved through the use of a glazed corridor/link.

The two storey element of Seven Hills sits comfortably with the existing 1960’s building, and will create two external courtyard areas which will provide outdoor teaching/social areas. This part of the building is to be finished in brickwork to the ground floor to match with the existing 4 storey block, with Glass Reinforced Concrete (GRC) panels to the main elevations, with white through coloured render to the rear and coloured feature panels between the glazing. The proposed window finish is anodised aluminium to match with the existing four storey curtain walling. A horizontal brise soleil is proposed to the southern elevation at first floor level with a timber pergola with louvers to provide a horizontal brise soleil to the ground floor. A glass balustrade is proposed as a parapet to the building allowing access to the green roof proposed on the flat roof of Seven Hills.

117 There is a broad palette of materials on the existing buildings on the site. It is proposed that the new extensions to All Saints will compliment and enhance the existing 1960’s building by taking reference from it. Overall it is considered that the new extensions will help the function-ability of the school, and improve the overall appearance tying in the existing buildings.

It is felt that this proposed development is one that would benefit from an element of public art being incorporated within the scheme, and therefore (in accordance with Policy BE12 of the Unitary Development Plan - “Public Art”), it is considered appropriate to impose a suitable planning condition requiring details of an element of public art to be submitted, approved and thereafter implemented. A budget has been allocated in the cost plan for the consultation and design process, construction, installation and management of the proposed art work.

In response to the comments raised by CABE these issues have been discussed with the Head teachers of both schools, and the project design team. A condition ensuring samples of materials and large scale typical details can attached to any approval, to ensure appropriate quality however the other issues raised regarding the size of the entrance and the functions of the courtyards are not considered to impact negatively on the overall outcome of design, and significant amendment on these lines would not meet the school’s needs.

The Caretakers House is a two storey detached building located to the south west of the building. It is a brick built dwelling under mono-pitched roof, of contemporary design, mirroring the design and materials of the new Seven Hills.

In light of the above, it is concluded that good design principles and suitable quality materials are proposed as part of this development. The design of the building will ensure that it has an aesthetic interest when viewed from Granville Road. This satisfies the relevant elements of UDP policy BE5 and Core Strategy policy CS74.

Open Space Issues

Policy LR5 prevents development in Open Space Areas amongst other things where it would make an open space ineffective as an environmental buffer, where it would result in over-development or harm the character of an area and/or where it would be incompatible with surrounding land uses.

Policy CS47 of the Core Strategy states development in open space will not be permitted where, amongst other things:

- it would result in a quantitative shortage of either informal or formal open space in the local area - people in the local area would be denied easy or safe access to a local park or smaller informal open space

The proposal would utilise small areas of open space located between existing buildings, which is currently hard landscaped. It is proposed to re-landscape these areas and would not lead to the loss of any open space, but upgrade it to make it more usable by the users of the facilities at the site.

118

The majority of the caretakers house is located within the Business: Institution: Leisure Area, however the southern most section (approximately 20%) is located within the area of open space. This site is the only feasible position for the house to be located, and owing to it playing a fundamental role in the operation of the school it is considered acceptable.

On this basis the proposal is considered to comply with the requirements of the above policies and therefore acceptable as a result.

A response from Sport England has not been received to date, but will be reported in the Supplementary Report prior to the Board.

Highways

Policy BE9 of the UDP ‘Design for Vehicles’ requires that new developments and Refurbishments provide a safe, efficient and environmentally acceptable site layout for all vehicles (including cycles) and pedestrians. Amongst others, this includes (a) a clear definition of vehicle access and exit, (b) good quality design of internal roadways, and (f) adequate parking space suitably located for vehicles used by people with disabilities.

Regional Spatial Strategy (RSS) parking guidelines for school facilities specify that 1 space per 2-4 staff should be provided. The site is located in a very accessible location, being adjacent to a tram stop and multiple main bus routes and within walking distance of the city centre and train station. Therefore, it is reasonable to expect that a reasonable number of school staff would use public transport facilities.

Policy CS53 of the Core Strategy ‘Management of Demand for Travel’ highlights the implementation of Travel Plans for new developments to maximise the use of sustainable forms of travel and mitigate the negative impacts of transport, particular congestion and vehicle emissions.

It is proposed that the existing parking spaces allocated to the sports facility at Goals Soccer Centre are to be made available to staff and visitors to Seven Hills during the school day, as these are normally used in the evenings.

In total 133 car parking spaces are provided, with 8 visitors parking bays, and 10 minibus bays. It is estimated that there are 140 staff at All Saints Catholic School, and 120 staff at Seven Hills, giving a total of approximately 260. Therefore the parking provision on site is 1 space per 2 staff and it is considered that the parking proposed would satisfy the RSS requirement of 1 space per 2-4 staff.

25 minibuses serve the existing co-located special school bring pupils from different areas dropping pupils off as close to the schools entrance. All minibuses will arrive and depart at roughly the same time, and will queue through the site, using the part of the access road, and service bays etc. A staggered start of day for both schools will also help with traffic management.

119 Details of the Travel Plan including a programme of monitoring and review can be controlled through an appropriate condition. The proposal is considered to satisfy the provisions of UDP policy BE9, Core Strategy Policy CS53 and the RSS, which seeks for proposals to give safe access to the highway network with appropriate off-street parking.

Amenity Issues

The school is bound by mature greenery, a tall stone boundary walling, and Granville Road and Norfolk Park Road. The proposed extensions to All Saints Catholic School, the new build at Seven Hills and the caretaker’s house would not lead to the potential for overlooking or overbearing impact on local residents.

The courtyards would provide external learning/social areas; these are located in positions away from neighbouring dwellings along Granville Road.

Hours of construction working can be controlled by the Environmental Protection Service. A directive should be attached to any permission advising of these controls and specifying appropriate working hours.

Therefore it is felt that the detrimental harm caused to local residents will be minimal.

Access Issues

UDP policy BE7 states that "in buildings to be used by the public, provision will be expected to allow people with disabilities safe and easy access to the building and appropriate parking spaces. The provision of other facilities for people with disabilities or with young children will be encouraged, including: a. safe and easy access within the building and between floors, and b. toilet facilities, and c. facilities for people with young children and for elderly people including, where appropriate, childcare and baby changing facilities and seating; and d. siting and design so that they are easily accessible to public transport users

The proposed development is considered to provide an environment which is satisfactory in relation to the above policy. Conditions will be required to require installation of appropriate arrangements.

Landscaping Issues

Policy BE6 of the UDP relates to ‘Landscape Design’ and expects good quality landscape design in new development and refurbishment schemes.

The most valuable landscape features are considered to be the existing woodland belts to the boundary of the site, and these areas are to largely retained. A number of the poorer specimens along the edge of woodland belt are to be removed to widen the parking area, with selective thinning close to the new pedestrian entrance to improve sight lines along footpaths.

120 A number of trees are to be removed within the existing courtyards at All Saints Catholic School to accommodate the new extensions, along with the existing trees at the front of the school on the proposed footprint of Seven Hills.

The whole site is being re-landscaped to include a number of new courtyard areas with specific requirements, i.e. social, sensory and performance areas. A new entrance plaza is to be created at the main entrance, with directional feature paving, soft landscaped areas including semi-mature trees, and informal seating areas. A teaching terrace, science garden, art display areas, and hard play area for Seven Hills will further enhance and improved the quality of the landscaping on the site.

Green/bio diverse roofs will enhance the Seven Hills roof as seen from the upper floors of All Saints, and could be used to create an external teaching area with direct access from the upper floors of All Saints.

A shallow swale feature is proposed which will intercept surface water, and lead to an existing horticultural garden which is to be retained and enhanced and linked to a habit area.

It is considered that the application shows a significant commitment to retaining and enhancing the soft and hard landscaping of the site, and will comply with UDP Policies BE6. It is considered appropriate to attach a condition to any permission requiring further details of the soft and hard landscaping, and for the detail of the protection of the existing trees on the site.

Other Issues

A preliminary Ecology Report was undertaken, and concluded that there were not any potential negative effects arising from the proposal.

A Contaminated Land Risk Assessment Report has been carried out, with no requirement for further assessment.

Yorkshire Water have raised concerns regarding the close proximity of the new buildings to the main sewer running across the site. Discussions to resolve these issues are taking place, and the outcome will be reported in the Supplementary Board Report.

SUMMARY AND RECOMMENDATION

The application is for a new school building for Seven Hills which is part of the Councils Special Education Needs strategy, replacing the existing East Hill Secondary School and Oaks Park School, and to refurbish and extend the existing All Saints Catholic School. A caretaker’s house is also proposed on site, along with re-landscaping works.

The design and layout of the school has been developed having regard to both school’s requirements, providing a co-location, whilst still enabling the schools to be segregated when needed. It is generally considered that the buildings are

121 modern in their design approach, which to some extent reinforces the philosophy of the Building Schools for the Future programme, and will reflect and enhance the existing buildings on the site.

It is therefore concluded that the application proposal is acceptable in terms of UDP Policies LR5, CF1, BE5, BE6, BE7, BE9, and BE12, and Core Strategy Policies CS 43, CS 47 and CS 53, CS64, CS65 and CS74.

In light of the above it is recommended that this application proposal be approved, subject to relevant conditions.

122

Case Number 09/02488/OUT

Application Type Outline Planning Application

Proposal Extension to South Stand, additional car parking and ancillary facilities

Location Sheffield United Football Club Bramall Lane Highfield Sheffield S2 4RD

Date Received 04/08/2009

Team SOUTH

Applicant/Agent Turley Associates (Leeds)

Recommendation Grant Conditionally

Subject to:

1 The development shall not be commenced unless and until full particulars and plans thereof shall have been submitted to the Local Planning Authority and planning approval in respect thereof including details of Appearance and Landscaping (matters reserved by the permission) shall have been obtained from the Local Planning Authority.

Until full particulars and plans of the development (including details of the matters hereby reserved) are submitted to and approved by the Local Planning Authority they cannot agree to the development proceeding.

2 Application for approval in respect of any matter reserved by this permission must be made not later than the expiration of five years from the date of this decision.

In order to comply with the requirements of the Town and Country Planning Act.

3 The development shall be begun not later than whichever is the later of the following dates: the expiration of two years from the final approval of the reserved matters or, in the case of approval on different dates, the final approval of the last such matter to be approved.

In order to comply with the requirements of the Town and Country Planning Act.

123 4 The details (reserved matters) of the scale and massing of development which are required pursuant to Conditions 1 and 2 above shall not exceed the maximum height of 38 metres above datum set out on Plan 07-086 PL- 12 Rev 2. Such limitation shall apply to the elevation and main roof body of the development but shall not apply to expressed structural/architectural roof supporting structures.

The submitted drawings indicate the maximum scale of development that the Local Planning Authority considers appropriate for the site in accordance with Policy BE5 of the UDP and Policy CS74 of the SDF Core Strategy.

5 The layout of the building and the location within the site shall be implemented in accordance with Plan 06-083 PL-01 Rev 6 received on 16th October 2009.

The submitted drawings indicate the footprint of football stand that the Local Planning Authority considers appropriate for the site in accordance with Policy BE5 of the UDP and Policy CS74 of the SDF Core Strategy.

6 The details (reserved matters) of the development which are required pursuant to Conditions 1 and 2 above with regard to external appearance shall be in accordance with the following relevant documents, which have been submitted in support of this outline approval:

i. Façade materials document 06-083 PREC-01 ii. Roof structures document 06-083 PREC-02

The submitted illustrative supporting information indicates the form and appearance of development that the Local Planning Authority considers appropriate for the site in accordance with Policy BE5 of the UDP and Policy CS74 of the SDF Core Strategy.

7 The details (reserved matters) of the development which are required pursuant to Conditions 1 and 2 above with regard to public realm works including a landscaping strategy to reinforce 'pedestrian priority' to the space in front of the main entrance and a pedestrian walkway to Cherry Street at least 6.5 m wide shall be in accordance with the following relevant illustrative plans and information, which have been submitted in support of this outline approval.

a) Plan 06-083 PREC-03 Rev 01(received 21st October 2009) b) Plan 06-083 PL-01 Rev 6 (received 21st October 2009)

The submitted illustrative plan indicates the form and appearance of development that the Local Planning Authority considers appropriate for the site in accordance with Policy BE5 of the UDP and Policy CS74 of the SDF Core Strategy.

8 Notwithstanding details shown on the approved plans the spectator stand and additional club facilities shall not be used unless suitable access and

124 facilities for people with disabilities, both to and within the stand, have been provided but, before such access and facilities are provided, full details thereof shall have been submitted to and approved in writing by the Local Planning Authority. When the access and facilities have been provided, thereafter such access and facilities shall be retained. (Reference should also be made to the Code of Practise BS8300).

To ensure ease of access and facilities for disabled persons at all times.

9 Surface water and foul drainage shall drain to separate systems.

To ensure satisfactory drainage arrangements.

10 Prior to being discharged into any watercourse, surface water sewer or soakaway system all surface water drainage from parking areas and hardstandings shall be passed through a petrol/oil interceptor designed and constructed in accordance with details to be approved in writing by the Local Planning Authority.

To prevent pollution of the Water Environment.

11 No development shall take place until details of the proposed means of disposal of foul and surface water drainage, including any balancing works, have been submitted to and approved in writing by the Local Planning Authority.

To ensure the development can be properly drained.

12 Unless otherwise approved in writing by the Local Planning Authority, there shall be no piped discharge of surface water from the development prior to the completion of the approved surface water drainage works and no buildings shall be occupied or brought into use prior to completion of the approved foul drainage works.

To ensure that no foul or surface water discharges take place until proper provision has been made for their disposal.

13 Before the development is commenced details of the means of access of vehicles engaged in the construction of the development shall have been submitted to and approved in writing by the Local Planning Authority. Thereafter the agreed access points shall provide the sole access/egress for construction vehicles unless otherwise agreed in writing.

In the interests of traffic safety and the amenity of the locality.

14 Prior to the development commencing full details shall be submitted and approved in writing by the Local Planning Authority of:

(i) cycle parking

125 (ii) disabled parking - and before any part of the development is used such parking shall be provided and thereafter retained.

In the interests of traffic safety.

15 Before the development is commenced, details of the proposed surfacing, layout, lighting and marking out of the car parking accommodation shall have been submitted to and approved in writing by the Local Planning Authority. The new stand shall not be brought into use unless the car parking accommodation has been provided in accordance with the approved details. Thereafter such car parking accommodation shall be retained for the sole purpose intended.

In the interests of traffic safety and the amenities of the locality.

16 Before development commences details of the temporary works to be undertaken during the construction period, temporary site boundary treatment, and location of wheel washing facilities around the site during construction shall be submitted to and approved in writing by the Local Planning Authority.

In the interests of traffic safety and the amenities of the locality.

17 Prior to the occupation of any part of the development, a detailed Travel Plan(s), designed to: reduce the need for and impact of motor vehicles, including fleet operations; increase site accessibility; and to facilitate and encourage alternative travel modes, shall have been submitted to and approved in writing by the Local Planning Authority. Detailed Travel Plan(s) shall be developed in accordance with a previously approved Framework Travel Plan for the proposed development where that exists.

The Travel Plan shall include:

i) Clear and unambiguous objectives and modal split targets; ii) An implementation programme, with arrangements to review and report back on progress being achieved to the Local Planning Authority in accordance with the 'Monitoring Schedule' for written approval of actions consequently proposed, iii) The results and findings of the monitoring shall be independently verified/validated to the satisfaction of the local planning authority. iv) The verified/validated results will be used to further define targets and inform actions proposed to achieve the approved objectives and modal split targets. v) On occupation, the approved Travel Plan(s) shall thereafter be implemented, subject to any variations approved in writing by the Local Planning Authority.

In the interests of delivering sustainable forms of transport, in accordance with the Transport Policies in the adopted Unitary Development Plan for Sheffield and PPG13.

126

18 Prior to any works being commenced on site full details of the following shall be submitted and approved in writing by the Local Planning Authority and the construction of the development shall only be progressed in accordance with the approved details:

vi) Construction method statement vii) Site safety viii) Construction vehicle ingress and egress ix) Location of the site compound and temporary car parking arrangements for contractors x) Vehicular routes for construction traffic xi) Details of any temporary Traffic Regulation Orders

In the interests of traffic safety and the amenities of the locality.

19 Before any part of the development hereby approved is brought into use suitable apparatus for the arrestment and discharge of fumes from any cooking facilities shall have been installed but before such equipment is installed details thereof shall have been submitted to and approved by the Local Planning Authority. After installation such equipment shall be retained and operated for the purpose for which it was installed.

In the interests of the amenities of the locality.

20 Before the development is commenced, full details of proposals for the inclusion of public art within the development shall have been submitted to and approved in writing by the Local Planning Authority. Such details shall then be implemented prior to the occupation of the development unless otherwise authorised in writing by the Local Planning Authority.

In order to satisfy the requirements of Policy BE12 of the Unitary Development Plan and to ensure that the quality of the built environment is enhanced.

21 If within six months of the buildings hereby permitted being completed (the date of which shall be confirmed in writing by the occupier to the Local Planning Authority) it is brought to the attention of the Local Planning Authority that television interference to residential properties in the locality has occurred as a result of the erection of the buildings, details of measures to mitigate against such television interference shall be submitted to the Council. These details shall be submitted by the Applicant within 28 days of being advised by the Council that such problems are occurring, and subsequently approved in writing by the Local Planning Authority. The details of mitigation measures submitted shall be commensurate with the level of television Interference occurring and shall be implemented within a reasonable time period as directed by the Local Planning Authority.

In the interests of protecting local amenity and to alleviate any adverse electromagnetic interference.

127

22 Large scale details, including materials and finishes, at a minimum of 1:20 of the items listed below shall be approved in writing by the Local planning Authority before the commencement of development:

Windows Window reveals Doors Eaves and verges External wall construction Brickwork detailing Entrance canopies

Thereafter, the works shall be carried out in accordance with the approved details.

In order to ensure an appropriate quality of development.

23 The development must be carried out in complete accordance with the following approved documents unless otherwise authorised in writing by the Local Planning Authority.

Drawing No. Date received 06-083 EX-01 20-10-2009 06-083 PL-01 REV 6 20-10-2009 07-086 PL-12 REV 2 16-10-2009 06-083 PREC-03 REV 01 21-10-2009 06-083 PREC-01 20-10-2009 06-083 PREC-02 20-10-2009 06-083 PL-02 REV 1 04-08-2009 06-083 PL-03 REV 2 21-10-2009 06-083 PL-04 REV 1 04-08-2009 06-083 PL-05 REV 1 04-08-2009 06-083 PL-06 04-08-2009 06-083 PL-07 04-08-2009 06-083 PL-08 REV 1 04-08-2009 06-083 PL-09 21-10-2009

In order to define the permission.

24 Before any work on site is commenced, a report shall have been submitted to and approved in writing by the Local Planning Authority identifying how the predicted surface water run off from the site will be reduced by 30%. Such a report shall include details of any attenuation works and these agreed measures shall have been installed before any part of the development is occupied and shall be retained for the lifetime of the development, unless otherwise agreed in writing by the Local Planning Authority.

128 In order to mitigate against the risk of flooding.

25 Before any work on site is commenced, a report shall have been submitted to and approved in writing by the Local Planning Authority identifying how the following will be provided:

a) a minimum of 10% of the predicted energy needs of the of the completed development being obtained from decentralised and renewable or low carbon energy; and b) The Generation of further renewable or low carbon energy or incorporation of design measures sufficient to reduce the development’s overall predicted carbon dioxide emissions by 20%. This would include the decentralised and renewable or low carbon energy to satisfy (a)

Any agreed renewable or low carbon energy equipment, connection to decentralised or low carbon energy sources or additional energy efficiency measures shall have been installed before any part of the development is occupied and a post-installation report shall have been submitted to an approved in writing by the Local Planning Authority to demonstrate that the agreed measures have been installed. Thereafter the agreed equipment, connection or measures shall be retained in use and maintained for the lifetime of the development, unless otherwise agreed in writing by the Local Planning Authority.

In order to ensure that new development makes energy savings in the interests of mitigating the effects of climate change, in accordance with Sheffield Development Framework Core Strategy Policy CS65.

26 The development hereby approved shall be constructed to achieve a minimum rating of BREEAM ‘very good’ and before the development is occupied (or within an alternative timescale to be agreed) the relevant certification, demonstrating that BREEAM ‘very good’ has been achieved, shall be submitted to and approved in writing by the Local Planning Authority.

In the interests of mitigating the effects of climate change, in accordance with Sheffield Development Framework Core Strategy Policy CS64.

27 Prior to the commencement of development of the stand, a signage strategy for the Cherry Street elevation shall be submitted and approved in writing by the Local Planning Authority which provides the following:

i) Maximum depth, height and projection from the elevation; ii) Maximum size and location of any signs.

To secure the delivery of a consistent and coherent fascia design to Cherry Street to ensure an appropriate quality of development.

129 Attention is drawn to the following justifications:

BE5 - Building Design and Siting BE7 - Design of Buildings Used by the Public BE8 - Access to Workplaces BE9 - Design for Vehicles MU5 - Bramall Lane Mixed Use Area MU11 - Conditions on Development in Mixed Use Area LR2 - New Leisure Uses and Facilities CS51 - Transport Priorities CS53 - Management of Demand for Travel CS63 - Responses to Climate Change CS64 - Climate Change, Resources and Sustainable Design of Developments CS65 - Renewable Energy and Carbon Reduction CS67 - Flood Risk Management CS74 - Design Principles Sheffield

and to all relevant material considerations, including Supplementary Planning Guidance.

Attention is drawn to the following directives:

1. It is noted that your planning application involves the construction or alteration of an access crossing to a highway maintained at public expense.

This planning permission DOES NOT automatically permit the layout or construction of the access crossing in question, this being a matter which is covered by Section 184 of the Highways Act 1980, and dealt with by:

Assistant Head of Highways Development Services Howden House 1 Union Street Sheffield S1 2SH

For access crossing approval you should contact the Highway Development Control Section of Sheffield City Council on Sheffield (0114) 2736136, quoting your planning permission reference number.

130 2. The Applicant is advised that significant views, verified by the Local Planning Authority, should be provided with any Reserved Matters application in order to assist in the assessment of the Reserved Matters submission'.

3. Before the development is commenced, a dilapidation survey of the highways adjoining the site shall be jointly undertaken with the Council and the results of which agreed in writing with the Local Planning Authority. Any deterioration in the condition of the highway attributable to the construction works shall be rectified in accordance with a scheme of work to be agreed with the Local Planning Authority.

Site Location

LOCATION AND CONTEXT

The application relates to a 1.75 hectare area within the curtilage of the existing football stadium. The great majority of this area is currently occupied by surface car parking with the balance occupied by the footprint of the existing South Stand. The

131 car park occupies a space bounded by Cherry Street to the south, the existing South Stand to the north, Shoreham Street to the east and the newly completed Copthorne Hotel to the west.

The area of the site indicated for development slopes from south to north such that the carriageway level of Cherry Street is elevated above the ground floor entrance to the existing South Stand by approximately 3 metres.

The existing South Stand itself is a substantial concrete framed, cantilever roofed building rising to approximately five domestic storeys in height. Panels between the main supporting concrete pillars from the first floor upwards are clad in profile sheeting and a façade/ canopy at ground level features three ‘arches’ forming the main entrance.

The street scene of Cherry Street at this location is dominated by the existing South Stand, the Copthorne Hotel and the Anchor Point. The latter is a predominantly glass clad structure rising to 5 domestic stories in height for the majority of its length but having a corner tower at the junction of Cherry Street and Bramall Lane rising to seven stories. The Copthorne Hotel rises, in the main, to a height of eight domestic storeys though this also features a corner tower rising a further storey.

PROPOSAL

This is an outline application for the extension of the South Stand and ancillary works. As such the submitted plans are indicative and not definitive representations of the likely final design. Nonetheless they do give strong indication of the likely scale and massing of the proposal and of the extent of public realm works.

The application seeks approval of access, layout and scale with appearance and landscaping reserved for subsequent approval (reserved matters).

The South Stand Extension

This element would involve the removal of the existing roof to the stand and the abutment of an additional tier of seating to the rear of the existing seating. This new seating would sit atop a concourse area, executive boxes and ground floor spaces with a multi storey ceiling height creating significant exhibition/hospitality spaces.

The entirety of the resulting structure would likely be covered by a large cantilevered truss roof with the familiar ‘cats cradle’ of supporting steel work above the roof line, the intention being to negate the necessity for supporting pillars which restrict views of the pitch. The resultant structure would rise to a height commensurate with approximately ten domestic storeys and would facilitate the addition of 6,671 new seats.

Ancillary Works

132 The proposal intends to take advantage of the falling level between Cherry Street and the existing South Stand by locating an ‘elevated’ deck between the two facilitating the provision of ‘underground’ car parking and on deck parking with public realm works. A total of 310 car parking spaces are proposed in this area of the site as a result.

Although the public realm works will also be subject of considerable design development the presence of a central pedestrian parade from Cherry Street to the main entrance is likely to be retained and the main pedestrian thoroughfares to the turnstiles will require retention.

RELEVANT PLANNING HISTORY

There is a wealth of planning history on the stadium site as a whole but the most recent significant applications have been.

(05/02899/FUL) permission granted for the Westfield Health Stand (between the Bramall Lane Stand and the South Stand)

(07/01281/FUL) permission granted for the erection of the 8 storey hotel with associated access, parking and landscaping at the junction of Bramall Lane and Cherry Street.

(09/00602/FUL) Permission subject to Legal Agreement for extension to Kop Stand, alterations to Evolution Stand, erection of Business Enterprise Centre and associated infrastructure

SUMMARY OF REPRESENTATIONS

Applicant led Community Consultation (Pre-application)

The proposals were exhibited at the Stadium by the applicant in June 2009 and approximately 500 local residents leafleted and invited to attend. 24 people attended and made the following comments:

− Fantastic − Much improved façade − Needed to move club forward − Bold and imaginative design − Additional parking would alleviate congestion

There has been 3 individual letters of objection to the scheme, following the submission of the application:

Summery of points raised

The proposal will result in increased vehicular traffic on residential streets. Increased littering. Insufficient car parking for supporters

133 PLANNING ASSESSMENT

This is an outline application to consider matters of scale, layout and access only with matters of appearance and landscaping to be reserved for future assessment subject to the maximum parameters and principles established in this application. The key issues to consider include the following: a) The principle of development b) Scale c) Layout d) Design and external appearance; e) Public realm works f) Access g) Amenity; h) Sustainability

Principle

The site for development is allocated as a Mixed Use Area in the Unitary Development Plan (UDP). UDP policies MU5, BE2, BE5, BE7, BE8 and BE9 are relevant.

Policy MU5 ‘Bramall Lane Mixed Use Area’ states:

In the Bramall Lane Mixed Use Area, the following uses will be acceptable:

Leisure and recreation facilities (D2)

Policy LR2’ New leisure uses and facilities’ states:

New leisure uses and facilities, and improvements to existing ones, will be promoted, particularly where they would: c. be easily accessible by public transport;

The proposal is acceptable in terms of the nature of use and therefore satisfies policy MU5.

Further, it involves the enhancement of existing leisure facilities for an important community use in a sustainable location and this is satisfactory with regard to policy LR2.

Scale

Policy CS74 of the SDF Core Strategy advises that any new development should respect the topography of the City, views and vistas and the townscape and landscape character of the particular area.

The scale of development in this case can be assessed by virtue of plans indicating maximum height and footprint. In this case, the Applicant has indicated the following:

134

Maximum height to eaves. 38 metres

Maximum height to supporting 46 metres structures for cantilever roof.

Maximum width of stand 107 metres

Maximum projection of footprint 33 metres beyond existing South Stand

In terms of immediate, medium and long vistas the proposal would be viewed in the context of the existing stadium complex. The stadium taken in its entirety is a perfect example of an evolutionary approach to stadium construction rather than having an overarching architectural ethos.

In this respect all four stands currently differ in their design and appearance being related to different eras of the clubs history.

The Bramall Lane and John Street Stands are of a scale and appearance that is more commensurate with the tight terraced streets within which the stadium was first constructed and despite various facelifts maintain much of the essential character of football stands of the earlier part of the last century.

The current Kop Stand represents something of an ad hoc approach to stadium extension but there is an extant permission for the replacement of both the main body of the stand and its roof that should give this side of the ground a more positive aspect toward Shoreham Street.

Within this context it is felt that a stand of differing design is not problematic in terms of the way the ground is viewed in its entirety.

What is clear is that the new South Stand, because of its scale and design will represent the ‘front door’ of the stadium and it is this façade that should become the iconic image of the club well into the C21st.

Whilst the definitive dimensions of the development remain for future consideration, it is considered that the information submitted with this application is sufficient to demonstrate that the scale of the proposed development, as set out on the parameters plans, is acceptable within this location.

Hence, though greater in scale than immediately adjoining buildings, the proposal is considered to respond appropriately to the scale, height and proportions of the existing built form.

Finally, the application also sufficiently demonstrates that the development should respect the topography of the City and although it will clearly be prominent in many long range views, it will not detract from the skyline. On this basis, the scale of development is considered to accord with the principles of Policy BE5 of the UDP and Policy CS74 of the Core Strategy

135

Design and external appearance

Policy BE5 of the Adopted Unitary Development Plan advises that good design and the use of good quality materials will be expected in all new buildings. Policy CS74 of the Core Strategy also advises that high-quality development will be expected, which would respect, take advantage of and enhance the distinctive features of the city, its districts and neighbourhoods.

This application is submitted in outline with matters of external appearance to be reserved for future consideration. However, it is clearly important that the external appearance of the development be of an appropriate quality, which it is advisable to secure in principle as part of this outline approval. In this regard, the Applicant has submitted a Design and Access Statement and additional informative documentation giving strong indications of likely design quality.

The Applicant states that the main façade onto Cherry Street will comprise three distinct bands. An upper curtain wall holding the clubs crests, a middle curtain wall featuring large areas of glazing and a more substantial lower plinth also formed in glazing but recessed below the intermediate band.

The indicative sketch views and computer generated images show a modern building though there are clearly hints of Art Deco in the curved circulation ‘drums’ and in the distribution, proportion and extent of glazing.

Moreover, with regard to materials, the plans indicate the predominant use of proprietary curtain walling for non glazed elements, which is characteristic of other parts of the stadium complex. It is felt that the quality of this curtain walling system will be crucial in producing a building of appropriate quality.

Of equal, if not greater, importance will be the architectural treatment of the roof which has the greatest potential to create an iconic structure that will be clearly visible from many vantage points within the city. It is considered that this element will require significant design development before being submitted for Reserved Matters approval.

Subject to planning conditions requiring any future reserved matters to comply with the principles of this outline application and subject to conditions requiring large scale details of principle features and details of materials, it is considered that the details of external appearance that form part of this outline application are acceptable in accordance with Policy BE5 and CS74

Layout

Policy BE5 of the Adopted Unitary Development Plan states that new developments should complement the scale, form and architectural style of surrounding buildings and should be of a human scale wherever possible. In addition, Policy CS74 of the SDF Core Strategy, which relates to design principles, advises that high-quality development will be expected, which would respect, take advantage of and enhance the distinctive features of the city, its districts and

136 neighbourhoods. Policy CS74 also advises that developments should contribute to a healthy, safe and sustainable environment to transform the character of physical environments that have become run down and are lacking in distinctiveness.

This application seeks to determine the layout of the development at this stage, which is defined as the way in which the building and ancillary spaces are provided, placed and orientated in relation to each other. The key elements of the site layout include the following:

The South Stand Extension

The layout of the stand and its attendant infrastructure is largely determined by it’s function. The stand itself is required to adjoin the existing South Stand in order to facilitate additional spectator viewing and as such its location is predetermined.

The car parking arrangement is required to provide operational parking for club employees and this is flanked by substantial pedestrian areas which ‘feed’ the spectators towards the turnstiles and circulation ‘drums’ for the existing and proposed elements of the South Stand and for the Kop Stand.

The car park is ‘divided’ in two by a pedestrian walkway which will be flanked by planting and will likely feature statues of past players on plinths as part of a commitment to public art.

Other key areas of planting will include a frontage strip behind the boundary wall onto Cherry Street and large tree planters between the circulation route of the deck parking and the main elevation of the new Stand.

Overall, it is considered that the proposed layout of the development, in terms of the way in which the building and its associated works will be placed and oriented, is appropriate to the site and wider locality.

On this basis, the proposed layout is considered to comply with the principles of both Policy BE5 of the UDP and Policy CS74 of the Core Strategy.

Highway Issues

Policy BE9 Design for Vehicles states:

New developments and refurbishments should provide a safe, efficient and environmentally acceptable site layout for all vehicles (including cycles) and pedestrians.

The layout plans indicate three points of vehicular entrance/egress from Cherry Street. Two of these provide entrance/egress to the deck level ‘surface’ parking. One of these lies immediately adjacent the Cherry Street entrance to the Copthorne Hotel, the other approximately two thirds of the way along Cherry Street when travelling from Bramall Lane. The third point of access lies immediately adjacent the latter surface parking entrance and provides ramped access down to the lower ground floor ‘under deck’ parking .

137 The access points to the proposed surface level parking are already in existence and the additional point of entry is not considered to be a cause for concern with regard to highway safety.

There will be a slight reduction in the numbers of parking spaces provided on the overall site (existing 466 proposed 453). It is not considered that this limited reduction will be problematic and the information submitted in the Transport Assessment demonstrates that adequate parking will be available for the ground and associated uses on non-match days and match days alike. Indeed this part of the development will increase parking on this part of the site in the order of 60-70 spaces.

It is appreciated that the proposal could increase parking demand in the vicinity of the ground. However it is worthy of note that the Highfield Residents Parking Scheme is expected to be implemented in early 2010 and this should help alleviate on-street parking problems for residents in the locality of the ground

Furthermore, this is a highly accessible location with excellent access to local services and facilities and to public transport.

In conclusion then, the proposal may well lead to an increase in attendance at the ground and a corresponding increase in vehicular traffic generated. It is appreciated that this consequence could have a limited effect on the residential amenity of properties in the locality. However, it is also accepted that any increase in activity would likely only represent a very marginal exacerbation of the existing situation.

Access issues

Policy BE7 Design of Buildings Used by the Public states: a. In all buildings which are to be used by the public, provision will be expected to allow people with disabilities safe and easy access to the building and to appropriate parking spaces. The provision of other facilities for people with disabilities…will be encouraged.

Access to existing buildings and their surroundings should be improved as opportunities arise to enable all users to move around with equal ease.

Policy BE8 Access to Workplaces states:

In all developments which would result in the provision of 20 or more jobs, suitable access arrangements will be promoted especially for public reception areas and toilet facilities, to meet the needs of employees and members of the public with disabilities.

At the time of writing there remain outstanding matters relating to access for the disabled.

138 The Applicants Agent has indicated that the football club has a strong consultative relationship with the National Association of Disabled Supporters and that they are committed to the full compliance of the Reserved Matters scheme to disabled standards which will be finalised at detailed design stage.

It is considered that alternative arrangements for the disabled are preferable in order to satisfy policies BE7 & BE8 and additional details should be a required by condition.

The arrangements for pedestrian flows into all other parts of the ground remain unchanged.

Landscaping

Whilst landscape design is reserved for detail consideration the Applicant has provided indicative plans designating specific areas for planting within the public realm works.

Residential Amenity

The nearest residential properties to the proposed stand are the flats and terraced house on the south side of Cherry Street. Despite its scale and height the stand would achieve significant separation distances (in excess of 50 metres) to all of these properties. In addition the stand lies due north of these residences.

Consequently it is not considered that any disamenity by way of overbearing or overshadowing will result from the proposal. It is felt that the new south elevation of the stand and the public realm works will result in an improvement of the visual quality of the street scene compared to the present.

The west elevation of the extended stand will lie only 3 metres from hotel room windows in the east elevation of the Copthorne Hotel. However, because of the transitory nature of the guests in these rooms this is not considered an adequate reason to negotiate greater separation.

Sustainability

Policy CS65 of the Core Strategy, which relates to renewable energy and carbon reduction, applies to new buildings and requires all significant developments to secure the following, unless it can be shown not to be feasible or viable:

139 (i) Provide a minimum of 10% of the predicted energy needs from decentralised and renewable or low carbon energy AND (ii) Generate further renewable or low carbon energy or incorporate design measures sufficient to reduce the development's overall predicted carbon dioxide emissions by 20%. This would include the decentralised and renewable or low carbon energy required to satisfy (i).

An Energy Strategy has been submitted by the applicant to demonstrate how the scheme will comply with the above policies, although further detailed assessment of the options available will be assessed at detailed design stage.

It is not therefore possible at this stage to determine the precise design approach to reduce emissions of greenhouse gases and address the issue of climate change or the means to generate renewable energy and reduce carbon emissions.

However, subject to suitable conditions regarding sustainability requirements for the Reserved Matters application, the proposal is considered to accord with Policies CS64 and CS65 of the Core Strategy.

Sustainable Drainage and Flood Risk

The site does not lie within a Flood Risk Zone as specified by the Environment Agency.

However, this is a large site with a substantial existing run off. As a brownfield site with an existing surface water run-off, policy CS67 of the Core Strategy requires that this must be reduced by 30%. This reduction should be secured by condition. The indicative literature indicates that the natural slope of the roof stand will allow for rainwater harvesting systems with the grey water being used for pitch irrigation.

Television interference

Only if there is clear evidence that significant electromagnetic interference will arise, or will probably arise, will there generally be any justification for taking it into account in determining a planning application.

Where such problems are likely, planning permission may be granted subject to a condition that, before development commences, the developer will ensure that the quality of any reception affected by the development will be restored.

It is understood from anecdotal evidence that television interference was encountered as a result of the Copthorne Hotel development and as such it is felt prudent to add a condition seeking submission and implementation of an appropriate technical solution to this problem should such arise as a result of this development.

Length of permission

The applicant has requested that planning permission is granted for a total period of 5 years to submit reserved matters in order to enable greater flexibility in

140 implementation and to more appropriately reflect the timetable for the potential World Cup bid for 2018.

An outline planning permission is normally granted for a period of 3 years to submit reserved matters with a further 2 years to implement the permission.

This reflects changes to the Development Control system introduced by the Government in 2005 to reduce the duration of planning consents in order to encourage developments to take place at an early stage. However, Circular 08/2005 states that local authorities have the flexibility to make this period longer or shorter and recommends that Local Planning Authorities are flexible and designate a period appropriate to the size and nature of the development.

This proposal is considered a significant scheme in terms of both physical scale and significance to the city. In the light of both the clubs aspirations and the city’s bid for the 2018 World Cup it is considered reasonable to extend the time period for a further two years to allow a period of five years to submit reserved matters with a further two years to implement the permission.

CONCLUSIONS

This is a proposal which, in combination with the extant permission for the Kop Stand, is intended to increase the capacity of the football stadium to 44,500. This enlargement is part of the clubs aspirations to create a FIFA compliant stadium in support of Sheffield bid to be a host city for the 2018 World Cup and also in support of the clubs desire to secure and exploit Premier League status in the long term.

The proposal will effectively form the principal elevation of the entire stadium and will likely become its public ‘face’ in the media.

The introduction of this element should not only contribute to the upgrading of an important community facility and contribute to the present and future viability of the club but will also represent an improvement in the appearance of the ground when viewed from the public domain.

It may minimally increase vehicular traffic and on street parking on match days but any resulting marginal additional loss of amenity in the locality is not considered sufficient reason for refusal.

It is therefore recommended that the proposal be granted permission subject to conditions.

141

Case Number 09/02399/LBC

Application Type Listed Building Consent Application

Proposal Alterations to barn to form dwellinghouse

Location Eckington Hall Farm South Street Mosborough Sheffield S20 5DF

Date Received 03/08/2009

Team CITY CENTRE AND EAST

Applicant/Agent J C Adams Arch Services Ltd

Recommendation Grant Conditionally

Subject to:

1 The development shall be begun not later than the expiration of three years from the date of this decision.

In order to comply with the requirements of the Planning (Listed Buildings and Conservation Areas) Regulations 1990.

2 The development must be carried out in complete accordance with the following approved documents drawing no; CR/01 received on the 4th August, CR/09/04 and CR/09/02B Amendment B received on the 19th October 2009, CR/04 received on the 4th August and CR/05 received on the 12th August and supporting documentation including Standing Building Appraisal and Archaeological Assessment prepared by Mayfield CA Ltd, Structural Engineers Report prepared by R F Marsden, Planning Statement prepared by the Devenport Consultancy, Bat Scoping Report prepared by BBB Ecology Surveys and Listed Building Statement prepared by J C Adams unless otherwise authorised in writing by the Local Planning Authority.

In order to define the permission.

In order to ensure an appropriate quality of development.

142 4 Large scale details, including materials and finishes, at a minimum of 1:20 of the items listed below shall be approved in writing by the Local planning Authority before the commencement of development:

Windows Window reveals Joinery Doors Eaves and verges External wall construction Stone work Roof lights Ventilators

Thereafter, the works shall be carried out in accordance with the approved details

In order to ensure an appropriate quality of development.

5 Masonry shall be pointed or bedded using a lime mortar mix that is weaker than the surrounding masonry. The colour of the new mortar, which should match the original mortar before weathering, should be achieved by the use of appropriate sand. No propriety coloured mixes of pigments shall be used. The joints should be finished flush then brushed back to expose the aggregate and the edges of the adjacent stone. On no account should the joints be struck or finished proud of the masonry face to form strap or ribbon pointing or feathered over the edge of eroded blocks. A sample panel of proposed pointing shall be approved by the Local Planning Authority before the development commences.

In order to ensure an appropriate quality of development.

6 Heads and cills shall match in size, style, construction and materials those of the existing building.

In order to ensure the protection of the original fabric of the Listed Building

7 The abutment of new walls to the Listed Building shall not be bonded into existing walls by removing existing masonry unless otherwise agreed in writing by the Local Planning Authority.

In order to ensure that the fabric of the building is not damaged

8 Prior to commencement of works, details of the extent and specification of brick/stone repair and cleaning shall have been submitted to and approved in writing by the Local Planning Authority and shall thereafter be carried out in accordance with the approved details.

In order to ensure that the fabric of the building is not damaged

143 9 Repairs and new areas of infill masonry shall match the existing surrounding masonry in bonding, colour, size, shape and texture and in the colour and finished treatment of mortar joints.

In order to ensure an appropriate quality of development.

10 There shall be no replacement, alteration or repair of any part of the original roof structure without the prior approval, in writing, of the Local Planning Authority of details of timbers to be removed, altered and repaired and details and specifications of all new replacement timber members.

In order to ensure that inappropriate alterations are avoided

11 Details and specifications of the following items shall be submitted to and approved in writing by the Local Planning Authority before the commencement of development:

Roof materials Ridge Valleys Eaves Verges Rainwater goods

Thereafter, the development shall be carried out in accordance with the approved details.

In order to ensure an appropriate quality of development.

12 The roof shall be retained in natural stone slates and natural slates with original materials re-used as far as practicable. Any new slates shall match the size, colour and coursing of existing natural slates.

In order to ensure an appropriate quality of development.

13 Rooflights shall be conservation style whereby no part of the rooflight shall project above the surface of the roofing slates unless otherwise agreed in writing by the Local Planning Authority.

In order to ensure an appropriate quality of development.

14 All the rainwater gutters shall be timber painted black and all downpipes and external plumbing shall be of cast iron or cast aluminium construction and painted black unless otherwise agreed in writing by the Local Planning Authority. Gutters shall be fixed by means of hangers and brackets and no fascia boards shall be used.

In order to ensure an appropriate quality of development.

144 15 Existing windows, doors, shutters and threshing barn doors shall be retained, repaired and fixed back where necessary and still capable of use unless otherwise agreed in writing by the Local Planning Authority.

In order to protect the original fabric of the building and the character and appearance of the Conservation Area.

16 The windows shall consist of timber frames with timber opening casements. The glazing pattern, the thickness and profile of the frame and glazing bars and the reveal depth shall match those of the existing windows in the property and the windows shall be finished in gloss paint.

In order to ensure an appropriate quality of development.

17 Glazing to the dove cote shall be set back behind the existing stone mullions unless otherwise agreed in writing with the Local Planning Authority. Details of which shall have been submitted to and approved in writing by the Local Planning Authority.

In order to ensure an appropriate quality of development.

18 All internal and external doors shall be retained unless otherwise agreed in writing by the Local Planning Authority.

In order to protect the character of the original building.

19 Details of all new joinery and timber structural elements and/or the repair, alteration or replacement of existing timber elements (including roof and floor timbers, partitions, stairs, balustrades, screens, wainscoting) shall be approved in writing by the Local Planning Authority before the development commences. Thereafter, the development shall be carried out in accordance with the approved plans.

In order to protect the character of the original building.

20 Details of the new internal floor structure and its abutment with the existing building structure shall be approved in writing before the development commences.

In order to ensure an appropriate quality of development.

21 Details of the location, specification and appearance of all new services to the building (including meter boxes, outlets and inlets for gas, electricity, telephones, security systems, cabling, trunking, soil and vent stacks, fresh and foul water supply and runs, heating, air conditioning, ventilation, extract and odour control equipment, pipe runs and internal and external ducting) shall be approved in writing by the Local Planning Authority before the development commences.

In order to ensure an appropriate quality of development.

145

22 Before the development commences, details of installations and alterations arising from the requirements of fire protection, means of escape, acoustic attenuation and insulation, natural and mechanical ventilation, disabled access and the provision of natural and artificial lighting shall have been approved in writing by the Local Planning Authority.

In order to ensure an appropriate quality of development.

23 Details of the design and appearance of boundary walls, gateways, steps and paths, hardstandings and other elements of the hard landscaping design shall be approved in writing by the Local Planning Authority before the development commences. The development shall then be carried out in accordance with the approved details.

In order to ensure an appropriate quality of development.

24 The development shall not be occupied unless the block work chicken sheds located to the rear of the barn have been removed and the land set out as amenity/garden space.

In the interests of the amenities of the locality.

25 The glazed door of bedroom 3 and the third floor dove cote on the east elevation of the Barn facing the farmhouse and the first floor bathroom window on the south elevation of the barn shall be glazed with obscure glass to a minimum privacy standard of Level 4 Obscurity and shall not at any time be glazed with clear glass without the prior written agreement of the Local Planning Authority.

In the interests of the amenities of occupiers of adjoining property.

Attention is drawn to the following justifications:

H10 - Development in Housing Areas H14 - Conditions on Development in Housing Areas BE15 - Areas and Buildings of Special Architectural and Historic Interest BE17 - Design & Materials in Areas of Special Character or Historic Interest BE18 - Development in Areas of Special Character GE9 - Re-use and Adaptation of Rural Buildings

and to all relevant material considerations, including Supplementary Planning Guidance.

This informative is intended as a summary of the reasons for grant of planning permission. For further detail on the decision please see the

146 application report by contacting the Planning Records section on 2734220 or by visiting Sheffield City Council’s website at www.sheffield.gov.uk/your- city-council/council-meetings/planning-boards

Attention is drawn to the following directives:

Site Location

For report please see 09/02398/FUL

147

Case Number 09/02398/FUL

Application Type A Full Planning Application

Proposal Conversion of barn and outbuilding to form dwellinghouse with 3 detached garages and 3 car ports

Location Eckington Hall Farm South Street Mosborough Sheffield S20 5DF

Date Received 31/07/2009

Team CITY CENTRE AND EAST

Applicant/Agent J C Adams Arch Services Ltd

Recommendation Grant Conditionally

Subject to:

1 The development shall be begun not later than the expiration of three years from the date of this decision.

In order to comply with the requirements of the Town and Country Planning Act.

In order to define the permission.

3 The Barn shall not be used unless the car parking accommodation for the farmhouse and barn as shown on the approved plans has been provided in

148 accordance with those plans and thereafter such car parking accommodation shall be retained for the sole purpose intended.

In the interests of traffic safety and the amenities of the locality.

4 Before any work on site is commenced, a comprehensive and detailed hard and soft landscape scheme for the site shall have been submitted to and approved by the Local Planning Authority. The landscape works shall be implemented prior to the development being brought into use or within an alternative timescale to be first agreed in writing with the Local Planning Authority. Thereafter the landscaped areas shall be retained and shall not be used for any other purpose without the prior consent of the Local Planning Authority. They shall be cultivated and maintained for a period of 5 years from the date of implementation and any plant failures within that five year period shall be replaced.

In the interests of the amenities of the locality.

5 Before the development is commenced samples of all proposed external materials and finishes, including windows, shall be submitted to and approved in writing by the Local Planning Authority. Thereafter, the development shall be carried out in accordance with the approved details.

In order to ensure an appropriate quality of development.

6 Large scale details, including materials and finishes, at a minimum of 1:20 of the items listed below shall be approved in writing by the Local Planning Authority before the commencement of development:

(a) Windows (b) Window reveals (c) Joinery (d) Doors (e) Eaves and verges (f) External wall construction (g) Stone work (h) Roof lights (i) Ventilators

Thereafter, the works shall be carried out in accordance with the approved details.

In order to ensure an appropriate quality of development.

7 Heads and cills shall match in size, style, construction and materials those of the existing building.

In order to ensure the protection of the original fabric of the Listed Building

149 8 Repairs and new areas of infill masonry shall match the existing surrounding masonry in bonding, colour, size, shape and texture and in the colour and finished treatment of mortar joints.

In order to ensure an appropriate quality of development.

9 Details and specifications of the following items shall be submitted to and approved in writing by the Local Planning Authority before the commencement of development:

(a) Roof materials (b) Ridge (c) Valleys (d) Eaves (e) Verges (f) Rainwater goods

Thereafter, the development shall be carried out in accordance with the approved details.

In order to ensure an appropriate quality of development.

10 The roof shall be retained in natural stone slates and natural slates with original materials re-used as far as practicable. Any new slates shall match the size, colour and coursing of existing natural slates.

In order to ensure an appropriate quality of development.

11 Rooflights shall be conservation style whereby no part of the rooflight shall project above the surface of the roofing slates unless otherwise agreed in writing by the Local Planning Authority.

In order to ensure an appropriate quality of development.

12 All the rainwater gutters shall be timber painted black and all downpipes and external plumbing shall be of cast iron or cast aluminium construction and painted black unless otherwise agreed in writing by the Local Planning Authority. Gutters shall be fixed by means of hangers and brackets and no fascia boards shall be used.

In order to ensure an appropriate quality of development.

13 Existing windows, doors, shutters and threshing barn doors shall be retained, repaired and fixed back where necessary and still capable of use unless otherwise agreed in writing by the Local Planning Authority.

In order to protect the original fabric of the building and the character and appearance of the Conservation Area.

150 14 The windows shall consist of timber frames with timber opening casements. The glazing pattern, the thickness and profile of the frame and glazing bars and the reveal depth shall match those of the existing windows in the property and the windows shall be finished in gloss paint.

In order to comply with the requirements of the Town and Country Planning Act.

15 Glazing to the dove cote shall be set back behind the existing stone mullions unless otherwise agreed in writing with the Local Planning Authority. Details of which shall have been submitted to and approved in writing by the Local Planning Authority.

In order to ensure an appropriate quality of development.

16 Details of the location, specification and appearance of all new services to the building (including meter boxes, outlets and inlets for gas, electricity, telephones, security systems, cabling, trunking, soil and vent stacks, fresh and foul water supply and runs, heating, air conditioning, ventilation, extract and odour control equipment, pipe runs and internal and external ducting) shall be approved in writing by the Local Planning Authority before the development commences.

In order to ensure an appropriate quality of development.

17 Before the development commences, details of installations and alterations arising from the requirements of fire protection, means of escape, acoustic attenuation and insulation, natural and mechanical ventilation, disabled access and the provision of natural and artificial lighting shall have been approved in writing by the Local Planning Authority.

In order to ensure an appropriate quality of development.

18 Prior to the commencement of development details of the design and appearance of boundary walls/treatments, gateways, steps and paths, hardstandings and other elements of the hard landscaping design shall be approved in writing by the Local Planning Authority before the development commences. The development shall then be carried out in accordance with the approved details.

In order to ensure an appropriate quality of development.

19 The development shall not be occupied unless the block work chicken sheds located to the rear of the barn have been removed and the land set out as amenity/garden space.

In the interests of the amenities of the locality.

20 The extent of the domestic curtilage of the barn conversion herby permitted shall be in complete accordance with the red line application site plan shown

151 on DWG No. CR/09/02B dated the 19th October. No domestic activities including domestic storage associated with the barn shall take place outside of defined redline boundary and no extension, variation or alteration to the domestic curtilage shall take place without the prior written agreement of the Local Planning Authority.

In the interest of the visual amenities of the greenbelt.

21 Notwithstanding the provisions of the Town and Country Planning (General Permitted Development) (Amendment) (No.2) (England) Order 2008, Part 1 (Classes A to H inclusive), Part 2 (Class A), or any Order revoking or re- enacting that Order, no extensions, porches, garages, ancillary curtilage buildings, swimming pools, enclosures, fences, walls or alterations which materially affect the external appearance of the barn shall be constructed without prior planning permission being obtained from the Local Planning Authority.

To ensure that the traditional architectural character of the is retained and there is no visual intrusion which would be detrimental to the amenities of the locality.

22 The glazed door of bedroom 3 and the third floor dove cote on the east elevation of the Barn facing the farmhouse and the first floor bathroom window on the south elevation of the barn shall be glazed with obscure glass to a minimum privacy standard of Level 4 Obscurity and shall not at any time be glazed with clear glass without the prior written agreement of the Local Planning Authority.

In the interests of the amenities of occupiers of adjoining property.

23 No development work, including ground clearance and demolition work shall take place unless and until the developer, their agent or their successor in title has secured the implementation of a programme of archaeological work in accordance with a written scheme of investigation that has been submitted to and approved in writing by the Local Planning Authority.

To ensure that any archaeological remains present, whether standing or buried, are preserved - either by being left in situ or recorded and removed in accordance with an agreed method, before they are damaged or destroyed.

24 Before any work on site is begun, including site clearance/preparation works, a further bat survey shall have been undertaken between May and August by a suitably qualified person(s) whose credentials shall first be approved in writing by the Local Planning Authority. The objectives of the survey shall be:

a) to ascertain whether the barn is used by protected species as a living, breeding, roosting or hibernating habitat;

152 b) to provide a schedule of measures to preserve or enhance any identified habitat/or potential habitat of a protected species and shall include details of how such mitigation measures shall be carried out;

the survey shall be submitted to and approved in writing by the Local Planning Authority before any work, including site preparation works, on site is commenced and any approved measures shall be carried out in accordance with the approved schedule.

In order to ensure that no harmful effects are caused to the interests of nature conservation in the locality as a result of the proposed development, in accordance with Policy GE11 of the Sheffield Unitary Development Plan and National Planning Guidance as set out in Planning Policy Guidance Note 9 (Nature Conservation).

25 The developments shall be carried out in accordance with the best practice measures identified at paragraph 4.8 of the submitted Bat Scoping Report dated January 2009 prepared by BBB Ecology Consultants unless otherwise agreed in writing with the Local Planning Authority.

Attention is drawn to the following justifications:

and to all relevant material considerations, including Supplementary Planning Guidance.

153 Attention is drawn to the following directives:

1. Before the development is commenced, a dilapidation survey of the highways adjoining the site shall be jointly undertaken with the Council and the results of which agreed in writing with the Local Planning Authority. Any deterioration in the condition of the highway attributable to the construction works shall be rectified in accordance with a scheme of work to be agreed with the Local Planning Authority.

2. From the 6th April 2008, the Town and Country Planning (Fees for Applications and Deemed Applications) Regulations 2008 require that all requests for confirmation of compliance with planning conditions require a fee payable to the Local Planning Authority. An application to the Local Planning Authority will be required using the new national standard application forms. Printable forms can be found at www.sheffield.gov.uk/planning or apply online at www.planningportal.gov.uk. The charge for this type of application is £85 or £25 if it relates to a condition on a householder application for development.

You should apply for a consent to: -

Highways Adoption Group Development Services Sheffield City Council Howden House, 1 Union Street Sheffield S1 2SH

For the attention of Mr S Turner Tel: (0114) 27 34383

4. The applicant is advised that the Local Planning Authority has reason to believe that the application site may contain species and/or habitats protected by law. Separate controls therefore apply, regardless of this planning approval. Please contact Natural England Telephone Number 0113 230 3750 for more information in this respect.

5. In the event that nesting birds are found to be present, work in that area shall be delayed until it is confirmed that the nesting birds inclusive of fledglings have naturally dispersed from the nest. Nesting birds within the period of March to September area protected by British Wildlife Legislation. It is an offence to disturb nesting birds during this period, or before young birds have fledged the nest.

154

Site Location

Joint report for 09/02399/LBC and 09/02398/FUL

LOCATION AND PROPOSAL

The application relates to the conversion of a grade II listed Winnowing barn into a dwelling house and alterations to a detached store building to form a car port and garaging for the proposed dwelling and the adjoining farm house.

The barn is an L shaped two storey structure constructed of stone with a Welsh slate pitched roof with stone slate eaves. The barn has been extended following its original construction by adding two single storey extensions, which are brick built and are attached to the north and east gable ends of the barn forming a small pig sty and store.

The site comprises of the original two storey farm house located at right angles to South Street with a small garden area to the south. Beyond the main house is the

155 17th century barn, the subject of this application, which defines in part the southern boundary of the site. To the west of the barn is a collection of single storey farm buildings which comprise of predominately of modern block built flat roofed structures. The northern boundary is defined by a stone wall and a pitched roofed former hay store.

The site is located on the southern edge of Mosborough close to the Local Authority boundary with North East Derbyshire. The site is in an allocated Housing Area and an Area of Special Character as defined in the adopted Sheffield Unitary Development Plan. The land to the south and west of the site is Greenbelt and an Area of High Landscape value.

RELEVANT PLANNING HISTORY

00/01676/LBC - Conversion of barns for use as dwellinghouse and triple garage – Withdrawn.

00/01674/FUL - Conversion of barns for use as dwelling house and triple garage – Withdrawn.

Planning permission has also recently been granted for a detached bungalow on land to the south of the site which is also in the applicants ownership.

09/00844/FUL -Erection of dwellinghouse (as amended plans received 30/04/09) – Granted Conditionally

SUMMARY OF REPRESENTATIONS

1 letter of representation has been received from the Sheffield & Rotherham Wildlife Trust the issues raised are summarised as follows: The site is located adjacent to an area of greenbelt and directly adjacent to an area of high landscape value and any development should consider the impact on these areas, with particularly regard to the character of the area and any impact on plants or wildlife. Due to the type of building it is recommended that a bat survey is undertaken and if bats are found English Nature should be contacted.

The following comments have been received from Bon Hawkins (Council for the Protection Rural England and delegate member of the Conservation Advisory Group (CAG)). The CAG group give great weight to Bob Hawkins advice as he was the English Heritage Inspector who initially recommended listing the building. However CAG did request a site visit before providing further comment, unfortunately this has not been possible prior to reporting this application to area board due to the cancellation of the October CAG meeting.

Context

This barn forms one of a series of substantial barns and multi purpose farm buildings in the Moss Valley between Eckington at the West end of the valley and Lightwood / Hazelbarrow at the East end. Most are listed, the earliest being the cruck barn on Church Street, Eckington – dendro dated to 1499. Most of the

156 buildings form part of farmsteads within the valley. Within Derbyshire, the farmsteads are located within the extensive Moss Valley Conservation Area. The Sheffield portion of the valley including Mosborough Village and the hamlet of Plumbley has not been designated.

The Hall Farm buildings are prominently sited on the high ground in the South Street area, and are highly visible from the valley floor and from the Southern edge of the valley from a considerable distance as far as the Marsh Lane area. (As is much of the new housing development in W. Mosbrough).

Historic Fabric

The building is relatively unaltered, although minor additions and external modifications have been made. Externally, its masonry, walling and detailing and its roof covering – Welsh slate with stone slate eaves courses – are typical of the strong local vernacular, architectural character of the North Derbyshire area.

Internally, it retains a substantially intact mid-late C17 roof structure with tie beam trusses with raking struts, two tiers of purlins and some straight wind braces. There are some lime-ash floors, and the threshing door opening to west side of the barn retains boarded half hung doors.

Proposed Conversion

The barn is presently in poor condition and appears not fully used, its present use is mainly for storage purposes. Change of use is presumably acceptable in policy terms but residential conversion in such a sensitive location requires a high quality, light touch design (in my view!)

The present scheme seems to be a re-hash of the 2000 drawings on the file, which seem quite inadequate for assessing the impact of the conversion proposals upon the historic fabric. There seems almost no correlation between the content of the standing building appraisal and the application drawings. The representation of the roof carpentry bears no relation to the photographic evidence, nor is it clear how the proposed floor to ceiling heights can be achieved within the building without the loss of much of the present interior and the roof structure.

New openings have been kept to a minimum but there is no information on external detailing including new joinery, stonework repair, roofing materials, guttering, soil and vent pipes etc.

My hope would be for a much more carefully detailed proposal, and careful consideration of the setting of this building given its very prominent siting. It would be a good one to visit to ensure CAG’s comments can be comprehensive and consistent. The present scheme has insufficient detail on which to base a recommendation.

PLANNING ASSESSMENT

Policy Issues (Land use)

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Policy H10 Development in Housing Areas identifies housing as a preferred use in the policy area. Therefore subject to compliance with the provisions of other UDP and Core Strategy policies the proposed use of the building as a dwelling house is considered acceptable in principle.

Design, layout and affect on the appearance of the listed building.

The building is currently in a state of disrepair with a number of roof slates missing. This has allowed water to penetrate the building fabric, which has caused the existing hay loft roof to collapse in part. However a number of the buildings original features remain intact, most notably the timber purlin and truss roof structure, threshing doors and a number of original openings.

Policy GE9 Reuse and Adaptation of Rural Buildings permits development provided the building is capable of conversion without substantial alteration, external alteration, extension or structural rebuilding and in the case of buildings of local interest the conversion would not harm the buildings historic fabric, character, essential features or setting. The applicant has prepared a structural report whish has identified the building is in a reasonable condition for its age and is suitable for conversion without need for major rebuild or structural work.

The building is grade II listed and falls within an Area of Special Character, as such Policies BE15 Areas and Buildings of Special Architectural or Historic Interest, BE17 Design and Materials in Area of Special Architectural or Historic Interest and Policy BE18 Development in Areas of Special Character are relevant and seek to ensure that any development preserves and enhances listed buildings which contribute to Sheffield’s heritage and traditional materials and a sensitive and flexible approach to layout is pursued. The original plans have been amended to ensure that the buildings original features are retained and incorporated into the design.

The proposal seeks permission to convert the barn into a four bed dwelling house. The bedrooms are located in the south wing of the barn at ground and first floor level. Bedroom one and two are accommodated within the original room dimensions of the ground floor animal sheds with bedroom three located in the former first floor store. A new fourth bedroom and landing area is formed at first floor level with stair access from the ground floor. The third floor bird cote has also been retained and will be used for storage purposes only. New internal door openings and access passages have been kept to a minimum to enable suitable access between rooms at ground and first floor level minimising the impact on of the conversion on the fabric of the building.

The timber roof structure has been retained and will be repaired where necessary. Floor levels have been positioned as closely as possible to the original levels to minimise any impact on the roof structure.

The west wing of the barn accommodates the original open threshing barn and full height through access doors. This area has been left largely open plan reflecting the character of the original barn, with the exception of a raised study area

158 accessed via dedicated set of stairs taken from the living area. The study is formed at a height that reflects the former hay loft within the barn. The proposed internal alterations have been designed flexibly to minimise any impact on the historic character of the building retaining room sizes and the historic roof structure. The internal alterations are therefore considered to comply with policies GE9, BE15, BE17 and BE18.

Externally the barn has a number of existing openings which afford natural lighting into and outlook from a number of the proposed habitable rooms. The double height barn door opening in the east elevation with stone arch with timber lintel is retained. A steel beam will be incorporated internally if the arch and lintel require structural support details of which will be secure by condition. The barn door opening will be fully glazed and the timber threshing doors re-hung and pinned back internally, as they can not be accommodated externally due to the position of the south wing of the barn.

More modern timber sliding barn doors are in place in the rear elevation of the barn. The barn opening will be fully glazed and the timber doors will be pinned back externally. A small additional window opening will be installed in the west elevation to light the ground floor kitchen area, the dimensions and detail of which match the fenestration of the original building.

The south elevation of the building which fronts the public right of way is punctuated by series of small ventilation slots which will be glazed and retained. There is also a first floor opening in the elevation that has been blocked up. This opening will be reinstated, retaining its stone casement in order to provide light to a first floor bathroom. Two small conservation roof lights are also proposed in the southern roof plane, which provide light to the first floor landing.

The north elevation which overlooks the yard area includes the majority of the buildings existing window and door openings which provided access and light to the ground floor animal sheds and first floor the hay loft. The existing doors at ground floor will be retained, refurbished where necessary and pinned back externally. A secondary internally glazed door will be provided in each of the ground floor doors to afford natural light into and outlook from the rooms. The first floor hay loft access will be glazed and a replacement timber hatch installed and pinned back externally. A new opening is proposed at first floor level which will provide light to bedroom three. The new window matches the existing fenestration in both size and detailing and is not considered to affect the barns robust simple character and appearance. A small conservation roof light is incorporated in the north roof plane to provide additional light to bedroom four.

The single storey brick built pigsty building will be refurbished, with doors repaired or replaced like for like where necessary. The roof of the open sided lean to building attached to the gable end of the east wing of the barn will be altered to increase its pitch to reflect the main barn.

The stone work in the west gable end of the barn facing the farmhouse has been repaired previously using cement mortar. The cement mortar will be stripped from the gable and replaced with lime mortar subject the Local Planning Authority

159 approval. The existing first floor access door within the gable will be retained, with a secondary glazed screen door formed internally in order to provide light to bedroom 3. The bird cote opening at third floor level will also be glazed to provide light to the proposed storage area, retaining the stone mullion detailing.

Existing joinery detailing will be retained and replicated where necessary incorporating the existing nine pane glazing pattern with timber casements. Guttering will be timber with cast iron down pipes painted black.

The existing hay store/storage building forms part of the northern boundary of the site. The building has been altered and extended in places and is currently in a state of disrepair. The proposal will remove a block built canopy/porch and reinstate the original timber doors which have previously been removed or altered to accommodate modern farm machinery. The open sided hay store will be refurbished to form a three bay car port with minimal alteration required.

The proposed internal and external alterations to the listed building are consider to have been sensitively designed retaining the building’s original features of interest. The internal layout has been developed to retain original room dimensions and the timber truss roof structure has been incorporated into the design. The proposals are therefore considered to comply with policy H14, GE9, BE15, BE17 and BE18 of the UDP.

Impact on the Green Belt

Policy CS 71 Protecting the Green Belt of the Core Strategy and UDP policy GE4 Development and The Green Belt Environment seeks to safeguard open land around built up areas by maintaining the green belt and seeks to ensure that the scale and character of any development which would be conspicuous from the green belt would be in keeping with the area and wherever possible conserve and enhance the landscape and natural environment.

The barn itself is located in the housing area. The green belt boundary is located approximately 30 metres to the west of the site beyond a series of small block work chicken sheds. It proposed to remove three of the former chicken sheds and associated hardstanding in order to form the domestic curtilage of the property. The existing chicken sheds owing to their design and construction are considered to detrimentally affect the appearance of the listed barn and green belt boundary. There removal of the sheds and formation of a domestic garden area is considered to improve the interface of the housing area with the adjoining green belt and area of high landscape value. Details of the proposed boundary treatment of the garden area will be secured by planning condition and a condition has also been imposed preventing the use of any area outside of the redline boundary for domestic storage. Therefore the green belt is considered to be unaffected by these proposal and the application is considered to comply with policy CS71 and GE4.

Amenity Issues

Policy H14 seeks to ensure that new development does not have a detrimental impact on the amenities of adjoining properties. The proposed conversion is not

160 considered to raise any significant amenity issues. However owing to the proximity of the barn to the existing farm house the first floor access door to the former hay loft, which is to be converted to a bedroom and the second floor former dove cote will be conditioned to be obscure glazed, to prevent any overlooking. The first floor reinstated window on the south elevation which provides light to an en suite bathroom will also be obscured to ensure an appropriate relationship to the approved bungalow on the adjoining site. The proposed roof lights on the south and north roof planes are located at high level and therefore do not result in any overlooking.

Appropriate outlook and natural lighting is provided to each of the proposed rooms. Approximately 200 sq metres of private amenity space is provided to the rear of the barn as a result of the clearance of the former block work outbuildings. Active use of the buildings within the curtilage of the site for farming purposes has ceased. Therefore the proposed residential accommodation is not considered to be affected by any noise or disturbance associated with the previous farming use. In light of the above the proposal is considered to protect the amenity of adjoining properties and provide suitable outlook and private amenity space for the proposed barn in accordance with policy H14.

Highways Issues

Access to site is taken from South Street through the yard between the existing farmhouse and the proposed garage/carport. The access is of adequate width to allow two vehicles to pass each other. Three car parking spaces have been provided and three retained for the farm house as a result of the refurbishment of farm store building. Although the level of parking proposed exceeds current guidelines, it is considered in this case owing to the narrow width of the South Street and restricted visibility from the site entrance it is desirable to afford vehicle parking within the site rather than on street.

Ecology Issues

Policy GE11 Nature Conservation and Development seeks to ensure that developments respect and promote nature conservation and include measures to reduce potentially harmful impacts. A survey has been undertaken to in order to establish if bats are using the building for nesting purposes. The survey has identified that no evidence of bat activity was present either inside or outside of the building. However several areas were identified that bats could either roost or use as access points into the building such as missing roof tiles. Therefore it is recommended that further bat surveys are carried out during the optimal surveying period of May to August before development is commenced and bat roosting points are installed in the building such as bat access slates. Subject to these measures being secured by planning condition the proposal is considered to comply with policy GE11.

Archaeology Issues.

161 The applicant archaeological assessment has been assessed by South Yorkshire Archaeological Service and subject to the imposition of conditions the development is considered acceptable.

RESPONSE TO REPRESENTATIONS

All matters are covered in the main body of the report,

SUMMARY AND RECOMMENDATION

The existing building is in a poor state of repair affected by water damage as a result of slipped roof tiles which has contributed to partial collapse of the first floor. The proposed alterations seek to bring the barn back into use as a residential dwelling house. The alterations are considered sympathetic to the character and appearance of the listed building, retaining the building’s original character features including the timber truss roof structure, with minimal new openings required to accommodate residential conversion. The block work out houses located to the rear of the barn, which are considered to detrimentally affect the building’s setting and appearance are to be removed and a private garden area formed for the barn.

The farm use of the site has ceased and therefore future occupants are not considered to be detrimentally affected by the previous use of the site.

The applicant has submitted a bat survey which has identified that the building has not and does not currently provide habitat for bats. However there are areas that would potentially be attractive for bats roost and therefore it is recommend that mitigation measures are incorporated in the building, which will be secured by planning condition light of the above the proposed alterations to the building are considered to comply with policies H10, H14, GE4, GE9, GE11, BE15, BE17 and BE18 of the UDP and policy CS71 of the Core Strategy.

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Case Number 09/02375/FUL

Application Type A Full Planning Application

Proposal Siting of temporary market stalls, storage and associated equipment

Location Paved Area Opposite 123 Norfolk Street Sheffield S1 2JB

Date Received 29/07/2009

Team CITY CENTRE AND EAST

Applicant/Agent Sheffield Christkind Market

Recommendation Grant Conditionally

Subject to:

1 The use of the land for the above purposes shall have ceased on or before the 31st December 2013.

In order to comply with the requirements of the Town and Country Planning Act.

2 Unless otherwise agreed in writing by the Local Planning Authority, set up, trading and removal of the market shall only take place between 1st November and 31st December during any calendar year.

In the interests of the amenities of the locality.

3 Unless otherwise agreed in writing the market shall only operate between the hours of 11:00 to 20:00 Sunday to Friday and 11:00 to 21:00 on Saturdays.

In the interests of the amenities of the locality and occupiers of adjoining property.

4 Notwithstanding the hereby approved plans the Christmas Tree Forest shall not extend onto the arched path within the Peace Gardens.

In the interests of the amenities of the locality.

5 Any alternative layouts to that approved within plan dated 1 October 2009 shall all have first gained the written approval of the Local Planning Authority.

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In the interests of the amenities of the locality.

6 At all times, a minimum width of 4 metres shall be maintained between the individual stalls and the bus shelters on Pinstone Street and a minimum width of 3 metres between stalls in all other locations. There shall be no storage of goods of any kind in these areas.

In the interests of pedestrian safety.

Attention is drawn to the following justifications:

PPS6 - Planning for Town Centres S3 - Development in the Central Shopping Core BE11 - Public Spaces BE16 - Development in Conservation Areas

and to all relevant material considerations, including Supplementary Planning Guidance.

164 Site Location

LOCATION AND PROPOSAL

This application relates to the temporary use of an area of land as a Christmas Market. The applicant is seeking to use the space, which for this year relates to a section of land fronting St Paul’s Parade and a section of Pinstone Street, but could also include part of the Peace Gardens and Millennium Square during future events, from early November to late December each year for five years.

The applicant proposes to operate the market between the hours of 11:00 to 20:00 Sunday to Friday and 11:00 to 21:00 on Saturdays. The market will provide a variety of offerings including shops, food and stage entertainment.

The site is partly within an Open Space Area / Public Space and partly within the Central Shopping Area as defined by the Sheffield Unitary Development Plan. The site is also set entirely within the City Centre Conservation Area.

RELEVANT PLANNING HISTORY

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Consent was granted in April 2007 to use part of the application site for a temporary market under planning reference 06/04707/RG3 allowing 5 set up days and 20 trading days. This application formed part of a wider consent for the siting of temporary specialist outdoor markets within the city centre and also included sections of land at Barkers Pool and Fargate.

SUMMARY OF REPRESENTATIONS

There have been no representations in respect of this application.

PLANNING ASSESSMENT

Land Use

Planning Policy Statement 6: Planning for Town Centres (PPS6) states that the planning system has a key role in facilitating and promoting sustainable and inclusive patterns of development, including the creation of vital and viable town centres.

PPS6 states that street markets can make a valuable contribution to local choice and diversity in shopping as well as the vitality of town centres and advises that, as an integral part of the vision for their town centres, local authorities should seek to retain and enhance existing markets and, where appropriate, re-introduce or create new ones. The principle of the proposal is therefore considered to be supported by PPS6.

The application site lies partly within the Central Shopping Area as defined in the adopted Sheffield Unitary Development Plan (UDP). Open air markets fall within Use Class A1 (Retail) and Policy S3 of the UDP (Development in the Central Shopping Area) describes retail as a preferred use in such areas. The principle of the development is therefore considered to be acceptable in the Central Shopping Area.

The application site also partly lies in an Open Space Area / Public Space Area. Policy BE11 of the UDP (Public Spaces) describes how public spaces will be protected and enhanced where they make an important contribution to the character or appearance of an area or provide places for people to walk or relax. It advises that public spaces are particularly important in the city centre because it is so heavily built up and suggests that many public spaces offer opportunities for sitting outside, entertainment and market trading.

The key issue in terms of the impact on this public space / open space is considered to be the balance between adding vitality and variety to the city centre retailing experience through the provision of this specialist outdoor Christmas market, and allowing pedestrians to enjoy these spaces comfortably. It is felt that given the time of year when no/limited external seating areas will be in place/utilised and the limited number of trading days in the city centre, this balance could be achieved and the principle of the temporary use of the public space / open

166 space as an outdoor market is considered acceptable subject to other relevant considerations.

Impact on the Conservation Area

The site also lies within the City Centre Conservation Area. Policy BE16 (Development in Conservation Areas) requires new development to preserve or enhance the character or appearance of the conservation area, however, this applies largely to built form or permanent changes of use. The markets have no lasting effect on the character or appearance of the conservation area and their short term impact is considered to be limited provided they are well managed.

The proposal is therefore acceptable in respect of Policy BE16.

Layout / Access

The applicant has amended the proposed layout following discussions with the Local Planning Authority (LPA). The revised layout is considered to create the correct balance to allow suitable ease of movement for members of the public to manoeuvre through the space, whilst accommodating the market.

The applicant may wish to amend the layout in future years if the market expands. It is proposed to attach a condition to this consent should Members be minded to approve the application in order for any future revised layout to have gained the approval of the LPA, which will ensure suitable access is maintained.

It is noted that several existing benches will be encompassed within the proposed market stalls due to the layout. The applicant will be providing alternative temporary seating to make up for this loss.

Waste Management

Traders are responsible for bagging their rubbish and the City Council’s Streetforce Division are contracted to tidy the market area to ensure there is no accumulation of litter.

SUMMARY AND RECOMMENDATION

This specialist outdoor market offers increased choice to customers and will bring a particular animation and liveliness to the city centre not witnessed on non-market days, which will be particularly welcomed during the Christmas period. The footfall counter located on Fargate for example registered an additional 100,000 people in the city centre over the duration of the Continental Market (November 2006) and the events are considered to raise the profile of Sheffield.

The principle of the temporary land use in this area is considered to be acceptable in respect of both national and local policy.

The markets have no lasting physical impact on the city centre and therefore have no negative effect on the character of the conservation area.

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The layout of the market will to ensure ease of movement is maintained for users of the space and members of the general public.

It is therefore recommended that Members grant consent subject to the proposed conditions.

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Case Number 09/02373/FUL

Application Type A Full Planning Application

Proposal Retention of use of basement as self-contained living accommodation

Location 10 Hutcliffe Wood Road Sheffield S8 0EX

Date Received 29/07/2009

Team SOUTH

Applicant/Agent Mr David Savage

Recommendation Refuse with Enforcement Action

Subject to:

1 The Local Planning Authority consider that the basement flat does not provide satisfactory living conditions for residents by virtue of inadequate natural light, outlook, ventilation and external amenity provision. Therefore, such development is contrary to Policies H5 and S10 of the Unitary Development Plan.

2 No information on noise levels within the basement flat or noise attenuation measures have been submitted with the application. In absence of such information the Local Planning Authority must assume that the basement flat could suffer unacceptable noise disturbance from the ground floor bistro. As such the development is deemed contrary to Policies H5 and S10 of the Unitary Development Plan.

Attention is drawn to the following directives:

1. The Director of Legal Services has been authorised to take all necessary steps, including enforcement action and the institution of legal proceedings, if necessary, to secure the cessation of the use. The Local Planning Authority will be writing separately on this matter.

169 Site Location

LOCATION AND PROPOSAL

The application relates to a mid-terrace brick built and partially rendered building used as a bistro at ground floor level with living accommodation on the upper floors. There is an external seating area associated with the bistro to the front of the building adjacent to Hutcliffe Wood Road.

The street scene consists of various shop units some with living accommodation on the upper floors and a block of apartments to the rear. There is a concrete yard to the rear of the main building used for bin storage and as a clothes drying area. The rear of the application site is accessed via a driveway located between Nos. 12 and 14 Hutcliffe Wood Road. This access drive is called Hutcliffe Wood View and also provides access to the apartment block, Devonshire Court, to the rear of the site.

170 Planning permission is sought for the retention of a two-bedroomed flat in the basement of 10 Hutcliffe Wood Road including internal alterations and the installation of one single and one double opening glazed door on the rear.

RELEVANT PLANNING HISTORY

08/00795/CHU: Use of ground floor as a bistro (Class A3) and provision of external stairway to rear. GRANTED CONDITIONALLY 03.06.2008.

08/05016/FUL: Retention of level seating area and access ramp to front of bistro. GRANTED 23.12.2008.

SUMMARY OF REPRESENTATIONS

There has been one representation regarding this application expressing concerns about fire safety especially as people are already living in the basement flat.

PLANNING ASSESSMENT

Land Use Policy

The application site is located in a Local Shopping Centre where shops (A1) are the preferred use in line with UDP Policy S7 ‘Development in District and Local Shopping Areas’. Housing (C3) is an acceptable use in this area and given that the application property is located in the basement and accessed from the rear, it does not interfere with the ground floor use of the building or the active street frontage. Therefore, in principle the use of the basement as a residential unit complies with UDP Policy S7.

Additionally, as the development does not involve the loss of an A1 unit on the ground floor it will not prejudice the dominance of this preferred use. In light of this the proposal does not conflict with UDP Policy S10 ‘Conditions on Development in Shopping Areas’ part a) which states that new development/change of use will be permitted provided it would ‘not lead to a concentration of uses which would prejudice the dominance of preferred uses in the Area or its principal role as a Shopping Centre’.

Living Conditions

The flat that forms the subject of this application is accessed from the rear of the building via one single and one double opening glazed door. The single glazed door provides access to the kitchen and the double opening glazed doors are to the lounge. These doors are the only natural light sources to the flat and face directly to the east. There is a bathroom and two bedrooms to the rear of the flat that have no windows or other external openings.

The need to provide satisfactory living conditions for flats is outlined in UDP Policy H5 ‘Flats, Bed-Sitters and Shared Housing’ and S10 ‘Conditions on Development in Shopping Areas’. The application site is located in Local Shopping Centre and as such the UDP Policies usually associated with residential developments in

171 Housing Areas do not apply. However, the principles of adequate light, privacy and security and suitable external amenity space are still applicable.

There is a concrete yard to the rear of the basement flat that houses numerous bins, a large garage structure and a washing line. This yard is relatively small and the only areas in which chairs could be placed to serve as an external sitting area are immediately adjacent to the bins. The size of the external space is not deemed sufficient for a two bedroomed flat (especially as it appears to be shared with the upper floor living accommodation). Furthermore, the space is poor quality and is not considered to enhance the standard of living of the occupants of the basement flat.

It is accepted that the lounge and kitchen areas of the flat have natural light sources. However, due to the deep profile of the lounge there is concern that the far end of the room will not receive sufficient natural light. Moreover, the two light sources to the lounge and kitchen are single aspect and face directly to the east. This means that they will only receive direct sunlight first thing in the morning. In light of the above, it is considered that the kitchen and lounge of the flat will be dark for much of the day and will rely extensively on artificial lighting which gives rise to an undesirable internal living environment.

Of greater concern are the two bedrooms to the rear of the flat. Neither bedroom has external window or door openings (aside from an escape hatch to the larger bedroom which opens on to the external seating area of the bistro above). These bedrooms do not have any natural light, outlook or ventilation. This creates dark, dank and completely unacceptable living conditions in both rooms which are not considered suitable for human habitation. As such the development conflicts with UDP Policies H5b) and S10b) which require satisfactory living conditions for occupants.

There are examples in the city of basement flats that have light wells to provide light, ventilation and limited outlook to bedrooms. In this instance, light wells cannot be provided to the bedrooms as they are directly below the external seating area and access ramp to the main entrance of the ground floor bistro.

Noise

No evidence has been submitted to suggest that noise attenuation measures to protect the basement flat from noise associated with the bistro above have been put in place. In the absence of such information it must be assumed that there are no noise attenuation measures and that the basement flat suffers from noise disturbance from the bistro.

The bistro use is limited to the hours of 08.00 to 19.00 Monday to Saturday and 09.00 to 18.00 on Sundays and Public Holidays. These hours restrict the use of the bistro late in the evenings. However, deliveries can occur from 07.00 until 23.00. In light of this and as the bistro is permitted to open seven days week it is considered that this could cause unacceptable noise disturbance to the basement flat which would further exacerbate the unsatisfactory internal living environment.

172 ENFORCEMENT

In light of the above, the currently occupied basement flat is not considered to provide satisfactory living accommodation for the occupants thereof.

Members are therefore requested to authorise the Director of Legal Services to take any necessary steps, including enforcement action and the institution of legal proceedings, to secure cessation of use of the basement flat as living accommodation.

SUMMARY AND RECOMMENDATION

The basement flat is not considered to provide acceptable living accommodation by virtue of the inadequate external amenity space; poor levels of natural light to the lounge; and complete lack of natural light, outlook and ventilation to the two bedrooms. Moreover, there is concern regarding the potential noise disturbance to the flat from the ground floor bistro use.

The basement flat is therefore contrary to UDP Policies H5 and S10 and this application for its retention is recommended for refusal with enforcement action to secure the cessation of use of the basement of the building as living accommodation.

Refuse with enforcement action

173

Case Number 09/02372/LBC

Application Type Listed Building Consent Application

Proposal Provision of external lighting to building, lighting to existing hanging signs and handrails to entrance

Location 87 Pinstone Street Sheffield S1 2HJ

Date Received 29/07/2009

Team CITY CENTRE AND EAST

Applicant/Agent Cliff Walsingham & Company

Recommendation Grant Conditionally

Subject to:

1 The development shall be begun not later than the expiration of three years from the date of this decision.

In order to comply with the requirements of the Planning (Listed Buildings and Conservation Areas) Regulations 1990.

2 The development must be carried out in complete accordance with plan reference numbers 11609-4.4-M & 11609-4.4-N unless otherwise authorised in writing by the Local Planning Authority.

In order to define the permission.

3 The means of illumination shall be static.

In the interests of traffic safety and the amenities of the locality.

4 The lighting shall only be switched on during store opening hours.

In the interests of the amenities of the locality.

5 Before development commences a sample of the proposed lamps (which shall be metal) and handrails shall have been submitted to and approved in writing by the Local Planning Authority and the development shall be carried out in accordance with these details thereafter.

In order to ensure an appropriate quality of development.

174 6 Before development commences plans at a scale of 1:10 of how the spotlights and handrails are to be fixed to the building shall have been submitted to and approved in writing by the Local Planning Authority and the development shall be carried out in accordance with these details thereafter.

In order to ensure an appropriate quality of development.

Attention is drawn to the following justifications:

BE16 - Development in Conservation Areas BE19 - Development affecting Listed Buildings S10 - Conditions on Development in Shopping Areas

and to all relevant material considerations, including Supplementary Planning Guidance.

175 Site Location

LOCATION AND PROPOSAL

The applicant is seeking planning permission to erect two cast iron handrails and a number of spotlights (19 in total) to the ground floor of 85-87 Pinstone Street, which is occupied by Costa Coffee.

The building to which the application relates, originally known as the Prudential Assurance Building, is Grade II Listed. Erected in 1886 by Alfred Waterhouse it is constructed in red brick with a granite plinth and terracotta dressing. Externally the building reaches four floors plus attic space.

The unit has two prime frontages and is adjoined by GT News on Pinstone Street and a clothes shop on St Paul’s Parade. The ground floor uses around the wider block are predominantly commercial with residential accommodation set on the upper floors, known as St Paul’s Chambers. The site is set within the Retail Core of the Central Shopping Area and the City Centre Conservation Area, as defined within the adopted Sheffield Unitary Development Plan (UDP).

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PLANNING HISTORY

Planning permission was granted in June 2008 to use the ground floor and basement of the building for Use Class A1/A3 purposes (Shops/Restaurant and Cafes) under planning reference 08/02280/CHU.

Planning permission was granted in September 2009 for the temporary use of part of the pavement outside the unit for external tables and chairs under planning reference 09/02371/CHU.

SUMMARY OF REPRESENTATIONS

There has been one letter of representation in respect of this application from a local resident stating the following:

- The proposed lighting will add to light pollution in the area and represents a huge waste of energy.

- ‘In the application, Costa mentions that the lights will help increase the shop’s profile as it has underperformed compared to other Costa shops, however, I fail to see how lighting the shop at night, when it is closed, can increase trade.’

- Given the lighting already in the area these lights will not be discernable.

- Could the shop utilise space on the advertising hoarding outside the premises to attract people into the unit.

- Support is expressed for the proposed handrails and the spotlights that will be placed on the existing signs.

PLANNING ASSESSMENT

Access

The building is accessed via three steps and although the provision of a ramp would have been preferable the applicant has sited viability and design/site constraints as to why this cannot be achieved. Although the constraints imposed by the listed status of the building are understood these discussions have not progressed beyond informal discussion.

The introduction of handrails is a welcome addition and will ease access problems for some mobility impaired patrons.

The Local Planning Authority had also requested that the applicant introduce a tactile surface onto the entrance steps. The applicant has stated that this will not be achievable at this time owing to viability reasons.

Design Implications

177 Policy BE16: Development in Conservation Areas within the UDP states that new development should preserve or enhance the character or appearance of the conservation area.

Policy BE19: Development Affecting Listed Buildings within the UDP states that proposals will be expected to preserve the character of the listed building.

The main reason the applicant wishes to light the building is to give it greater presence in its setting, as the unit has not been performing as would be expected.

The spotlights will be strategically positioned to illuminate the large feature windows and the existing signage on the ground floor of the building and are welcomed from a design perspective as they will increase the profile of this architecturally significant building.

The proposed handrails will be constructed in cast iron and the lighting units will be metal and powder coated black. These materials and finishes are considered to be of a suitably high quality on the listed building and in this conservation setting.

The proposal is therefore considered to be in compliance with Policies BE16 & BE19 within the Sheffield Unitary Development Plan.

Surrounding Amenity

Section b) within Policy S10: Conditions on Development in Shopping Areas within the UDP states that new development or change of use applications should not cause residents or visitors to suffer from unacceptable living conditions.

The closest residential accommodation is set on the first floor of the application building, known as St Paul’s Chambers. The only potential issue for residential amenity would come from light spillage into residential windows. In this respect the store is open between 07:00 hours and 23:00 hours on any day and the applicant has confirmed that the lights will be turned off outside of these hours. It is also noted that none of the lights will face towards these windows and there are already sources of light in the area.

In light of the above, the proposal will meet the requirements of the section b) within Policy S10 in respect of protecting surrounding amenity.

Highways

The lighting will be static and therefore gives rise to no highway concerns.

SUMMARY AND RECOMMENDATION

The introduction of handrails at the entrance will aid with mobility access into the unit and are welcomed.

178 The spotlighting will extenuate the special architectural features of this listed building and is supported. The materials and finishes proposed for the lighting and handrails are of a suitably high quality.

Given the direction of the lighting and the fact that it will only be utilised during opening hours it is not considered to have a detrimental impact on surrounding residential amenity.

The application is therefore recommended for conditional approval.

Case Number 09/02033/FUL

Application Type A Full Planning Application

Proposal Erection of a 1 x 3-storey building for use a managed workspace (Use Class B1) with community use (Use Class D1), including secure bin & recycling store and associated car park accommodation & landscaping and modification to the Phase 2 Business Centre to accommodate the access road

Location Land East Of Alison Centre And Rear Of Manor Community Childcare Centre Alison Crescent Sheffield

Date Received 02/07/2009

Team CITY CENTRE AND EAST

Applicant/Agent Architecture 00 Ltd

Recommendation Grant Conditionally

Subject to:

1 The development shall be begun not later than the expiration of three years from the date of this decision.

In order to comply with the requirements of the Town and Country Planning Act.

2 The development must be carried out in complete accordance with the following approved documents:

179 Plans (excluding the car park layout where show): 0088[PL]002, 0088[PL]003, 0088[PL]021, 0088[PL]020, 0088[PL]010, 0088[PL]011, 0088[PL]012, 0088[PL]013, 0088[PL]022, 0088[PL]023, 0088[PL]014, 0088[PL]030, 0088[PL]031, 0088[PL]032 and

Car parking layout plan 0088[PL]015 (received by e-mail dated 20th October 2009)

unless otherwise authorised in writing by the Local Planning Authority.

In order to define the permission.

3 Notwithstanding the approved plans, details, including samples, of all proposed external materials and finishes, including windows and block work colours, shall be submitted to and approved in writing by the Local Planning Authority before the development is commenced. Thereafter, the development shall be carried out in accordance with the approved details.

In order to ensure an appropriate quality of development.

4 Large scale details, including materials and finishes, at a minimum of 1:20 of the items listed below shall be approved in writing by the Local Planning Authority before the commencement of development:

(a) Windows and frames; (b) Window reveals; (c) Doors; (d) External wall construction; (e) Folding and sliding screens to the windows and doors; (f) Rainwater goods;

Thereafter, the works shall be carried out in accordance with the approved details.

In order to ensure an appropriate quality of development.

In the interests of the amenities of the locality.

180 6 Prior to the occupation of the development hereby approved, a landscape management strategy shall be submitted to and approved in writing to include details of the following:

(i) Identify management responsibilities for the maintenance of the following landscape features: the landscape buffer between the car park and the residents on Normancroft Way and Normancroft Drive, the landscaping beneath the secure access bridge, landscaping (boulder maze etc) to the south and east of the building within the area of open space; (ii) A schedule to identify how often and when these areas identified in (i) above will be maintained; (iii) A strategy to manage any planting failures for a minimum period of 5 years from the first occupation of the development.

The development shall be implemented in accordance with the above details and thereafter retained.

In the interests of the amenities of the locality.

7 Prior to the commencement of development, further details of all proposed boundary treatment shall be submitted to and approved in writing by the Local Planning Authority. The boundary treatment shall be installed prior to the use of the development commencing in accordance with the approved details and shall thereafter be retained.

In order to ensure an appropriate quality of development.

8 Before development commences, further details of the proposed ‘green wall’ (the use of vegetation to grow over the mesh elevations) shall be submitted to and approved in writing by the Local Planning Authority. The details shall include the following:

(i) The location, depth and form of the planting medium in relation to the building, to include means of protection; (ii) Plant species; (iii) A watering strategy; (iv) A long-term maintenance strategy.

The development shall then be implemented in accordance with the approved details prior to the commencement of the use and thereafter retained.

In order to ensure an appropriate quality of development.

9 Before development commences, further details of the secure access bridge over the public footway shall be submitted and approved in writing by the Local Planning Authority to include the following:

(i) - Details of the external appearance of the bridge from the footway to include the barrier design and details of materials to be used;

181 (ii) - A construction drawing of the bridge and all structural calculations; (iii) - Details of the deck (to include materials); (iv) - Details of the supporting gabion wall to include materials.

The development shall then be implemented in accordance with the approved details prior to the commencement of the use and thereafter retained.

To ensure safety of the footpath and in the interest of highway safety.

10 The development shall not be used unless the car parking accommodation for 28 vehicles as shown on the approved plans has been provided in accordance with those plans and thereafter such car parking accommodation shall be retained for the sole purpose intended.

In the interests of traffic safety and the amenities of the locality.

11 The gradient of shared pedestrian/vehicular access shall not exceed 1:12 unless otherwise agreed in writing by the Local Planning Authority.

In the interests of traffic safety and the amenities of the locality.

12 Prior to the commencement of the use of the development, further details of servicing and delivery arrangements shall be submitted to and approved in writing by the Local Planning Authority. Such details shall include:

(i) The type of servicing vehicles to be expected; (ii) Short-stay parking provision for servicing vehicles; (iii) The restricted hours for delivery;

The development shall then be implemented in accordance with the approved details prior to the commencement of the use and thereafter retained.

In order to ensure an appropriate quality of development.

13 Before the development is commenced, details of the means of ingress and egress for vehicles engaged in the construction of the development, to include details of the route into the site from the highway and the means to manage any potential crossing of the public footpath by construction vehicles, shall be submitted to and approved in writing by the Local Planning Authority. Such details shall include the arrangements for restricting the vehicles to the approved ingress and egress points. Ingress and egress for such vehicles shall be obtained only at the approved points.

In the interests of traffic safety and the amenities of the locality.

14 Before the development is commenced, full details of suitable and sufficient cycle parking accommodation within the site shall have been submitted to and approved in writing by the Local Planning Authority and the shall not be

182 used unless such cycle parking has been provided in accordance with the approved plans and, thereafter, such cycle parking accommodation shall be retained.

In the interests of traffic safety and the amenities of the locality.

15 Before any operations are commenced on site, details of the location and extent of the site compound within the site curtilage to include the following:

(i) Details of site accommodation, (ii) Locations for the storage of plant and materials, provision for the parking and manoeuvring of site operatives and visitor vehicles; (iii) Location for the loading/unloading and manoeuvring of goods vehicles to be designed, laid out and constructed all to the satisfaction of the Local Planning Authority

Shall be submitted to and approved in writing by the Local Planning Authority. The construction compound shall be created in accordance with the approved details and maintained free from impediment throughout the duration of construction works.

In the interests of the amenities of adjoining resident and the safety of the adjoining highway.

16 Before any operations are commenced (excluding the condition above) a temporary access shall be created near to the location of the existing access to the Alison Business Centre (unless otherwise approved by the LPA) for use by all site vehicles, the details of which shall be submitted to and approved in writing by the Local Planning Authority. The temporary access shall be laid out and constructed with a solid bound material and maintained thereafter free from impediment throughout the duration of construction works.

In the interests of the amenities of adjoining resident and the safety of the adjoining highway.

17 The use of the workspace within the approved development as shown on the approved plans shall be only in accordance with Use Class B1 (Business) of the Town and Country Planning (Use Classes) Order 1987 (as amended).

In the interests of the amenities of the locality.

18 The use of the community facility within the approved development as shown on the approved plans shall be only in accordance with Use Class D1 (Non-residential institution) of the Town and Country Planning (Use Classes) Order 1987 (as amended).

In the interests of the amenities of the locality.

183 19 The workspace within Use Class B1 hereby approved within the development shall be used only between the hours of 0745 to 1930 Monday to Fridays, 0745 to 1300 on Saturdays and at no time on Sundays and Bank Holidays.

In the interests of the amenities of the locality and occupiers of adjoining property.

20 The community facility within the approved development within Use Class D1 shall be used only between the hours of 0745 and 2200 Monday to Fridays, 0745 and 1930 on Saturdays and between 1000 and 1700 on Sundays and Bank Holidays

In the interests of the amenities of the locality and occupiers of adjoining property.

21 Prior to the commencement of development, further details of all external lighting to be installed within the car park, along the access road and beneath the access bridge, to include details of the type of lighting (manufacturers details), levels of luminance and level of light spill shall be submitted to and approved in writing by the Local Planning Authority. The development shall then be implemented in accordance with the approved details prior to the commencement of the use.

In order to ensure an appropriate quality of development.

22 Prior to the commencement of development, further details of the incorporation of a close circuit television system beneath the access bridge shall be submitted to and approved in writing by the Local Planning Authority. The development shall then be implemented in accordance with the approved details prior to the commencement of the use unless otherwise approved in writing by the Local Planning Authority.

In the interests of the amenities of the locality and the safety of footpath users.

23 Surface water and foul drainage shall drain to separate systems.

To ensure satisfactory drainage arrangements.

24 Before work on site is commenced, full details of suitable inclusive access and facilities for disabled people, both to and into the building(s) and within the curtilage of the site, shall have been submitted to and approved in writing by the Local Planning Authority and the development shall not be used unless such inclusive access and facilities have been provided in accordance with the approved plans. Thereafter such inclusive access and facilities shall be retained. (Reference should also be made to the Code of Practice BS8300).

To ensure ease of access and facilities for disabled persons at all times.

184

25 No externally mounted plant or equipment for heating, cooling or ventilation purposes, nor grilles, ducts, vents for similar internal equipment, shall be fitted to the building unless full details thereof have first been submitted to and approved by the Local Planning Authority, and once installed such plant or equipment should not be altered without prior written approval of the Local Planning Authority.

In the interests of the amenities of the locality and occupiers of adjoining property.

26 Amplified sound (including radios) shall only be played within the building in such a way that noise breakout to the street does not exceed:

(i) background noise levels by more than 3dB(A) when measured as a 15 minute LAeq,

(ii) any octave band centre frequency by more than 3dB when measured as a 15 minute Leq, when measured at the façade of the nearest residential properties on Normancroft Way and Normancroft Drive.

In the interests of the amenities of the locality and occupiers of adjoining property.

27 Before the development is commenced, full details of proposals for the inclusion of public art within the development shall have been submitted to and approved in writing by the Local Planning Authority. Such details shall then be implemented prior to the occupation of the development unless otherwise authorised in writing by the Local Planning Authority.

In order to satisfy the requirements of Policy BE12 of the Unitary Development Plan and to ensure that the quality of the built environment is enhanced.

28 Prior to the occupation of any part of the development, a detailed Travel Plan(s), designed to: reduce the need for and impact of motor vehicles, including fleet operations; increase site accessibility; and to facilitate and encourage alternative travel modes, shall have been submitted to and approved in writing by the Local Planning Authority. Detailed Travel Plan(s) shall be developed in accordance with a previously approved Framework Travel Plan for the proposed development, where that exists. The Travel Plan(s) shall include:

185 c) The results and findings of the monitoring shall be independently verified/validated to the satisfaction of the Local Planning Authority. d) The verified/validated results will be used to further define targets and inform actions proposed to achieve the approved objectives and modal split targets.

On occupation, the approved Travel Plan(s) shall thereafter be implemented, subject to any variations approved in writing by the Local Planning Authority.

In the interests of the amenities of occupiers of adjoining property.

29 Before the development is commenced full details of the proposed refuse and recycling storage facilities to be provided to serve the development shall have been submitted to and approved in writing by the Local Planning Authority. The details shall include a method statement indicating how the facilities will be managed and serviced and how occupiers of the proposed development will be encouraged to maximise the use of the proposed recycling facilities to reduce general waste arising. Prior to the occupation of the proposed development the approved facilities shall have been implemented in conjunction with the approved method statement and shall thereafter be retained.

In order to ensure that proper provision for refuse is made and to encourage the maximum use of recycling in the interests of protecting the environment

30 Before any work on site is commenced, a report shall have been submitted to and approved in writing by the Local Planning Authority identifying how the following will be provided:

186 In order to ensure that new development makes energy savings in the interests of mitigating the effects of climate change, in accordance with Sheffield Development Framework Core Strategy Policy CS65.

31 The development hereby approved shall be constructed to achieve a minimum rating of BREEAM ‘very good’ and before the development is occupied (or within an alternative timescale to be agreed) the relevant certification, demonstrating that BREEAM ‘very good’ has been achieved, shall be submitted to and approved in writing by the Local Planning Authority.

In the interests of mitigating the effects of climate change, in accordance with Sheffield Development Framework Core Strategy Policy CS64.

Attention is drawn to the following justifications:

BE5 - Building Design and Siting BE8 - Access to Workplaces LR5 - Development in Open Space Areas T22 - Private Car Parking in new Development CS45 - Quality and Accessibility of Open Space CS47 - Safeguarding Open Space CS64 - Climate Change, Resources and Sustainable Design of Developments CS65 Renewable Energy and Carbon Reduction

and to all relevant material considerations, including Supplementary Planning Guidance.

Attention is drawn to the following directives:

1. As the proposed development will involve the closing/diversion of a footpath(s) you are advised to contact the Director of Legal and Administrative Services, Town Hall, Sheffield, S1 2HH, as soon as possible with a view to the necessary authority being obtained for the closure/diversion of the footpath(s) under Section 257 of the Town and country Planning Act 1990.

2. You are required as part of this development, to carry out works within the public highway: As part of the requirements of the New Roads and Street

187 Works Act 1991 (Section 54), 3rd edition of the Code of Practice 2007, you must give at least three months written notice to the Council, informing us of the date and extent of works you propose to undertake.

The notice should be sent to:-

Sheffield City Council Highways and Transport Division Howden House 1 Union Street Sheffield S1 2SH

For the attention of Mr P Vickers

Please note failure to give the appropriate notice may lead to a fixed penalty notice being issued and any works on the highway being suspended.

You should apply for a consent to: -

Highways Adoption Group Development Services Sheffield City Council Howden House, 1 Union Street Sheffield S1 2SH

For the attention of Mr S Turner Tel: (0114) 27 34383

4. The applicant is advised that the signage indicated on the submitted drawings is not approved as part of this permission and will require separate Advertisement Consent. To discuss arrangements for obtaining such consent, and to request application forms, the applicant should contact Development Control Section, Development Services, on Sheffield (0114) 2734215 or go to www.sheffield.gov.uk/in-your-area/planning-and-city- development

5. The applicant is advised that noise and vibration from demolition and construction sites can be controlled by Sheffield City Council under Section 60 of the Control of Pollution Act 1974. As a general rule, where residential occupiers are likely to be affected, it is expected that noisy works of demolition and construction will be carried out during normal working hours,

188 i.e. 0800 to 1800 hours Monday to Friday, and 0800 to 1300 hours on Saturdays with no working on Sundays or Public Holidays. Further advice, including a copy of the Council's Code of Practice for Minimising Nuisance from Construction and Demolition Sites is available from the Environmental Protection Service, 2-10 Carbrook Hall Road, Sheffield, S9 2DB: Tel - 0114 2734651.

6. The Council is responsible for allocating house numbers and road names to both new developments and conversions of existing buildings. Developers must therefore contact the Council’s Street Naming and Numbering Officer on (0114) 2736127 to obtain official addresses for their properties as soon as construction works commence.

7. From the 6th April 2008, the Town and Country Planning (Fees for Applications and Deemed Applications) Regulations 2008 require that all requests for confirmation of compliance with planning conditions require a fee payable to the Local Planning Authority. An application to the Local Planning Authority will be required using the new national standard application forms. Printable forms can be found at www.sheffield.gov.uk/planning or apply online at www.planningportal.gov.uk. The charge for this type of application is £85 or £25 if it relates to a condition on a householder application for development.

189 Site Location

LOCATION AND PROPOSAL

This application relates to 0.42 hectares of public open space that lies to the east of the Manor Development Company’s Business Centre at Alison Crescent and to the north of the Manor Community Childcare Centre. The application site also adjoins the rear boundaries of residential properties at 23, 25, 32 and 34 Normancroft Drive and Nos. 52, 54, 56, 58 and 60 Normancroft Way.

The application site is predominantly grassed with areas of boundary planting and incidental planting. A public footpath runs along its southern boundary; this route connects Alison Crescent with the strategic footpath and cycle track that extends from Castlebeck Avenue to Vikinglea Road and onward through the Manor Estate to Vikinglea Drive and Harborough Avenue. The site is characterised by a change in level of approximately 3 metres between the footpath and the boundary with the residential properties above, which is evident in the grass banking that slopes up from the footpath towards the houses.

190 The buildings surrounding the open space include the existing MCD Alison Business Centre, which was constructed in 1996 and comprises a number of single and two storey business units built around a central courtyard/parking area with access from Alison Crescent. This development is inward-looking with extensive planting to the boundary with the public footpath. The Business Centre is functional in design, constructed in red and buff brickwork with a tiled roof. Adjacent to the Business Centre is the single storey community children’s nursery, which was built in 2001. This is also very functional in appearance and is constructed in buff brick with a red tiled roof. The nursery has a number of windows to each elevation that are all fitted with roller shutters for security. The nearest residential dwellings on Normancroft Way and Normancroft Drive comprise two storey and bungalow properties, mainly constructed in buff brick with a tiled roof. Beyond this immediate site, the surrounding area is predominantly residential with the majority of housing constructed in the 1980s.

This is a full planning application principally proposing the construction of a 1 x 3 storey building to provide an extension to the Alison Business Centre comprising the provision of 1410 square metres of new workspace units within Use Class B1 (Business) and a new community facility extending to 150 square metres.

The proposed building is broadly rectangular in form and sits parallel to the existing footpath. It incorporates a shallow crank to the front elevation to respond to the curve of the footpath and presents a 64.5 metre frontage to this path. The depth of the building extends from a minimum of 10.5 metres at the north-eastern end to a maximum of 13.5 metres where the building cranks centrally within the façade. It has been positioned to enhance the safety and security of the area by presenting a strong frontage to the footpath with generous areas of glazing to encourage natural surveillance and passive overlooking. This is further promoted by the internal arrangement of the communal working and meeting spaces, which have been positioned against this façade.

To the rear of the building is a secure car park with parking for 28 vehicles as well as the provision of a bin store. The car park sits at a similar level to the rear gardens of properties on Normancroft Way. Access to the car park is achieved through the existing Business Centre with vehicular access from Alison Crescent. The existing footpath that runs through the site has to be retained such that vehicular access is segregated from the footpath by means of a metal bridge that over sails the footpath by a minimum height of 2.2 metres. This bridge is a single carriageway and includes a pedestrian and cycle facility such that it extends to 5 metres in width. The road surface will be constructed in conventional asphalt. The bridge supports adjoining the footpath will be treated in either ‘criblock’ (a concrete retaining wall system) or gabions too allow soft planting. This will create a generous ‘cutting’ of 4 metres beneath the bridge, comprising the footpath and a landscaped strip.

The building addresses the sloping topography of the site such that it is three storeys to the front flank adjoining the footpath and the existing business centre and then reduces to two storeys towards the rear adjacent to the existing residential properties. Level 00, which equates to the ground floor at the eastern end of the building, comprises the community space and ancillary facilities, a plant

191 room and office facilities. The main access to Level 00 is from the front elevation from the area of existing open space although it is also accessible from the upper floors by means of a lift and stair core. Level 01 is the main level along the entire length of the building and accommodates 9 workshops that vary in size between 44 square metres and 68 square metres, a flexible workspace for general use, a community workshop, reception area and ancillary W.C. facilities. A level access is provided from the rear car park with a lift and stairs to the lower and upper floors. Level 02 is the upper floor, which extends to approximately three-quarters of the floor plate. This level is accessed via a lift and stairs from the lower levels and will provide 10 workshops that range between 24 square metres and 30 square metres, a prestige office space, a general workspace/community space and a small 50 square metre roof terrace.

Architecturally, the proposed facility is designed to be durable and secure. The building is constructed in simple blockwork at Level 00 with Levels 01 and 02 constructed in powder metal composite panels. These ‘backing’ materials will be coloured to create a softer façade. The building will then be clad entirely in an expanded metal mesh screen, which will allow climbing plants to grow over it to green the façade. Climbing plants such as ‘Virginia Creeper’ will be used because it grows at a rapid rate such that a substantial proportion of the building would be covered within 12 to 18 months. Full height glazing is incorporated at intervals within the façades, which will then be concealed by folding and sliding screens when the building is not in use to ensure that the external treatment is robust. The premises are designed with a gently sloping mono-pitch roof that slopes down toward the residential properties on Normancroft Way.

The application also proposes to modify the existing Alison Business Centre to enable the construction of the new access road and a new gatehouse building that will effectively link the two sites. The works will require the demolition of the existing toilet block, which forms part of the courtyard elevation facing the nursery and the construction of a single storey extension of the existing building by a length of 8.2 metres towards Vikinglea Road, effectively to create a new toilet block. This new extension will have a pitch roof to match the existing building and will be roofed in tiles re-used from the removed toilet block. The elevations will be clad in metal mesh to visually connect this new extension to the new Phase. The extension will not project beyond the frontage of the existing Business Centre buildings facing Vikinglea Road.

Finally, it is proposed that the area between the new main building and the footpath and to the east of the building is landscaped to include planting and new woodland and a possible natural play area that includes a boulder maze, which is influenced by the landscape of the Peak District.

RELEVANT PLANNING HISTORY

There is no planning history directly relevant to this site.

SUMMARY OF REPRESENTATIONS

192 This application was advertised by means of a site notice as a development in the public interest, a press notice and direct neighbour notification. A public meeting was also held on Tuesday 8th September.

Five letters of objection have been received from occupiers at 15, 16, 25 and 26 Normancroft Drive and 54 Normancroft Way, which raise the following issues:

− The development is taking more green space; − The relationship of the development to the adjoining houses is a concern in terms of overlooking and loss of privacy; − The building is an eyesore and is out of character; the mesh and planting will encourage damage; − Noise and pollution from the development; − The existing workshops are currently empty so why do Manor Development Trust want to build more; − 24-hour access would be problematic (it is relevant to note that the applicant did not apply for 24-hour access); − The boulder maze will be a trip hazard; − The turning area for vehicles is close to the houses and will cause a disturbance;

A letter has also been received from the Secretary of the Lower Manor Tenants and Residents’ Association (TARA) that includes a petition with 96 signatures from the surrounding area to ‘say no to more units being built’. TARA raises the following issues:

− The tree survey shows a range of trees to be removed but these have already been removed; − There is inaccuracies in the plans, including one of the adjoining houses that is show as two storeys when it is, in fact, a bungalow; − Plans indicated various public consultations with local residents but the early consultation they refer to did not happen; − The building is not in keeping with the surrounding area in appears and is contrary to Policy CS74 of the Core Strategy; − The development will result in increases in noise, traffic and light pollution; − The cattle grid style bridge will be noisy (the cattle grid surface has since been omitted from the scheme); − The plans include a lorry turning point within the car park close to properties on Normancroft Drive and Normancroft Way, which will result in loss of amenity and more traffic in the locality; − The anti-social behaviour in this area is typically behind the nursery building and this building will potentially encourage further anti-social behaviour and will bring this closer to existing properties; − The large boulders in the landscaped area will cause accidents and will create a security blind spot; − The bridge will encourage anti-social behaviour as it will attract youths to congregate; − The current development has a landscaped buffer zone to the open space but this is not maintained and the residents are concerned about the impact

193 and maintenance of the new buffer zone. Houses overlooking the dense foliage will not be able to see and this will increase opportunities for crime; − Residents were not consulted about the 24 hour access; − The local area used to have large areas of green space, which was reduced through Phases 1 and 2 of the Business Centre and this development will reduce it even more; − MDC may see this as a gateway for future developments and this will change the view of the residential area into one more suited to an industrial estate.

Councillor Jan Wilson has submitted the following comments on the proposal on the grounds that the application has caused considerable local concern and Councillor Wilson wishes the following comments to be considered:

− Loss of open space; − Proximity of buildings to the nearest homes; − Is the access bridge suitable? Will it be an attractor for anti-social behaviour; − Will increased vehicle movements have an unreasonable impact on local residents; − Materials to be of a good quality; − Hours of operation during construction; − Hours of operation of the development; − Management of the development and − The standard of maintenance of the soft landscaping.

A letter of support has also been forwarded via the Manor Development Trust from a resident on Vikinglea Glade, who has advised that she wants to remove her signature from the petition as the resident believed she was signing in favour of the plans for the community space and the play area. The letter states that the plan to provide activities for families and children is a needed in the area.

A letter of support from Manor After School Kids Klub has also been received. They welcome the introduction of the bridge on the grounds that it takes into account the safety of local children and the proposes area in front of the community facility is also described as ‘ideal’ to divert children away from the bridge. The After School Kids Klub also questions the actual extent of anti-social behaviour in this area as intimated by the letters of objection.

PLANNING ASSESSMENT

194 i. Principle of development: Policy and Land Use; ii. Design and appearance of the proposed development; iii. Highways issues; iv. Impact on the amenity of adjoining residential occupiers; v. Landscape design; vi. Sustainability. vii. Regeneration impacts.

Principle of development: Policy and Land Use

The application site is positioned on land that is designated for public open space within the Sheffield Adopted Unitary Development Plan and the proposal must therefore be assessed against relevant national and local planning policies.

Planning Policy Guidance Note 17: Open Space, Sport and Recreation requires that open space policy is founded on an understanding of local open space needs and advises that Local Authorities should undertake robust assessments to consider the quality and accessibility of open spaces. This principle is incorporated within the local policy objectives set out in both the UDP and Core Strategy, which are considered below.

Policy LR5 of the UDP relates to development in open space areas and lists criteria against which development in Open Space Areas must be assessed. With particular relevance to this site, Policy LR5 determines that development will not be permitted where it would (as relevant to this site):

(b) Cause damage to mature or ancient woodland or result in a significant loss of mature trees;

(d) It would make an open space ineffective as an environmental buffer or;

(h) It would result in the loss of open space which is of such quality that it is of City- wide importance; or

(i) It would result in overdevelopment or harm the character of an area; or

(k) The proposed use would be incompatible with surrounding land-uses.

In assessing this application against the policy criteria above, the following is advised:

(b) With regard to woodland and the loss of mature trees, a total of 14 trees will be lost as a result of this development of which four have already been removed. The trees were not the subject of a Tree Preservation Order and their removal was not unlawful. A tree survey submitted with this application identifies that 4 of the 14 trees were deemed to be of a moderate quality with the remainder being low quality or young trees. Whilst the loss of any trees is regrettable, it is not

195 considered that the proposed tree removal is contrary to Policy LR5 (b) as it does not constitute a significant loss of mature trees. Furthermore, the applicant will be required to submit a detailed landscape proposal as a condition of this recommendation, which will seek an equal replacement of trees at a minimum standard of semi-mature.

(c) Whilst this application is clearly constructed on a piece of open space, the Council has undertaken an open space provision assessment, which analyses the extent of open space in the locality of the site. The UDP determines that the local population should have access to both formal recreation space (e.g. outdoor sport areas and children’s play areas) and informal recreation space (e.g. parks). Local is defined as within 400 metres of the site. The assessment determines that within a 400 metre catchment area of the application site there is 8.34 hectares of informal open space for every 1000 of the population in that area. A quantitative shortage would amount to 2.7 hectares per 1000 population, which demonstrates that there is an over-provision of informal open space provision in the locality of the site. There is less formal open space within 400 metres of the site, equating to 1.11 hectares per 1000 population. A quantitative shortage is defined as less than 1.3 hectares per 1000 population. However, overall, the level of open space per every 1000 population within 400 metres of this site equates to 9.44 hectares; a quantitative shortage is less than 4 hectares. Given the significant overprovision of informal open space within 400 metres of the site and the fact that a generous area of open space is retained, the loss of 0.42 hectares will not significantly detract from the green and open character of the Green Network.

(d) An environmental buffer is defined in the UDP as ‘landscaping and or siting of appropriate facilities between sensitive and other uses to reduce the harm or potential nuisance to each other. Car parks or offices, for example, might form such a buffer’. In this case, the open space does not have a role as an environmental buffer and on this basis; it is not contrary to Policy LR5 (d). Indeed, the building and car park will effectively form a buffer between the residential properties and the open space.

(h) The open space is not considered to be of City-wide importance and is therefore not contrary to LR5 (h). It is clearly of importance locally but as noted above, there is an over-provision of informal open space within a 400 metre catchment area of the site.

(i) In terms of whether the development would result in overdevelopment or harm the character of an area, the visual impact of the proposed development and the relationship to adjoining residential occupiers is considered in the report below but is it is considered that the scheme can be provided such that it does not represent an over-development of the area or harm its character.

(k) In terms of whether the proposed use would be incompatible with surrounding land-uses; the area surrounding the application site includes both existing commercial business units within the adjoining Manor Development Company premises and residential uses. This application proposes the construction of workshops within Use Class B1 (Business) and a community facility within Use Class D1 (Non-residential institutions). Use Class B1 is defined as a business use

196 that can be carried out in any residential area without detriment to the amenity of that area by reason of noise, vibration, smell, fumes, smoke, soot, ash, dust or grit. As such, the principle of such a use within the vicinity of residential properties is not considered to be incompatible in principle. The introduction of a community facility to serve the local community would be determined an acceptable use within a housing area and is therefore considered compatible as a use adjoining a residential area. The application is therefore considered to comply with Policy LR5 (k).

It is also relevant to note Policy CS45 of the recently adopted Sheffield Development Framework Core Strategy, which advises that safeguarding and improvement of open space will take priority over the creation of new areas and the priority for improvement will be district parks and open spaces and areas that are more than 1200 metres from a district park or open space that both delivers a range of formal and informal recreation space. As noted above, there is an over- provision of open space within the local area (within 400 metres) and a sufficient level of informal open space is therefore safeguarded. Although it is acknowledged that there is a marginal under-provision of formal open space in the local area, this application does not impact upon that provision on the basis that the application site is on land classified as informal open space. On this basis, it is not considered to conflict with the objectives of Policy CS45.

Finally, it is relevant to note Policy CS47 of the Core Strategy, which also relates to development in open space and advises that development in open space will not be permitted where (as relevant to this site): a) it would result in a quantitative shortage of either informal or formal open space in the local area; or b) it would result in the loss of open space that is of high quality or of heritage, landscape or ecological value; or c) people in the local area would be denied easy or safe access to a local park or to smaller informal open space that is valued or well used by people living or working in the local area; or d) it would cause or increase a break in the city’s Green Network;

Development that would still result in the loss of open space will only be permitted where e) as soon as practicable, equivalent or better replacement open space would be provided in the local area; or f) the site is identified as surplus for its current open space function and i. A proposed replacement would, as soon as practicable, remedy a deficiency in another type of open space in the same local area; or ii. It could not fulfil other unsatisfied open space needs; or

197 g) the development would be ancillary to the open space and have a minimal impact on the use or character of the open space

In assessing this application against the above criteria, the following is advised: a) The open space assessment that is detailed in the report above clearly demonstrates that the level of informal and formal open space per every 1000 population within 400 metres of this site equates to 9.44 hectares; a quantitative shortage in the City is less than 4 hectares. The application site forms part of the informal open space provision within the area of which there is a significant over- provision. Although there is a slight under provision of formal open space in the area, this application does not impact on that provision and is therefore not considered to be contrary to Policy CS47 (a). Members may also wish to be aware that the Council’s South Sheffield Regeneration Team have confirmed that they propose to install a multi-use games area on land at Saxonlea Avenue, which is anticipated for completion in 2010 and are also proposing to invest in a natural play area and new 5-a-side pitch on land adjacent to the existing Manor Community Nursery. This should re-dress, to a degree, the under provision of formal space in the area; b) The issue of the quality of the open space and the landscape value is considered above in response to Policy LR5. c) Although noting that the local population will lose 0.42 hectares of informal open space and the residents immediately adjuring the application site will have to walk further to the remaining open space, it remains within a 5 minute walk and it is not considered that local people would be denied easy or safe access to a local park or to smaller informal open space that is valued or well used. Furthermore, it is anticipated that the introduction of the business and community centre onto this site will improve natural surveillance of the remaining area of open space and promote its use during the daytime and evening. The application is therefore not considered to be contrary to Policy CS47 (c). d) As noted above in response to Policy LR5(c), the development is only on part of the open space and will not cause a break in the City’s Green Network, in accordance with Policy CS47 (d); e) With regard to the provision of equivalent or better replacement open space, there is already an over provision of informal space in the area, as well as the proposals above to introduce improved formal open space provision, which is considered to address the objectives of Policy CS47 (e); f) The site is effectively surplus in the locality given the over-supply of informal open space. However, given the sloping topography of the site it would not be suitable for many forms of formal open space such as a 5-a-side pitch and it could therefore not fulfil other unsatisfied open space needs, which are already being addressed in the area as noted above. The proposal is therefore in accordance with Policy CS47 (f);

198 h) It is not considered that the proposed development in its entirety would be ancillary to the open space and in this regard, it does not comply with Policy CS47 (h). However, the community facility, which fronts onto the open space at ground level, is considered appropriate to the open space and compatible with it rather than ancillary. Moreover, it is anticipated that the natural surveillance provided by this facility will further promote the safe use of the open space. On this basis, although the proposal is not in accordance with Policy CS47 (h), it is not considered that the development will significantly harm the character of the open space nor is the lack of compliance with this criteria sufficient on its own, to warrant refusal of the application.

It is therefore concluded that the proposed development of the Business and Community Centre will be constructed on 0.42 hectares of informal open space of which there is already an over-provision in the local catchment area. As such, it will not create a shortage of informal open space within the local area nor will it impact on the level of formal open space. Part of the open space is still retained adjacent to the application site and moreover, it is considered that the natural surveillance generated by the proposed development may promote increased use of this space by the wider community. There is no loss of mature trees nor is there any loss of an area of open space of City wide importance. Whilst the proposed development is not ancillary to the open space and not in accordance with Policy CS47 (h) of the Core Strategy, the provision of a community facility at the ground floor fronting the open space will enhance its use and is compatible with the sites informal recreation function. Failure to comply with Policy CS47 (h) alone is not considered sufficient to warrant refusal of the application as the proposal is deemed to comply with the remaining objectives of Policy CS47 and Policy CS45 of the Core Strategy, Policy LR5 of the UDP and guidance within PPG17.

Design and appearance of the proposed development

Policy BE5 of the UDP relates to building design and siting and advises that good design and the use of good quality materials will be expected in all new developments. It seeks to achieve original architecture and a design on a human scale with varied materials that break down the overall mass of development. Policy CS74 of the SDF Core Strategy, which relates to design principles, advises that high-quality development will be expected, which would respect, take advantage of and enhance the distinctive features of the city, its districts and neighbourhoods.

The main proposed building is intentionally designed to be robust and durable because of its location within an area of public open space. The surrounding area does not demonstrate any clear architectural styles or buildings of particular merit as they comprise relatively modern and simple residential dwellings as well as the existing Business Centre and Nursery. As such, the key intention of this application is to deliver a high quality building of visual interest that addresses the site’s location within an area of open space.

In this case, the principal feature of the external appearance of the development is the casing of the building within a metal mesh, which provides a frame for the installation of a ‘green wall’ to each elevation. The mesh will support climbing

199 plants that respond to the conditions of each elevation in terms of the level of sunlight and exposure to wind etc. It will also provide an opportunity for wildlife. The applicant has advised that a range of plants will be selected that are hardy and appropriate to the site, which might include Virginia Creeper, Ivy, Climbing Hydrangea, the Climbing Rose, Sweet Pea and Wisteria. They will be planted in pits around the building and irrigated until they are established.

Whilst the principle of a green wall is welcomed and considered appropriate to this building within an area of open space, the Council must be satisfied that it is achievable and sustainable in terms of its future maintenance. The Council have sought further information from the applicant to determine the location and depth of planting pits and means to protect the plants from undue damage. This information was not available at the time of writing this report but Members will be updated on the matter at Planning Board. It is also the case that a planning condition is proposed to require the submission of a maintenance strategy to ensure the long- term survival of the green wall.

Notwithstanding that the applicant has selected climbing plants that will grow quickly over the façade, there is clearly an interim period and it is important to consider the building without the green wall. In this regard, it is acknowledged that the construction of the proposed development in block work at ground level with the upper levels constructed in powder metal composite panels is relatively simple in form and appearance. These elements will then be layered with the installation of the metal mesh. Metal mesh can be regarded as a high quality material and in this case, will provide durability. Moreover, it is considered that the layering of the materials is inventive and will provide some depth to the facades. The applicant also proposes to use coloured metal panels and painted block work to soften these materials and create a warmer, less monochrome appearance. Subject to securing samples of the materials and approving the colour of the metal panels and block work, it is considered that this palette of materials will create an interesting façade treatment that will be furthered softened by the planting, which is appropriate to the sites location within an area of open space. On this basis, the design and external appearance is in accordance with Policy BE5 of the UDP and Policy CS74 of the Core Strategy.

The scale of development of the main block extends from two storeys to a maximum of three storeys towards the front eastern elevation, fronting onto the public open space; this equates to a maximum eaves height of 10.4 metres. Towards the rear, the building reduces to two storeys, which takes into account the sloping topography of the site and reduces the eaves height to approximately 5.8 metres. It is considered that this massing of development in not inappropriate in this locality with the higher massing facing onto the area of open space and then reducing in height towards the rear in proximity to existing residential properties. Moreover, the proposed building introduces full height glazing and incorporates generous openings to the front elevation in particular, which will provide natural surveillance of the public footpath and ensure that the building is of a human scale and integrates with the surrounding area. It is therefore concluded that the scale of development and its orientation toward the public footpath is in accordance with Policy BE5 of the UDP and Policy CS74 of the Core Strategy and will ensure a

200 high-quality development that will enhance the character of the neighbourhood and promote greater use of the open space.

With regard to the small extension to the existing Alison Crescent Business Centre, to re-provide the toilet block that will be demolished to enable the construction of the access road, it is considered that this extension will continue the form and scale of the existing building, which is appropriate. Its treatment in the same metal mesh as the main building, to allow the creation of a green wall, is also appropriate to establish the link between the existing phase of the Business Centre and the new phase. Accordingly, this is also in accordance with Policy BE5 of the UDP and Policy CS74 of the Core Strategy.

Highways issues

This application was the subject of extensive pre-application discussion in respect of the relationship of the proposed development to the existing public footpath that runs from Alison Crescent through the public open space and into the estate. The applicant initially hoped to close the footpath and was requested to undertake a survey of footpath use. This demonstrated that the footpath was moderately well used, particularly during the day (9am and 6pm) with the route from Vikinglea Road to the main footpath between the Nursery and the Business Centre being particularly busy. The applicant was advised that major changes or extinguishment of the footpath could not be justified.

Following further analysis, the applicant determined that the only viable means of access to the proposed development was to utilise the access from the existing Business Centre (Phase 2) from Alison Crescent and to construct a new link road to the new car park to the rear of the proposed main building. This could technically be achieved either at grade or via a bridge link. This application incorporates the latter on the grounds that the applicant did not consider that an at- grade link across the public footpath could be safely achieved, particularly given the proximity of the Nursery and the moderate use of the footpath by visitors to the Nursery. It is principally for this reason that a bridge link across the footpath is proposed.

The bridge is designed as a private single carriageway link with pedestrian and cycle facilities that provides controlled access into the car park to the rear. It is single width to reduce the span across the footpath. The original submission indicated the use of a cattle grid surface to the bridge to allow light to penetrate onto the public footpath. However, the Council’s Highways Officer considered this unacceptable and a standard asphalt road surface is now proposed, which also addresses the concerns of residents in respect of the noise impact of the previously proposed ‘cattle-grid’ surface.

The Council’s Highways Officer has advised that there is no objection on the grounds of highway safety to the construction of the bridge, subject to the submission of structural calculations to ensure that it is appropriately built in relation to the footpath below. This will be required as a condition of this recommendation. It is also considered that the surrounding highways are capable

201 of accommodating the level of additional traffic that will arise from the proposed development, utilising the access from the existing Business Centre.

From a highways perspective, it is also relevant to consider the effect of development on the footpath. At the present time, the footpath extends through an area of open space and to the rear of the existing Business Centre and the Nursery. These buildings do not present an attractive façade to the open space and do not create a sense that the space is well overlooked. Part of the reasoning for the location of the proposed development on this part of the open space is to address this issue by presenting a strong façade to the public footpath and open space, with generous window openings to promote natural surveillance. It is considered that the proposal is successful in this regard but is sufficiently set back from the footpath by a distance of between 3.6 metres (minimum) and 8.8 metres (maximum) that the building does not appear over-bearing for users of the footpath.

With regard to parking provision, the application proposes 28 spaces to the rear of the main building. The most up-to-date parking standards relevant to this application are set out in the Yorkshire and Humber Regional Spatial Strategy (May 2008), which determines that the maximum parking standard for B1 use within a regional city is 1 space per 60 square metres above a threshold of 2500 square metres. This application proposes 1410 square metres of B1 space and is therefore below the threshold for which maximum parking standards apply. The RSS parking standard threshold for non-residential institutions is also 2500 square metres, which is significantly higher than the 150 square metres of community space proposed as part of this application. Accordingly, the proposed level of development is below the threshold to which the RSS parking standards are applicable and they are therefore not relevant in this instance.

However, Policy T22 of the UDP is still applicable, which relates to ‘Private Car Parking in New Development’. The supporting text to Policy T22 advises that controlling levels of private parking provision is a means of discouraging peak-hour commuting by car and where public transport is good, levels of private parking within new development can be regulated to discourage peak-hour commuting into this area. In this case, the provision of 28 car parking spaces is considered appropriate to serve the 19 workshops in accordance with Policy T22. With regard to servicing, it is anticipated that the units will only require servicing by small vans, although capacity is also incorporated for refuse vehicles. There is sufficient space within the car park to accommodate these vehicles and the hours of servicing will be controlled by means of a planning condition. On this basis, the level of parking and provision for servicing vehicles is satisfactory subject to conditions to ensure that the car parking spaces are provided as shown prior to the commencement of use, as well as conditions requiring details of cycle parking, hours of servicing and the development of a travel plan to encourage travel by means other than the private car.

Accessibility

Policy BE8 of the UDP relates to access to workplaces and advises that in all developments that would result in the provision of 20 or more jobs, suitable access

202 arrangements will be promoted especially for public reception areas and toilet facilities, to meet the needs of employees and members of the public with disabilities.

The applicant has submitted an Access Statement, which confirms that the development seeks to meet, if not exceed, the requirements of Building Regulations Part M, which applies to access for all. The Statement also confirms that disabled parking will be positioned close to the main entrance and all units will be accessible from the ground floor or by lift. These proposals are considered sufficient in principle to accord with Policy BE8 but a condition is also proposed to seek further details to confirm means of disabled access to and within the building.

Impact on the amenity of adjoining residential occupiers

The issues in respect of the impact of the proposed development upon the amenity of nearby residential occupiers are considered to be three-fold; (i) the physical relationship of the development to the adjoining dwellings on Normancroft Way and Normancroft Drive, (ii) noise and disturbance arising from the development and (iii) safety and security for residents. Each is assessed in turn below.

With regard to the built form relationship between the proposed main building and the existing dwellings, the application site boundary adjoins the rear gardens of dwellings at 23, 25, 32 and 34 Normancroft Drive and Nos. 52, 54, 56, 58 and 60 Normancroft Way. These comprise mostly two storey dwellings as well as a bungalow. In terms of their relationship, the proposed building is positioned a minimum of 31 metres from the rear façade of the dwellings at 52-60 Normancroft Way and a distance of between 22 metres and 25 metres from the properties at 34 and 25 Normancroft Drive, with the latter also being at an oblique angle.

In terms of scale, the application includes the submission of a cross-section through the east elevation of the building in relation to 58 Normancroft Way and a cross-section at an oblique angle between the proposed development and 25 Normancroft Drive, which is a bungalow. The cross-section to Normancroft Way suggests that the proposed development is approximately 2 metres higher at eaves level than the eaves of No.58 at a distance of 31 metres. The cross-section to Normancroft Drive illustrates that the new building is approximately 3.5 metres above the eaves level of the bungalow at a distance of more than 30 metres and at an oblique angle.

The Council do not have any published amenity standards in terms of the relationship between commercial and residential properties. However, it is perhaps reasonable to note that for residential properties, the Council require a minimum of 21 metres between primary windows to protect privacy. Where any proposed residential development is higher than existing dwellings, the Council would generally seek an increase in the distance. It is also the case that the Council may accept a reduced standard where two or more dwellings have windows that are not directly facing each other but angled away from180°.

Using this guidance as a broad parameter, it is considered reasonable to conclude that a minimum of 31 metres between the rear façade of the dwellings at 52-60

203 Normancroft Way and the proposed development is sufficient to ensure that there would be no undue detriment, in planning terms, to the amenity of these residents by virtue of loss of privacy. It is accepted that the development may affect their views but there is presently no right to a view within the planning system and it cannot therefore be considered as grounds for refusal.

With regard to the properties at Normancroft Drive, including No.25, it is clearly the case that these properties are also positioned significantly more than 21 metres from the proposed development and at an oblique angle. On this basis, it is therefore concluded that the proposal would not be unduly detrimental to their residential amenity by virtue of loss of privacy or light to warrant refusal of this application.

In respect of noise and disturbance, it is accepted that the proposed development will result in greater activity in the area to the rear of the adjoining boundaries than presently exists. However, it is relevant to determine whether the development will create such disturbance to their amenity to warrant refusal of the proposal. In this case, the application proposes workshops within Use Class B1 and a community facility fronting onto the area of public open space, which is positioned on the front elevation and away from the residential dwellings. The main issue is therefore the relationship to the proposed workshops and the impact of the car park. The definition of a B1 use is a use that can be carried out in any residential area without detriment to the amenity of that area by reason of noise, vibration, smell, fumes, smoke, soot, ash, dust or grit. As such, the operations that occur within the development must not create a noise disturbance that would be detrimental to the residential area and the principle of a workshop and community space in this location is therefore considered acceptable. It is acknowledged, however, that entry to the building and to the car park is positioned at the rear of the development adjacent to the residential gardens; this issue has been addressed in two ways.

Firstly, the proposal incorporates a landscaped buffer strip between the gardens and the car park; this extends to a depth of 2.8 metres along the boundaries with 52-58 Normancroft Way, which more directly adjoin the car park and 2 metres to the rear of dwellings on Normandcroft Drive, which adjoin the site but are further from the car parking spaces and main entrance. This will be maintained by the applicant and is sufficiently deep to provide both tree and shrub planting.

Additionally, it is proposed to control the hours of use of the building. The applicant has advised within the application that they seek to operate between the following times:

B1 Use: 0745 to 1930 on Mondays to Saturdays and 0900 to 1800 on Sundays

D1 Use: 0745 to 2200 on Mondays to Fridays, 0745 to 1930 on Saturdays and 0900 to 1800 on Sundays.

It is the view of Officers that the proposed use of the B1 units between 0745 and 1930 during the week is reasonable. However, the proposed hours of use on Saturdays and Sundays are of concern given the close proximity of the car park to the adjoining residential dwellings and the location of the turning area for service

204 vehicles in particular. Whilst it is appreciated that the applicant seeks flexibility in the hours of use of the units to attract future occupiers, it is also necessary to balance the amenity of existing residents. It is therefore considered that whilst it is acceptable for the workshops to open on a Saturday, the applicant’s proposed hours are not acceptable and should be restricted to 0745 to 1300 on Saturdays and at no time on Sundays and Bank Holidays.

Similarly, whilst the community facility is intended to attract users from the local community such that local residents may choose to walk via the front entrance facing the open space rather than drive to the centre using the rear of the building, it is considered that the proposed hours of use between 0900 to 1800 on Sundays does not have sufficient regard for local residents. As such, it is considered that more appropriate hours of use for the community facility would be between 1000 and 1700 on Sundays and Bank Holidays.

These restrictions are secured by means of a planning condition although discussions are on-going with the applicant in this regard and any amendments will be reported directly to the Board.

With regard to safety and security, the public consultation exercise highlighted a number of concerns from the local community in respect of the impact of the proposed development on security and anti-social behaviour in the locality, with particular regard to the following:

− The area below the bridge is likely to be an attraction point for youths; − The development will displace the current location of anti-social behaviour behind the nursery to the area behind the houses; − The area to the rear of the properties on Normancroft Drive will now be secluded, which will give advantage to burglars; − The alternative areas of open space are not always accessible to younger children and are often areas of anti-social behaviour.

In response to these concerns, the applicant consulted the South Yorkshire Police (SYP) Architectural Liaison Officer (ALO) at pre-application stage and the ALO was also consulted in the course of the application. SYP raise no objection to the proposal in terms of either the bridge or the boundary treatment. Indeed, with regard to the former, the ALO advises that he does not feel the bridge will have a negative impact in relation to safety and security for members of the public using the footpath; this is principally on the grounds that there are good sight lines and provided the path is illuminated during hours of darkness, it is the view of the ALO that the construction of the bridge should not generate crime. South Yorkshire Police have also advised that the level of crime and anti-social behaviour in this part of the Manor Estate is not considered particularly problematic from their perspective and is not a ‘hot-spot’ for anti-social behaviour. Moreover, as outlined above, it is anticipated that the location of this development will result in informal surveillance of the remaining area of open space such that it should be more accessible to younger children than presently perceived.

In terms of the secluded boundaries to the rear of properties on Normancroft Drive and Normancroft Way, it is advised that the landscaped buffer zones will be

205 densely landscaped and can be defensively planted to discourage unwanted access. Moreover, access into the car park area will be strictly controlled such that the boundary is more secure than the present situation where they adjoin an area of public open space. It is therefore concluded that the proposed development will not be unduly detrimental to the safety and security of existing residents.

In conclusion, it is considered that whilst the proposed development will clearly alter the character of the open space and the relationship of adjoining residents to that space, it can be constructed without undue disturbance to their residential amenity or to the safety and security and is therefore considered acceptable.

Landscape design

The proposed development will result in the loss of 14 trees that are presently sited within the area of open space of which 4 have already been removed. The application indicates that a new landscaped boundary will be created and although not developed in detail, it may also include a new natural play area that could incorporate climbing boulders to encourage active play. The detail of the landscape design is to be secured by means of a planning condition.

The Council’s Landscape Officer has advised that the group of trees likely to be affected by the development is made up of a mix of dense shrubs and mixed trees. Whilst not considered to be in particularly good condition, it is noted that it provides vegetation in an area where planting might otherwise be difficult to establish and it does contribute to the landscape in a positive way. Accordingly, as part of the detailed landscape scheme, the Council will require their equal replacement and a suitably high quality landscape scheme and long-term management plan as part of the condition details. On this basis, the landscape proposals are considered acceptable.

Sustainability

Policy CS64 of the Core Strategy relates to climate change, resources and sustainable design of developments and advises that all new buildings and conversions of existing buildings must be designed to reduce emissions of greenhouse gases and function in a changing climate. They must also be designed to use resources sustainably. The supporting text to CS64 advises that to satisfy the policy, all new non-residential developments over 500 square metres should achieve a BREEAM rating of very good (or equivalent). The applicant has confirmed in writing that the building is, in any event, being designed to meet the BREEAM Very Good rating, which will be secured by means of a planning condition. The development is therefore in accordance with Policy CS64.

Policy CS65 of the Core Strategy, which relates to renewable energy and carbon reduction, applies to both new buildings and conversions and requires all significant developments to secure the following, unless it can be shown not to be feasible or viable:

(i) Provide a minimum of 10% of the predicted energy needs from decentralised and renewable or low carbon energy AND

206 (ii) Generate further renewable or low carbon energy or incorporate design measures sufficient to reduce the development's overall predicted carbon dioxide emissions by 20%. This would include the decentralised and renewable or low carbon energy required to satisfy (i).

The applicant has submitted a Draft Preliminary Energy Statement, which provides a preliminary assessment of the building’s carbon emissions and an analysis of construction methods proposed to achieve a reduction in emissions as well as a full assessment of the renewable energies available to achieve the requirements of Policy CS65.

In terms of renewable energy, the statement concludes that a biomass boiler is likely to be economically feasible and capable of contributing to a significant carbon dioxide reduction such that biomass heating is included within the proposal. Solar hot water has also been included on the basis that the building has a relatively low annual domestic hot water demand and it has an open aspect to the south. It is also the case that the building is naturally ventilated and constructed using high performance materials. It is therefore concluded that the applicant has sufficiently demonstrated an ability to achieve the requirements of Policy CS65, which will also be secured by means of a planning condition.

Public Art

Policy BE12 of the UDP advises that the provision of works of public art, which can be readily seen by the public, will be encouraged as an integral part of the design of major developments. In this case, it is proposed as a condition of this application to secure a piece of public art that is visible to the open space.

Regeneration Impacts

Although not directly relevant to the assessment of this planning application, it may be helpful for Members to understand the aspirations of the applicant, Manor Development Company and their requirement to expand the existing business.

The Manor Development Company was established in 1992 to respond to the area’s economic decline and high levels of unemployment. Their stated aim is to help to improve the local economy and the area's image in general and they principally seek to provide affordable managed workspace to new and small businesses with support administrative, facilities management and payroll services. Indeed, MDC has recently been granted charitable status.

Within the existing Alison Business Centre facilities there are presently 37 businesses of which 21 are starter businesses. Eleven of these are local with 8 from within a 2-mile radius and 3 from within a 4-mile radius. Within 26 of the businesses that were surveyed in August 2009, they employed 112 people of which 30% were employed by non-local businesses. The applicant considers that this supports the need to encourage larger and medium sized private businesses into the area that in return can support local employment and therefore widen the opportunities for employment and self employment within the Manor Ward.

207 In terms of occupancy, MDC confirm that as of August 2009, the existing business space was 88% occupied and is typically let at an average rental charge of £14 per square foot. The occupancy figure includes an area of 3 workshop units within the existing Phase 2 that are presently not made available for letting as they are intended to accommodate businesses presently located within the part of Phase 2 that will be affected by the need to form the gatehouse for this application. Taking this into account, the occupancy rate is presently at 91% as of August 09. MDC advise that the remaining empty units are a direct result of the economic climate and principally a result of its effect on the building and allied trades sector. However, they advise that MDC has eleven active leads for businesses requiring premises of which seven require 400-1000 sq foot and three needing 200 sq foot or below, illustrating that there is demand for additional space.

Furthermore, the need to expand the Business Centre is two fold: the extension will provide additional and modern business space of an appropriate size that can build upon and share the facilities already established within Phase 2 such that MDC do not have to expend additional capital to replicate the facilities management already available within Phase 2. This capital can be utilised more effectively by MDC within the community e.g. in providing the supporting community facility and ensuring that the proposed business space is competitively priced and flexible. Additionally, the provision of Phase 3 as proposed in this application, will enable MDC to provide an expanded range of services and contribute to a higher level of revenue and an improved offer to small and medium size enterprises. This additional net revenue can be used to fund planned maintenance to improve the existing facilities, which will ensure the long-term viability of MDC and the provision of flexible and reasonably priced business space for starter businesses within the local area.

The development of this application will principally be funded through the Local Enterprise Growth Initiative.

RESPONSE TO REPRESENTATIONS

It is considered that the issues raised by the objections to this application in terms of the relationship of the residential dwellings to the proposed development, the impact on their amenity, anti-social behaviour issues and traffic and highway issues have been fully addressed in the report above.

It is however, relevant to note that some residents on Normancroft Way and Normancroft Drive raised concerns that they presently have a gate on their rear boundary that provides access to the open space, which will be lost as a result of this application. Acis Group Limited manages all these houses and no evidence has been submitted to demonstrate that there is an established or legal right of way for these residents onto the open space.

The resident at 25 Normancroft Way was particularly concerned about the loss of this rear access in terms of a secondary means of escape in the event of fire. The applicant has consulted South Yorkshire Fire and Rescue Service and Building Regulations to confirm that there is no statutory requirement for a secondary fire exit and the development does not impact upon statutory fire regulations.

208 However, following further discussion with Acis, it has been agreed that there is scope within the present layout to transfer a 1.1 metre strip of the site to the rear of 23 and 25 Normancroft Drive into the ownership of Acis; this strip can provide a footway to connect with an existing footpath adjoining 23 Normancroft Drive, which will provide the occupier of No.25 Normancroft Drive with a secondary access in any event. Although not a legal requirement, it has been secured in order to alleviate the particular concerns and circumstances of the occupier of No.25. The transfer will comprise a private arrangement between the applicant and Acis.

In response to a concern from Councillor Wilson about noise during construction, it is relevant to note that a condition is proposed that requires details of the location and extent of the site compound and how it will be accessed, to ensure some control over this aspect of the development. A directive is also incorporated to remind the applicant of the need to comply with the Control of Pollution Act 1974. As a general rule, where residential occupiers are likely to be affected, it is expected that noisy works of demolition and construction will be carried out during normal working hours, i.e. 0800 to 1800 hours Monday to Friday, and 0800 to 1300 hours on Saturdays with no working on Sundays or Public Holidays.

Finally, it is noted that the local residents have raised some issues about the pre- application consultation process undertaken by the applicant although it is understood that public meetings were held for residents prior to the submission of the application. Furthermore, as part of the statutory planning process, letters were sent to 219 individual properties and a public meeting was also held. As such, it is considered that local residents have had sufficient opportunity to consider the application and to submit comments.

SUMMARY AND RECOMMENDATION

This application proposes the construction of a 1 x 3 storey building to provide an extension to the Alison Business Centre comprising the provision of 1410 square metres of new workspace units within Use Class B1 (Business) and a new community facility extending to 150 square metres. It also proposes to modify the existing Alison Business Centre to enable the construction of the new access road and a new gatehouse building that will effectively link the two sites. These works will require the demolition of the existing toilet block, which forms part of the courtyard elevation facing the nursery and the single storey extension of the existing building by a length of 8.2 metres towards Vikinglea Road. Car parking for the new main block is provided to the rear of the building with access from the existing Business Centre via a metal bridge that over sails the footpath by a minimum height of 2.2 metres. This bridge is a single carriageway and includes a pedestrian and cycle facility such that it extends to 5 metres in width.

The development is located within an area of informal public open space. However, the Council’s Open Space Assessment demonstrates that there is already an over-provision of informal space in the local catchment area and as such, it will not create a further shortage within the local area nor will it impact on the level of formal open space, of which there is a slight under-provision in the area. Furthermore, part of the open space is still retained adjacent to the application site and moreover, it is considered that the natural surveillance

209 generated by the proposed development may promote increased use of this space by the wider community. There is no loss of mature trees nor is there any loss of an area of open space of City wide importance. The application is therefore considered to sufficiently comply with the objectives of Policy CS47 and Policy CS45 of the Core Strategy, Policy LR5 of the UDP and guidance within PPG17.

Architecturally, the proposed facility is designed to be durable and secure. It is constructed in simple block work at ground level with the upper floors constructed in powder metal composite panels. These ‘backing’ materials will be coloured to create a softer façade. The building will then be clad entirely in an expanded metal mesh screen, which will allow climbing plants to grow over it to green the façade. The scale of development addresses the topography of the site such that it is three storeys to the front flank adjoining the footpath and the existing business centre and then reduces to two storeys towards the rear adjacent to the existing residential properties. It is concluded that the proposed treatment will create an interesting façade treatment that will be softened by the green wall planting, which is appropriate to the sites location within an area of open space in accordance with Policy BE5 of the UDP and Policy CS74 of the Core Strategy.

In terms of transport and highways, the application incorporates a car park that provides 28 vehicle spaces and a turning area for light vans. This provision is considered sufficient to serve the workshop units and this level of traffic can readily be accommodated within the existing highway network utilising the existing access from Alison Crescent. There is also no highway objection to the construction of the bridge.

Finally, the applicant has submitted sufficient information to confirm that the development can comply with the sustainable objectives of Policies CS64 and CS65 and it is also considered that a landscape plan and maintenance strategy can be secured by means of a planning condition to ensure an appropriate quality and form of landscaping and its long-term care.

The proposed development is therefore considered to comply with relevant national and local planning policy and is recommended for approval subject to conditions.

210

Case Number 09/02016/FUL

Application Type A Full Planning Application

Proposal Use of shop for the sale of takeaway hot food (Class A5) and erection of a flue

Location 648 Chesterfield Road Sheffield S8 0SB

Date Received 25/06/2009

Team SOUTH

Applicant/Agent Jesneys Bakery

Recommendation Grant Conditionally

Subject to:

1 The development shall be begun not later than the expiration of three years from the date of this decision.

In order to comply with the requirements of the Town and Country Planning Act.

2 The premises shall be used for the above mentioned purpose only between 0900 hours and 2330 hours, Mondays to Saturdays and 0900 hours and 2300 hours on Sundays and Public Holidays.

In the interests of the amenities of the locality and occupiers of adjoining property.

3 The premises shall not be used for the purpose hereby permitted unless suitable apparatus for the arrestment and discharge of fumes or gases has been installed. Before such equipment is installed details thereof shall have been submitted to and approved by the Local Planning Authority. After installation such equipment shall be retained and operated for the purpose for which it was installed.

In the interests of the amenities of the locality and occupiers of adjoining property.

4 No goods or materials of any description shall be stored or displayed wholly or partly outside the within the site of the development.

In the interests of the amenities of the locality and occupiers of adjoining property.

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5 No deliveries to the building shall be carried out between the hours of 23:00 to 09:00 hours Monday to Saturday and 22:30 hours to 09:00 hours Sundays and Public Holidays.

In the interests of the amenities of the locality and occupiers of adjoining property.

6 No movement, sorting or removal of waste bottles, materials or other articles, nor movement of skips or bins shall be carried on outside the building within the site of the development between 23:00 hours and 09:00 hours Monday to Saturday and between 22:30 hours and 0900 hours on Sundays and Public Holidays.

In the interests of the amenities of the locality and occupiers of adjoining property.

7 No amplified sound or live music shall be played either within or without the premises nor shall loudspeakers be fixed at any time outside the building.

In the interests of the amenities of the locality and occupiers of adjoining property.

8 The proposed cooking, food preparation and customer sales area shall be restricted solely to the ground floor of the building as shown on the approved plan unless otherwise agreed in writing by the Local Planning Authority.

In the interests of the amenities of the locality and occupiers of adjoining property.

9 The building shall not be used for the above-mentioned purpose unless a suitable covered enclosure has been provided to accommodate the commercial waste/wheelie bins of the premises. Details of the waste/wheelie bin enclosure area shall have been submitted to and approved by the Local Planning Authority. After installation, such bin enclosure area shall be retained and operated for the purpose for which it was installed.

In the interests of the amenities of the locality and occupiers of adjoining property.

10 The development must be carried out in complete accordance with the following approved documents;

The site location plan and the cellar layout plan both received on the 26th June 2009; the ground floor, first floor and attic floor layout plans all received on the 15th of September 2009; the proposed rear and side elevation plans both received on the 16th of October 2009 and; the written

212 correspondence and specification details received on the 15th of September 2009

unless otherwise authorised in writing by the Local Planning Authority.

In order to define the permission.

Attention is drawn to the following justifications:

S7 - Development in District and Local Shopping Centres S10 - Conditions on Development in Shopping Areas

and to all relevant material considerations, including Supplementary Planning Guidance.

213 Site Location

LOCATION AND PROPOSAL

This is an application for a change of use to form a hot food takeaway (Use Class A5) in the Woodseats District Shopping Policy Area.

The application site is located on Chesterfield Road close to the junction between Scarsdale Road and Woodseats Road. The application site is a two-storey property with some additional accommodation in the roofspace. Adjoining premises are both in commercial use (one of which no.646 is in use as a teeth whitening shop/service, and no.650 which is in use as a retail Class A1 shop). The application property is currently vacant but was previously used in a mixed-use capacity (operating as both a retail sandwich shop and as a bakery).

Whilst the existing authorised use (as a bakery and sales shop) took place at the ground floor level, the first and second floor accommodation had been in use for storage and office purposes (in connection with the bakery business).

214 This proposal seeks to use the ground floor accommodation as the hot food takeaway accommodation and, the first and second floor accommodation to be used for residential purposes by the operator of the hot food takeaway business.

The applicant had originally submitted the application with the view of operating the hot food takeaway between the times of 12:00 (noon) to 24:00 hours (midnight), however, the applicant has verbally accepted the officer recommended (and standard) times of 09:00 hours to 23:30 hours Mondays to Saturdays and 09:00 hours to 23:00 hours on Sundays and Bank Holidays. The applicant has also amended the plans to show the fume extraction equipment now proposed to be internal and protruding through and out of the chimney stack at the rear of the property.

At the request of officers, the plans have also been amended to show an existing unsightly timber extension being permanently removed/dismantled from the property.

RELEVANT PLANNING HISTORY

The property had until very recently been operating as a bakery/sandwich shop for nearly 40 years. Other planning applications for the premises include a few minor applications for a new shop front and a small rear extension.

In 2005 an application was made (reference 05/04452/CHU) for use of the premises as a hot food takeaway, this application was conditionally approved in January 2006. The applicant did not implement the approval and inadvertently the applicant allowed the permission to expire. This application therefore seeks to once again obtain the hot food takeaway consent as the applicant has now secured a willing tenant to takeover the property.

SUMMARY OF REPRESENTATIONS

Two letters of representation have been received from nearby residents. Both letters raise objections against the proposal. The concerns raised have been summarised and are listed below:-

- There are already enough hot food takeaway establishments in the area.

- The proposal will lead to more noise and odour nuisance for local residents.

- The proposal will lead to increased traffic congestion in the area.

PLANNING ASSESSMENT

The application site lies within a District Shopping Policy Area as defined in the Sheffield Unitary Development Plan. Policy S7 of the Unitary Development Plan

215 identifies food and drink outlets as generally being acceptable uses within District Shopping Areas. However, under the terms of Policy S10, such uses should not cause residents to suffer from unacceptable living conditions, not lead to a concentration of uses which would prejudice the dominance of the preferred uses (retail) and, if applicable, provide safe access to the highway network and not endanger pedestrians.

The latest data shows that 62% of units in the Woodseats District Shopping Area are in Class A1 retail use and therefore, to allow the change of use would not bring the A1 retail units down to less than half for the District Shopping Area (which would have been contrary to part (a) of Policy S10 of the Sheffield Unitary Development Plan). The proposal therefore, is unlikely to affect the vitality of the shopping centre or prejudice the dominance of the preferred uses.

The Woodseats District Shopping area as a whole is a busy and lively environment that contains a broad mix of shops, offices and food and drink establishments (quite a few of which operate late into the evening). There is also an element of existing residential accommodation in the shopping area (mainly in the form of self- contained flats above commercial premises and terraced/semi-detached residential dwellings off the main Chesterfield Road frontage). Chesterfield Road is a busy classified road that has a high level of traffic volume passing along it. The locality is considered to be a busy and lively area with several other hot food takeaways, shops, bars and restaurants operating late into the evening.

This proposal seeks to introduce a hot food takeaway establishment into an area that already has other establishments that operate late into the evening. Given that the proposed use is considered acceptable in principle, it is considered that the main issue with regard to this application is to ensure that the amenities of local residents and business operators are protected. It is felt that through the use of planning conditions, certain measures can be introduced that will ensure some protection is given to local residents and businesses. Such measures include: the provision of satisfactory fume extraction equipment; restricted operating times; and the provision of suitably enclosed bin storage areas.

The application site has provision for one possibly two off-street parking spaces at the immediate rear (the parking spaces are accessed from Scarsdale Road and therefore, it is envisaged that all servicing will take place from the rear. The applicant has also indicated that staff will park their cars at the rear of the premises and customers will generally have to park elsewhere where they are legally allowed to do so (as there are parking restrictions on Scarsdale Road and on Chesterfield Road to the immediate front of the premises. The parking limitations for customers of the proposed hot food takeaway will be no different to the limitations that the existing customers currently face. On this basis, highway officers have indicated that this proposal does not raise any highway safety issues.

The refuse bins of the former bakery use are located in the rear yard area. The applicant has indicated that this proposal will be no different. Given that this is going to be a food related premises, it is considered that the waste/refuse bins should be enclosed in some way, and therefore, it is felt appropriate to secure details of a refuse bin storage area.

216

Members might also wish to consider (as a material consideration) the fact that planning permission had previously been approved in January 2006 for use of the premises as a hot food takeaway.

SUMMARY AND RECOMMENDATION

The proposal is for a hot food takeaway within a busy District Shopping Area. It is considered that the proposal represents an acceptable form of development that is unlikely to harm the living conditions of nearby residents, and therefore, it is recommended that the application be conditionally approved.

217

Case Number 09/01891/FUL

Application Type A Full Planning Application

Proposal Erection of a dwellinghouse

Location Curtilage Of 49 Church Lane Dore Sheffield S17 3GT

Date Received 16/06/2009

Team SOUTH

Applicant/Agent Mr S Whitham

Recommendation Grant Conditionally

Subject to:

1 The development shall be begun not later than the expiration of three years from the date of this decision.

In order to comply with the requirements of the Town and Country Planning Act.

2 The first floor window on the elevation of the proposed new dwelling facing south-west towards No. 49 Church Lane shall be non-openable and glazed with obscure glass to a minimum privacy standard of Level 4 Obscurity and shall not at any time be glazed with clear glass without the prior written agreement of the Local Planning Authority.

In the interests of the amenities of occupiers of adjoining property.

3 Before the development is commenced, details of all proposed external materials and finishes, including windows, shall have been submitted to and approved in writing by the Local Planning Authority. Thereafter, the development shall be carried out in accordance with the approved details.

In order to ensure an appropriate quality of development.

4 Before work on site is commenced, details of a suitable means of site enclosure shall be submitted to and approved in writing by the Local Planning Authority and the dwellinghouse shall not be used unless such means of site enclosure has been provided in accordance with the approved details and thereafter such means of site enclosure shall be retained.

218 In the interests of the amenities of the locality.

5 Notwithstanding the provisions of the Town and Country Planning (General Permitted Development) (Amendment) (No.2) (England) Order 2008, Part 1 (Classes A to H inclusive), Part 2 (Class A), or any Order revoking or re- enacting that Order, no extensions, porches, garages, ancillary curtilage buildings, swimming pools, enclosures, fences, walls or alterations which materially affect the external appearance of the dwellinghouse shall be constructed without prior planning permission being obtained from the Local Planning Authority.

In the interests of the amenities of occupiers of adjoining property.

6 Before any work on site is commenced, a comprehensive and detailed hard and soft landscape scheme for the site shall have been submitted to and approved by the Local Planning Authority. The landscape works shall be implemented prior to the development being brought into use or within an alternative timescale to be first agreed in writing with the Local Planning Authority. Thereafter the landscaped areas shall be retained and shall not be used for any other purpose without the prior consent of the Local Planning Authority. They shall be cultivated and maintained for a period of 5 years from the date of implementation and any plant failures within that five year period shall be replaced.

In the interests of the amenities of the locality.

7 Unless otherwise indicated on the approved plans no tree, shrub or hedge shall be removed or pruned without the prior written approval of the Local Planning Authority.

In the interests of the amenities of the locality.

8 The dwellinghouse shall not be used unless 2.0 metres x 2.0 metres vehicle/pedestrian intervisibility splays have been provided on both sides of the means of access such that there is no obstruction to visibility greater than 600 mm above the level of the adjacent footway and such splays shall thereafter be retained.

In the interests of the safety of road users.

9 The existing car parking accommodation within the site, as indicated on the approved plans, shall be retained for the sole use of the development hereby permitted.

In the interests of traffic safety and the amenities of the locality.

10 The dwelling shall not be used unless all redundant accesses have been permanently stopped up and reinstated to footway, and the means of vehicular access shall be restricted solely to those access points indicated in the approved plans.

219

In the interests of traffic safety and the amenities of the locality.

11 The development must be carried out in complete accordance with the following approved documents, Drawing numbers DF/CL/D/100 Revision A (Floor layout details); DF/CL/D/100 - Revision A (Elevation details); 6003/1 - Revision A (site layout details) all received on the 22nd October 2009 and correspondence letters received on the 22nd of October 2009 unless otherwise authorised in writing by the Local Planning Authority.

In order to define the permission.

Attention is drawn to the following directives:

1. It is noted that your planning application involves the construction or alteration of an access crossing to a highway maintained at public expense.

Assistant Head of Highways Development Services Howden House 1 Union Street Sheffield S1 2SH

For access crossing approval you should contact the Highway Development Control Section of Sheffield City Council on Sheffield (0114) 2736136, quoting your planning permission reference number.

2. The Council is responsible for allocating house numbers and road names to both new developments and conversions of existing buildings. Developers must therefore contact the Council’s Street Naming and Numbering Officer on (0114) 2736127 to obtain official addresses for their properties as soon as construction works commence.

3. As the proposed development abuts the public highway you are advised to contact the Highways Co-ordination Group on Sheffield 2736677, prior to commencing works. The Co-ordinator will be able to advise you of any pre- commencement condition surveys, permits, permissions or licences you may require in order to carry out your works.

4. The applicant is advised that Sheffield City Council, as Highway Authority, require that drives/vehicular access points be designed to prevent loose gravel or chippings from being carried onto the footway or carriageway, and that they drain away from the footway or carriageway, to prevent damage or injury.

220

Site Location

LOCATION AND PROPOSAL

This is a full detailed application for the erection of a detached two-storey dwelling within the curtilage of 49 Church Lane in the Dore area of Sheffield.

The existing dwelling at number 49 Church Lane is an existing two-storey property set within an extensive garden (having a total site frontage of approximately 40 metres and a depth of approximately 60 metres). This proposal seeks to construct a new two-storey detached dwelling on the side garden of 49 Church Lane (on a similar building line to both 47 and 49 Church Lane).

The proposed new dwelling will be approximately 9 metres high by 11.3 metres wide and approximately 17 metres deep (at ground floor level only) along the boundary with number 47 Church Lane and, 11.7 metres deep along the boundary with number 49 Church Lane. At first floor level the proposed new dwelling will approximately 9.4 metres deep along the boundary with number 47 Church Lane

221 and 11.7 metres deep along the boundary with number 49 Church Lane. The variations in the depth of the building are as a result of the proposed new dwelling having ground floor off-shot type projections at the front and rear. The height of the proposed new dwelling to eaves level will be approximately 5.6 metres. The design of the proposed new dwelling is typically modern similar to many other properties found on Church Lane (this site is a significant distance away from the Dore Conservation Area).

The proposed dwelling would be set back from the front of the site by approximately 8 metres and would have a rear garden depth of approximately 35 metres. The proposed new dwelling would have a separation distance to the existing side/gable wall of number 49 Church Lane of approximately 2 metres and, there would be a separation distance to the side/gable wall of number 47 Church Lane of approximately 3 metres. The proposed new dwelling would be inset from both side party boundaries by approximately 1 metre.

The new dwelling will incorporate the following accommodation:-

Ground Floor - integral double garage, lounge, dining room, kitchen, study and a ground floor bedroom with en-suite.

First Floor - 4 bedrooms (1 with en-suite), and a family bathroom.

The existing development plot along the site frontage consists of an existing one metre high stone wall with an existing 3 metre high beech hedge immediately behind. The beech hedge also extends down along the side boundary between the development plot and the neighbouring property at 47 Church Lane. This proposal also involves the formation of a new point of vehicular and pedestrian access through the front boundary wall (the existing vehicular access serving the plot would be closed and blocked up).

RELEVANT PLANNING HISTORY

Other previous and relevant planning applications relating to this site include:-

98/01033/OUT – An outline application for the erection of a dwelling and garage. This application was conditionally approved on the 31st of July 1998.

06/01784/OUT – An outline application for the erection of a dwelling and garage (a renewal application submitted under Section 73 to vary the time limit of the approval commencement dates). This application was conditionally approved on the 7th of July 2006.

SUMMARY OF REPRESENTATIONS

3 letters of representation have been received in response to this application (this includes a letter from the Dore Village Society). The representations have all raised concerns/objections about this proposal, and those concerns/objections have been summarised and are listed below:

222 - The proposal will result in the loss of some mature hedging and mature trees currently located within the site. Those elements of greenery provide useful privacy screens and vital habitats for wildlife.

- The proposed dwelling should be constructed using sympathetic facing and roofing materials such as natural stone, painted render and natural slate.

- The proposed rear building line of the property extends too far back into the garden and consequently this will significantly reduce the amount of natural light entering neighbouring properties and gardens.

- The first floor rear facing bedroom window will overlook the neighbouring garden.

- Because the proposed dwelling extends deep into the rear garden, the proposal will lead to an existing mature conifer tree needing to be removed - the conifer tree currently provides some degree of privacy.

- The proposed ground floor off-shot dining room section is not a problem, however, there should be a restriction preventing any further extensions above the off-shot dining room.

- The proposed entrance door on the side elevation of the property facing towards 47 Church Lane is close to the lounge of 47 Church Lane and therefore, there could be an increase in noise disturbance caused by the comings and goings from the proposed side entrance door.

- There is a concern that the mature beech hedge forming the boundary between the development plot and number 47 Church Lane will need to be taken out.

- There is a discrepancy with the boundary line between the application site and the neighbouring property at 47 Church Lane.

PLANNING ASSESSMENT

Policy Issues

The site is identified as forming part of a Housing Policy Area within the Unitary Development Plan (UDP) and as such, Housing is the preferred use within the terms of Policy H10 of the UDP.

Policy H14 seeks to ensure that developments in Housing Areas are of appropriate scale and character, do not impact adversely on neighbours’ amenities and provide safe access to the highway network.

Policy CS31 of the Sheffield Development Framework Core Strategy seeks to ensure that the character of south-west Sheffield is safeguarded and requires the

223 scale of development to be at an appropriate density where infill development occurs.

Design Issues

The height and overall form of the building is consistent with that of other dwellings in the area. There is a mixture of facing and roofing materials on other neighbouring properties within the immediate area and therefore, it is felt that there is no set or prevailing character. Given that this property will be seen in the street scene as being in close context with the two adjoining properties, it is felt appropriate to ensure that the facing and roofing materials are derived from the characteristics of the immediate neighbouring properties. In this respect therefore, there is a mixture of render and natural stone finishes and plain rosemary and profiled roof tiles. Whilst natural slate is quite often seen as a quality roofing material, it does not seem appropriate to insist on natural slate in this context. It is felt appropriate to impose a planning condition requiring details of facing and roofing materials to be submitted to and approved by the Local Planning Authority.

The proposed scheme has been amended such that the footprint of the property has been moved one metre forward, this will ensure that the proposed new dwelling will comfortably sit on a similar building line to both the adjacent properties and also satisfy the City Council’s Supplementary Planning Guidance (guideline 5 – the 45 degree rule) which aims to reduce overbearing and massing of domestic extensions and buildings in close proximity of neighbouring property windows. It is also worth noting that the majority of properties on this stretch of Church Lane are different in style and character and have varying footprint layouts and building lines and therefore, it is felt that there is no defining building line or footprint shape that needs to be adhered to. It is quite evident however that the proposed new building will sit on a similar front building line to the adjoining two properties.

Impact on Residential Amenities

The neighbouring property number 47 Church Lane has an existing first floor main habitable window on the gable elevation facing towards the development plot, it is evident that this window has been formed in the gable as a direct consequence of a large two storey rear extension being added to the rear of number 47. It considered unreasonable to offer the same level of protection to side facing windows close to the boundary as would be offered to main habitable room windows built on either the front or rear of a property.

The concerns raised by neighbouring residents with regard to first floor bedroom windows overlooking neighbouring gardens and, side entrance doors being close to the boundary leading to increased noise levels, is no different to many existing neighbouring properties elsewhere in Sheffield and throughout the country. Existing mature high-level hedging will provide some degree of privacy, but it is generally accepted that there is inevitably always going to be some degree of overlooking onto neighbouring gardens from first floor rear facing bedroom windows. The amenity areas to the immediate rear of properties is generally the area that is considered of greatest importance and therefore given that the proposed dwelling does project out at the rear slightly further than the two existing

224 neighbouring properties, inevitably the “important” amenity areas will be protected to some degree. The submitted plans show a proposed first floor secondary bedroom window on the side/gable elevation facing towards 49 Church Lane, the applicant has agreed for a condition to be imposed requiring the window to be obscure glazed and fixed non-openable. This should ensure that privacy levels are maintained.

As previously mentioned, the applicant has agreed to reposition the footprint of the proposed dwelling slightly forward (by one metre), and this alteration will ensure that the proposal accords with guideline 5 of the Council’s supplementary Planning Guidance – “Designing House Extensions”.

The proposed dwelling will have adequate window to window separation distances and it is felt that the proposal is unlikely to adversely affect the living conditions of neighbouring residents.

The proposed dwelling will have a more than adequate rear garden depth of approximately 34 metres which is fairly typical of other properties in the area and therefore, in this respect it is felt that the nature of the proposed dwelling does follow and respect the character of other properties in the area.

In order to ensure that there will be adequate privacy levels between the proposed new dwelling and the existing dwelling at 49 Church Lane, it is felt appropriate to require some form of boundary treatment along the new party boundary between the two properties. A suitably worded planning condition will ensure that either a fence or hedge is provided along the newly formed boundary.

Highway Issues

Officers have assessed this proposal and consider (subject to adequate intervisibility splays being provided and, the parking accommodation being provided and thereafter retained) that this proposal is unlikely to cause any highway safety issues. The redundant access drive and crossing will also need to be blocked up and appropriately reinstated. Again this can be a requirement of a planning condition.

Landscaping Issues

Officers have assessed the existing landscaping on the site and feel that the two main trees that will be lost as a result of this development are mature conifer type trees that are purely ornamental in nature, officers feel that it would be appropriate to request (by use of a planning condition) a requirement for the applicant to submit a detailed landscaping scheme in which officers would seek to ensure that (i) some replacement planting takes place and, (ii) that the front and side boundary hedging is retained and replanted if necessary. In this regard, officers are mindful that the existing site frontage does have an attractive boundary wall with mature hedging behind.

RESPONSE TO NEIGHBOUR REPRESENTATIONS

225

Several issues raised by objectors have already been addressed in the “Planning Assessment” section of this report. The points not previously covered are addressed below:

The front boundary of the development will result in the partial loss of a section of walling and beech hedge to accommodate the new vehicular access drive, the applicant has verbally indicated that the existing access drive will be blocked up using the natural stone taken out from the existing front boundary wall. This can also be ensured by use of an appropriately worded planning condition.

Any future proposals to extend the property at first floor level (i.e. above the off- shot ground floor dining room) would more than likely require planning permission. A planning condition removing the Permitted Development rights would also ensure that the dwelling could not be extended or altered without planning permission first being obtained. Given the position of the dwelling in the plot, it would be reasonable to impose the “removal of permitted development rights” condition.

The concern relating to a discrepancy in the actual boundary positioning is a boundary/land ownership dispute and therefore, a matter for members of the legal profession to resolve along with the party neighbours.

SUMMARY AND RECOMMENDATION

The proposed dwellinghouse will be constructed in sympathetic facing and roofing materials appropriate to the site in the context of neighbouring properties. The modern/conventional design concept of the property is considered to be appropriate in this setting/location where there are clearly a mixture of house types and styles. This proposal accords with both the Sheffield Unitary Development Plan and approved Supplementary Planning Guidance. The development is unlikely to harm the residential amenities of occupiers of neighbouring properties and is unlikely to affect the character of the area. It is felt that this development is appropriate and therefore, for this reason, it is recommended that this proposal be conditionally approved.

226

Case Number 09/00523/FUL

Application Type A Full Planning Application

Proposal Mixed use development comprising of the erection of a retail foodstore (Use Class A1), offices, petrol filling station, neighbourhood retail units with associated public realm and construction of car parking, access roads, pedestrian access and landscaping (Environmental Impact Assessment Development) (In accordance with amended plans and details received 27th April 2009)

Location Site Of 1, 3 And 5 Savile Street Sheffield S4 7UD

Date Received 19/02/2009

Team NORTH & WEST

Applicant/Agent Development Planning Partnership LLP

Recommendation GRA GC subject to Legal Agreement

Subject to:

1 The development shall be begun not later than the expiration of three years from the date of this decision.

In order to comply with the requirements of the Town and Country Planning Act.

2 Before the development commences details of the phasing of the development shall be submitted to and approved in writing by the Local Planning Authority.

To ensure that the development is carried out in a comprehensive manner in the interests of the locality.

3 Prior to the occupation of the food store, or within an alternative timescale to be agreed in writing with the Local Planning Authority, the neighbourhood retail units shall be fitted with completed shop fronts and external elevations to an agreed specification, the detail of which shall have first been approved in writing by the Local Planning Authority. Thereafter the development shall be carried out in accordance with the approved details.

In order to ensure an appropriate quality of development.

227 4 A maximum of 10,487 sq m gross floorspace and a maximum of 6,802 sq m of net lettable sales floor space shall be provided in the retail store, (excluding lobby, customer toilets, customer services and coffee shop) of which a minimum of 3,766 m sq shall be for the sale of convenience goods inclusive of health and beauty products. These limits shall not at any time be contravened unless agreed in writing with the Local Planning Authority.

To safeguard the vitality and viability of district centres and the City Centre.

5 At no time shall a prescription pharmacy or post office be provided within the retail food store.

To protect the vitality and viability of the District Shopping Centre.

6 The use of the neighbourhood retail units shall be in accordance with Use Classes A1, A2, A3, A4 and A5 of the Town and Country Planning Use Classes (Amendment) Order 2005, excluding use as a post office and as a prescription pharmacy.

To protect the vitality and viability of the District Shopping Centre.

7 Each of the neighbourhood retail units shall at all times remain physically separated from the superstore retail floor space and no single neighbourhood retail unit shall exceed 350 sq metres gross floorspace, unless otherwise agreed in writing with the Local Planning Authority.

To protect the vitality and viability of the District Shopping Centre.

8 The office accommodation hereby permitted shall be used in accordance with Class B1 of the Town and Country Planning Use Classes (Amendment) Order, 2005.

To protect the vitality and viability of the City Centre.

9 Prior to the commencement of each phase of the development, details of all external materials and finishes, including the following, shall be submitted to and approved in writing by the Local Planning Authority:

(a) All facing and roofing materials (including material samples). (b) All hard landscaping materials (including material samples). (c) All external works (including material samples). (d) Window frames and glazing (including material samples). (e) Main visitor and staff entrance doors. (f) Boundary treatment and means of enclosure. (g) Design and location of all external light fittings. (h) Design of the cycle shelters and street furniture (i) Louvers and grills (j) Street lighting (k) Mono draught wind catchers

228 The development shall be carried out in accordance with the approved details unless otherwise agreed in writing by the Local Planning Authority.

In the interests of the amenities of the locality and to ensure a high quality development.

10 Prior to the commencement of development the final finish and detailing, including material samples, of the mesh façade cladding, shall have been submitted to and approved in writing by the Local Planning Authority.

In order to ensure an appropriate quality of development.

11 Notwithstanding the 1:50 sections submitted for approval, further façade details at a scale of 1:20 of the items listed below, shall have been submitted to and approved in writing by the Local Planning Authority before development commences:

(a) Glazed office entrance from Savile Street (b) Typical façade details taken from the Carlisle Street Elevation, including neighbourhood retail store canopies, glazed main store entrance and canopy (c) Means of Escape (c) Plant Rooms (e) Eaves, Verges and Soffits (f) Service Entrance Doors (g) Louvers and Grilles (h) Roof lights (i) Savile Street Atrium Entrance (j) Glazed Atrium

Thereafter the development shall be carried out in accordance with the approved details.

In the interests of the amenities of the locality and to ensure a high quality development.

12 The development shall not be brought into use unless the following have been provided in accordance with details of their specification and management. They shall first have been submitted to and approved in writing by the Local Planning Authority.

(a) Disabled parking spaces (b) Low emission vehicle priority zone (c) Cycle parking (d) Refuse storage facilities (e) 6 Electrical car charging points

Thereafter all of the above shall remain operational in accordance with the approved details for the life time of the development, unless otherwise agreed in writing with the Local Planning Authority.

229

In the interests of the amenities of the locality and the interests of sustainable forms of travel.

13 Within six months from the commencement of development a lighting strategy for the buildings shall have been submitted to and approved in writing by the Local Planning Authority. The strategy shall include:

(a) Any external lighting to the building including fixings and design of lighting units. (b) Lighting to the car park and how this is to relate to the building façade

The development shall thereafter be carried out in accordance with the approved details.

In order to ensure an appropriate quality of development.

14 The development shall not be used unless the access and facilities for people with disabilities shown on the plans have been provided in accordance with the approved plans and thereafter such access and facilities shall be retained.

To ensure ease of access and facilities for disabled persons at all times.

15 Prior to the commencement of development, a Framework Travel Plan, designed to: reduce the need for and impact of motor vehicles, including fleet operations; increase site accessibility; and to facilitate and encourage alternative travel modes, shall have been submitted to and approved in writing by the Local Planning Authority. The Framework Travel Plan shall include:

1. Clear and unambiguous objectives, modal split targets and an indicative programme of implementation 2. A monitoring, review and reporting programme in accordance with Sheffield City Council's 'Monitoring Schedule'; and, 3. Details of arrangements to inform future occupiers of the requirement to develop, implement and monitor detailed Travel Plans, in accordance with the approved Framework Travel Plan and the condition outlined below.

In the interests of delivering sustainable forms of transport, in accordance with the Transport Policies in the adopted Unitary Development Plan for Sheffield and PPG13.

16 Prior to the occupation of any part of the development, a detailed Travel Plan(s), designed to: reduce the need for and impact of motor vehicles, including fleet operations; increase site accessibility; and to facilitate and encourage alternative travel modes, shall have been submitted to and approved in writing by the Local Planning Authority. Detailed Travel Plan(s) shall be developed in accordance with a previously approved Framework

230 Travel Plan for the proposed development, where that exists. The Travel Plan(s) shall include:

1. Clear and unambiguous objectives and modal split targets; 2. An implementation programme, with arrangements to review and report back on progress being achieved to the Local Planning Authority in accordance with the 'Monitoring Schedule' for written approval of actions consequently proposed, 3. The results and findings of the monitoring shall be independently verified/validated to the satisfaction of the Local Planning Authority. 4. The verified/validated results will be used to further define targets and inform actions proposed to achieve the approved objectives and modal split targets.

On occupation, the approved Travel Plan(s) shall thereafter be implemented, subject to any variations approved in writing by the Local Planning Authority.

In the interests of delivering sustainable forms of transport, in accordance with the Transport Policies in the adopted Unitary Development Plan for Sheffield and PPG13.

17 Before the development is commenced, details of the following shall have been submitted to and approved in writing by the Local Planning Authority. Once approved these items shall be implemented as approved and maintained thereafter as appropriate.

1) Details of new retaining walls or changes to existing retaining walls which offer support to the public highway, these details to include all necessary structural calculations. 2) Shower and changing facilities for staff at the store and office units. 3) Signage proposals within the site for vehicles and pedestrians and external signage proposals for vehicle, pedestrian and cycle access to the site.

To enable the above-mentioned highways to accommodate the increase in traffic, which, in the opinion of the Local Planning Authority, will be generated by the development.

18 Within 6 months of the occupation of the food store the developer will arrange for traffic count data to be correlated from loop detector units to be installed at the Savile Street and Spital Hill access points of the site. The traffic counting shall then take place for a 1 month period and be repeated annually for 2 years. The traffic count data results shall then be submitted to and approved in writing by the Local Planning Authority.

To enable the above-mentioned highways to accommodate the increase in traffic, which, in the opinion of the Local Planning Authority, will be generated by the development.

231 19 The development shall not be begun until the highways improvements (which expression shall include traffic control, pedestrian and cycle safety measures) to the highways listed below have either;

a) been carried out; or b) details have been submitted to and approved by the Local Planning Authority of arrangements which have been entered into which will secure that such improvement works will be carried out before any part of the development is brought into use.

Highway Improvements:

1. Construction of highway works to Savile Street including new signalised site entrance, revised pedestrian crossing adjacent to Savile House, new bus lay-by, cycle lane and footway reconstruction works to equivalent urban design compendium standards, generally in accordance with drawing No. 6130 - P202C

2. Construction of highway works to Spital Hill including new signalised site entrance (including cycle crossing facilities), works to also include footway reconstruction works to equivalent urban design compendium standards, also generally in accordance with drawing No. 6130 - P203 C and 6130 - P204 C

3. Works to "Caborns Corner" including the removal of vehicle traffic (except cycles), provision of taxi rank facilities, as shown in draft on drawing No. 6130 - P204C

4. Provision of new bus shelters including real time information displays on inbound and outbound bus stops to Spital Hill and Savile Street adjacent to the site and a public transport information kiosk within the food store to include real time information.

5. Construction of a revised junction layout to Carlisle Street/Gower Street/Sutherland Street junction, to amend priorities with respect to the removal of through traffic on Carlisle Street, works generally to be of a scale indicated on Mouchel’s drawings NO.718488/ 100/ 01 (although the road priorities may be amended).

6.Traffic management measures to the Carlisle Street, Sorby Street, Gower Street block, to provide suitable vehicle routes for HGV’s that need to access this area, works to include all necessary lining and signing measures, including any necessary TRO’s.

Unless otherwise agreed in writing with the Local Planning Authority.

To enable the above-mentioned highways to accommodate the increase in traffic, which, in the opinion of the Local Planning Authority, will be generated by the development.

232 20 Prior to the improvement works indicated in the preceding condition being carried out, full details of these improvement works shall have been submitted to and approved in writing by the Local Planning Authority to specifically include the detailed design of works to Spital Hill, which must be completed and approved as this may impact on the layout of the new entrance, retaining walls and office positions.

In the interests of traffic safety and the amenities of the locality.

21 The development shall not be used unless all redundant accesses have been permanently stopped up and reinstated to kerb and/or footway and means of vehicular access shall be restricted solely to those access points indicated in the approved plans.

In the interests of traffic safety and the amenities of the locality.

22 Before the development is commenced, details of the means of ingress and egress for vehicles engaged in the construction of the development shall have been submitted to and approved in writing by the Local Planning Authority. Such details shall include the arrangements for restricting the vehicles to the approved ingress and egress points. Ingress and egress for such vehicles shall be obtained only at the approved points.

In the interests of traffic safety and the amenities of the locality.

23 At all times that development is being carried out equipment shall be provided to the satisfaction of the Local Planning Authority for the effective cleaning of the wheels and bodies of vehicles leaving the site so as to prevent the depositing of mud and waste on the highway but before the development is commenced full details of such equipment shall have been submitted to and approved by the Local Planning Authority. When the above-mentioned equipment has been provided thereafter such equipment shall be used for the sole purpose intended in all instances and be properly maintained.

In the interests of the safety of road users.

25 The food store shall not be occupied unless full details of the following have been submitted to and approved in writing by the Local Planning Authority;

(a) Car parking management strategy to include details of how the waiting restrictions for the food store car park are to be controlled and enforced

233 (maximum stay of 3 hours), how the service access routes are to be controlled, how access to the office car park is to be controlled and details of how access to the car park is to be controlled if demand for car parking spaces exceeds supply. (b) Servicing and delivery arrangements for the office and neighbourhood retail units to include details of how deliveries will be made to and waste taken from the neighbourhood retail and office units.

Thereafter such approved management strategies shall be implemented and retained.

In order to ensure that management of car parking spaces reflects the aims of the Travel Plan in reducing unnecessary travel, car parking efficiency is maximised and appropriate servicing and waste collection procedures are in place to prevent serving and deliveries occurring from the public highway.

26 A maximum of 739 car parking spaces shall be provided within the development, of these spaces 74 shall be dedicated to the office accommodation once completed on a long stay basis and 665 spaces dedicated to the retail superstore and neighbourhood retail units once completed on a short stay (3 hours maximum) basis. There shall be no increase or decrease in overall parking numbers or variance in the split of parking spaces unless otherwise agreed with the Local Planning Authority.

In the interests of traffic safety and provision of appropriate parking.

27 There shall be no gates or barriers erected at the means of access to the site from Spital Hill or Savile Street unless otherwise agreed in writing by the Local Planning Authority.

In the interests of traffic safety and the amenities of the locality and to ensure access is available at all times.

28 Prior to the commencement of development details of any vehicle height restricting barriers to be erected on site or attached to the building shall be submitted to and approved in writing by the Local Planning Authority. Thereafter the development shall be provided in accordance with the approved details.

In the interests of highway safety and the visual amenities of the locality.

29 All service and delivery vehicles serving the site and those vehicles engaged in site clearance and construction shall as a minimum meet Euro III vehicles emission standards and by 2011 meet Euro IV emission standards unless otherwise agreed in writing with the Local Planning Authority.

In the interests of air quality.

234 30 Prior to the commencement of development or within an alternative time period to be agreed with the Local Planning Authority full details of both hard and soft landscape works shall have been submitted to and approved in writing by the Local Planning Authority and these works shall be carried out as approved. The landscape works shall be implemented prior to the development being brought into use or within an alternative timescale to be first agreed in writing with the Local Planning Authority. Thereafter the landscaped areas shall be retained and they shall be cultivated and maintained for a period of 5 years from the date of implementation and any plant failures within that five year period shall be replaced unless otherwise agreed by the Local Planning Authority. These details shall include proposed finished levels or contours; means of enclosure; car parking layouts and surfacing; other vehicle and pedestrian access and circulation areas; hard surfacing materials; minor artefacts and structures (such as street furniture, equipment, refuse or other storage units, signs, lighting.), public art enabling work, bollards to meet pas68/69 anti ram requirements and soft landscaping including plant and tree species.

In the interests of the amenities of the locality.

31 Before the occupation of any part of the development a detailed management/maintenance strategy for the public realm works at Caborn’s Corner and within the site boundaries, including soft and hard landscaping shall be submitted to and approved in writing by the Local Planning Authority. The management strategy shall include long term design objectives, management responsibilities and maintenance schedules for all public open space and landscaped areas. Thereafter the public realm works shall be maintained in accordance with the approved management strategy and any subsequent variations to the strategy shall have received the prior written approval of the Local Planning Authority.

In order to ensure an appropriate quality of development.

32 Prior to the commencement of development details of the trees including species (Extra Heavy Standard) to be planted within the application site shall be submitted to and approved in writing by the Local Planning Authority and include:

1) Methods of planting 2) Details of tree pits and up lighters

The development shall thereafter be carried out in accordance with the approved details.

In the interests of satisfactory landscaping.

33 Unless otherwise agreed in writing the proposed green walls (vegetated wall system) shall be provided prior to the use of the food store commencing. Full details of the green wall construction and specification, together with a maintenance schedule, shall be submitted to and approved by the Local

235 Planning Authority prior to works commencing on site. The plant sward shall be maintained for a period of 5 years from the date of implementation and any failures within that period shall be replaced.

In the interests of satisfactory landscaping.

34 Notwithstanding the submitted plans the commemorative tree and plaque dedicated to Mr Caborn located within the current landscaped area at the junction of Spital Hill and Carlisle Street shall be replanted or replaced with a suitable species on completion of the public realm improvements at Caborn’s Corner unless otherwise agreed in writing with the Local Planning Authority.

In the interests of the amenities of the locality.

35 Prior to the commencement of development full details of locations and numbers of bird and bat boxes to be incorporated into the building and/or on any sites agreed adjoining the development, shall have been submitted to and approved in writing by the Local Planning Authority. Such details shall be in place before any part of the development is brought into use and retained in full working order thereafter.

In the interests of biodiversity.

36 No materials, waste and/or products of any sort shall be stored outside of the allocated on site storage and service yard unless otherwise agreed in writing with the Local Planning Authority.

In the interests of the visual amenities of the locality.

37 No amplified sound or live music shall be played nor shall loudspeakers be fixed at any time outside the building within any proposed outdoor eating and/or drinking area.

In order to protect the health and safety of future occupiers and users of the site. In the interests of the amenities of the locality.

38 Amplified sound or live music shall only be played within the neighbourhood retail stores and main retail store in such a way that noise breakout to the street does not exceed:

(i) Background noise levels by more than 3 dBA when measured as a 15 minute LAeq. (ii) Any octave band centre frequency by more than 3 dB when measured as a 15 minute Leq when measured at the façade of the nearest noise sensitive building.

In order to protect the health and safety of future occupiers and users of the site. In the interests of the amenities of the locality.

236 39 The office accommodation hereby permitted shall not be occupied unless a scheme of sound attenuation works has been installed and thereafter retained. Such scheme of works shall be capable of achieving the following internal noise levels:

(i) Internal noise levels of Noise Rating Curve NR45

Before the scheme of sound attenuation is installed full details thereof shall have been submitted to and approved in writing by the Local Planning Authority.

In the interests of the amenities of the future occupants of the development.

40 Before the use of the office space is commenced a Validation Test of the sound attenuation works shall have been carried out and the results submitted to and approved in writing by the Local Planning Authority. Such Validation Test shall:

(a) be carried out in accordance with an approved method statement, (b) demonstrate that the specified noise levels have been achieved.

In the event that the specified noise levels have not been achieved, then notwithstanding the sound attenuation works thus far approved, a further scheme of sound attenuation works capable of achieving the specified noise levels and recommended by an acoustic consultant shall be submitted to and approved in writing by the Local Planning Authority before the use of the development is commenced. Such further scheme of works shall be installed as approved, before the use is commenced and shall thereafter be retained.

In the interests of the amenities of the future occupants of the development.

41 The neighbourhood retail units shall be operated only between 0900 hours and 2330 hours Mondays to Saturdays and 0900 hours and 2300 hours on Sundays and Public holidays.

In the interests of the amenities of the locality.

42 Before the use of the development within use classes B1, A1, A2, A3, A4 and A5 commences the hours of deliveries and movement of commercial waste associated with those uses shall be submitted to and approved in writing by the Local Planning Authority.

In the interests of the amenities of the locality.

43 No externally mounted plant or equipment for heating, cooling or ventilation purposes, nor grilles, ducts, vents for similar internal equipment, shall be fitted to the building unless full details thereof have first been submitted to and approved in writing by the Local Planning Authority, and once installed

237 such plant or equipment should not be altered without prior written approval of the Local Planning Authority.

In the interests of the amenities of the locality and occupiers of the building

44 At the boundary of the development site the level of noise from all externally mounted plant, equipment and vent extracts shall be such as to provide sound attenuation such that the rating level of noise emitted from fixed plant on the site shall not at any time exceed 5dB above the existing background level in all octave bands of the existing background noise level.

In order to protect the health and safety of future occupiers and users of the site.

45 Should remediation be recommended in the Phase II Intrusive Site Investigation Report, development shall not commence until a Remediation Strategy Report has been submitted to and approved in writing by the Local Planning Authority. The Remediation Strategy Report shall be prepared in accordance with Contaminated Land Report CLR11 (Environment Agency 2004) and PPS23. In the event that remediation is unable to proceed in accordance with an approved Remediation Strategy, or unexpected contamination is encountered at any stage of the process, the Local Planning Authority shall be notified immediately. Revisions to the Remediation Strategy shall be submitted to and approved in writing by the Local Planning Authority. Works shall thereafter be carried out in accordance with the approved revised Remediation Strategy.

In order to protect the health and safety of future occupiers and users of the site.

46 Following completion of any measures identified in the approved Remediation Strategy or any approved revised Remediation Strategy a Validation Report shall be submitted to the Local Planning Authority. The Validation Report shall be prepared in accordance with Contaminated Land Report CLR11 (Environment Agency 2004) and PPS23. The site shall not be brought into use until all the validation data has been approved in writing by the Local Planning Authority on completion of the works outlined in the approved Remediation Strategy Report.

In order to protect the health and safety of future occupiers and users of the site.

47 The construction phase mitigation measures identified in the approved Air Quality Assessment shall be implemented at all times during the demolition and construction works on site. Such mitigation measures shall deal with prevention, suppression and containment of pollutants. These mitigation measures shall include the establishment of baseline conditions prior to the commencement of works on site and suitable methods of on going monitoring and management of impacts during the demolition and construction works.

238

In the interest of air quality.

48 The site shall be developed with separate systems of drainage for foul and surface water on and off the site unless otherwise agreed in writing by the Local Planning Authority.

In order to allow sufficient access for maintenance and repair work at all times.

49 No development shall take place until details of the proposed means of disposal of foul and surface water drainage, including details of any balancing works and off-site works, have been submitted to and approved in writing by the Local Planning Authority.

In order to ensure that the development can be properly drained.

50 Prior the commencement of development a scheme for the limitation of surface water run-off shall be submitted and approved in writing. This scheme shall aim to reduce surface water run-off by 30%. The development should proceed in accordance with the approved scheme.

To ensure the development complies with PPS25 and does not increase the risk of flooding elsewhere and decreases it where possible.

51 Unless otherwise approved in writing by the Local Planning Authority, there shall be no piped discharge of surface water from the development prior to the completion of the approved surface water drainage works and no building shall be occupied or brought into use prior to the completion of the approved foul drainage works.

To ensure that no foul or surface water discharges take place until proper provision has been made for their disposal.

52 Surface water from vehicle parking and hard standing areas if required shall be passed through an interceptor of adequate capacity prior to discharge to the public sewer. Roof drainage should not be passed through any interceptor.

In the interest of satisfactory drainage.

53 The development herby permitted by this planning permission shall only be carried out in accordance with the approved Flood Risk Assessment (FRA) by JBA Consulting and the following mitigation measures detailed in the FRA:

1. Limiting surface water run-off from the development site with a 30% reduction from existing runoff rates. The FRA (page 17) states that this shall be achieved by using porous pavements or tank sewers

239 2. A flood plan which identifies and provides safe route(s) into and out of the site to an appropriate safe haven. 3. Flood proofing measures as stated in the approved FRA 4. Finished floor levels are set no lower that 46.38 m above Ordnance Datum (AOD) which is above the 1.100 year plans

In the interest of satisfactory flood prevention and mitigation.

54 The development hereby permitted shall not be commenced until such time as a scheme to install the underground fuel storage tank(s) has been submitted to and approved in writing by the Local Planning Authority. The scheme shall include full structural details of the installation, including details of excavation, the tank(s), tank surround, associated pipe work and monitoring system. The scheme shall be fully implemented and subsequently maintained, in accordance with the scheme, or changes as may be subsequently maintained, in accordance with the scheme, or any changes as may subsequently be agreed, in writing, by the Local Planning Authority.

To ensure the proposed petrol filling station does not pose a risk to controlled waters.

55 Unless it can be shown not to be feasible and viable each building within the development shall;

(a) Not commence until a BREEAM pre assessment report demonstrating the measures which are to be employed to achieve the ‘very good’ rating including time scale for implementation have been submitted to and approved in writing Local Planning Authority; and

(b) Not be occupied unless a validation test report has been submitted to and approved in writing by the Local Planning Authority showing that the BREEAM ‘very good’ rating has been achieved.

All measures set out in the approved report shall be installed prior to the occupation of the building and thereafter remain in place and operational for the lifetime of the development unless otherwise agreed in writing with the Local Planning Authority.

In the interests of sustainable forms of development.

56 Unless it can be shown not to be feasible and viable the development shall not be occupied unless the measures identified in the Ove Arup Sustainable Buildings Statement dated December 2008 are provided in order to;

a) Generate a minimum of 10% of the developments predicted energy needs from decentralised and renewable or low carbon energy; and b) Generate further renewable or low carbon energy or incorporate design measures sufficient to reduce the development's overall predicted carbon dioxide emission by 20% compared to the 2006 Buildings Regulations

240 Target Emission Rate. This would include the decentralised and renewable or low carbon energy required to satisfy part (a).

The agreed renewable or low carbon energy and design measures to reduce the carbon dioxide emissions shall have been installed before the buildings are occupied. Thereafter the approved measures or alternative measures that achieve the same percentages of renewable or low carbon energy and reduced carbon dioxide emissions shall be operated for the lifetime of the development unless otherwise agreed in writing by the Local Planning Authority.

In order to ensure that new development makes energy savings in the interests of mitigating the effects of climate change and in accordance with Core Strategy Policies CS64 & CS65.

57 Prior to the occupation of the neighbourhood retail units an advertisement signage strategy for the neighbourhood retail units to include details of location, design and illumination of signage shall be submitted to and approved in writing by the Local Planning Authority. Thereafter all individual occupiers signage shall accord with the approved strategy.

In the interest of the visual amenities of the locality.

58 No development shall take place until the applicant, their agent, or their successor in title has secured the implementation of a programme of archaeological work in accordance with a written scheme of investigation that has been submitted to, and approved in writing by, the Local Planning Authority.

To ensure that access is available for monitoring work and for recording any finds/features revealed.

59 Before the development is commenced full details of the proposed refuse and recycling storage facilities to be provided to serve the development shall have been submitted to and approved in writing by the Local Planning Authority. The details shall include a method statement indicating how the facilities will be managed and serviced and how occupiers of the proposed development will be encouraged to maximise the use of the proposed recycling facilities to reduce general waste arising. Prior to the occupation of the proposed development the approved facilities shall have been implemented in conjunction with the approved method statement and shall thereafter be retained.

In order to ensure adequate waste management and recycling provision.

60 The development must be carried out in complete accordance with the following approved documents:

Plan reference number 6130_P202revC, 6130_P203revC, 6130_P204revC, 6130_P205revC, 6130_P206revC, 6130_P207revD, 6130_P208revD,

241 6130_P209revD, 6130_P210revC, 6130_P211revC, 6130_P213revB, 6130- P214revB. 6130_P221revA, 6130_P222revA, 6130_P223revA, 6130_P224revA, 6130_P225

unless otherwise authorised in writing by the Local Planning Authority.

In order to define the permission.

61 No servicing or deliveries to the site shall take place as part of the construction of the office element of the scheme between the hours of 0730 and 0930 and 1530 and 1830 Monday to Friday, unless otherwise agreed in writing with the Local Planning Authority.

In the interest of highways safety.

62 Prior to the commencement of the office element of the scheme a construction methodology statement and plan detailing the following shall be submitted to and approved in writing by the Local Planning Authority:

a) construction delivery schedules, b) Off site construction vehicle holding areas, c) Measures to prevent vehicles from queuing at the site access, d) Methods of controlling service and delivery vehicle ingress and egress from the site.

The construction shall, thereafter be carried out in accordance with the approved details unless otherwise agreed in writing by the local planning authority.

In the interest of highways safety.

63 Within three months of the commencement of development the details of the office hoarding public art shall have been submitted to and approved in writing by the Local Planning Authority and installed. Thereafter the public art hoardings shall be maintained for the lifetime of the construction phase to the satisfaction of the Local Planning Authority, unless otherwise agreed in writing with the Local Planning Authority.

In order to satisfy the requirements of Policy BE12 of the Unitary Development Plan and to ensure that the quality of the built environment is enhanced.

Attention is drawn to the following justifications:

242 SP2 - Sheffield as a Regional Centre SP3 - A City Centre for People S4 - District Centre Shopping S5 - Shop Developments outside the Central Shopping Area and District Centres S11 - Design of Retail Development S12 - Improvements to Shopping Centres IB6 - Development in Fringe Industry and Business Areas IB9 - Conditions on Development in Industry and Business Areas GE11 - Nature Conservation and Development GE22 - Pollution GE24 - Noise Pollution BE1 - Townscape Design BE3 - Views and Vistas in the City Centre BE5 - Building Design and Siting BE6 - Landscape Design BE7 - Design of Buildings Used by the Public BE8 - Access to Workplaces BE10 - Design of Streets, Pedestrian Routes, Cycleways & Public Spaces BE12 - Public Art BE22 - Archaeological Sites and Monuments T20 - Car Travel to the City Centre T21 - Car Parking T24 - Public Short-stay Car Parking CS37 - Firth Park, Spital Hill and Chaucer District Centres CS51 - Transport Priorities CS52 - Key Route Network CS53 - Management of Demand for Travel CS54 - Pedestrian Routes CS55 - Cycling Routes CS63 - Responses to Climate Change CS64 - Climate Change, Resources and Sustainable Design of Developments CS65 - Renewable Energy and Carbon Reduction CS66 - Air Quality CS67 - Flood Risk Management CS74 - Design Principles Sheffield Core Strategy CS75 - Improvements to Gateway Routes into and through the City National Policy PPS 1 PPS 6 PPG 13 PPG 22 PPS 23 PPS 25 RSS Yorkshire and Humber Burngreave and Firvale Masterplan Spital Hill - Options for a new foodstore

243 This informative is intended as a summary of the reasons for grant of planning permission.

Attention is drawn to the following directives:

1. If the water authority, or their agents, cannot confirm that there is adequate space capacity in the existing system, the applicant should be aware that they may be required to resubmit amended proposals to the water authority showing how they propose to drain the site, prior to the water authority granting consent.

2. Advice on access and egress from the site in the event of flooding should be sought from the local authorities emergency planners 0114 2736911.

4. The development will require the issuing of a formal postal address(s) by the City Council. This will apply even if the development is an infill site. Contact Lynn Fox on Sheffield 2736127 for details. Failure to carry out this process at an early stage may result in statutory undertakers refusing to connect services. The agreed address must be clearly displayed at each individual property before occupation in order to ensure that the postal service can correctly locate each property of delivery purposes.

6. The developer is advised that within the requirements for the highway works, a number of Traffic Regulation Orders will need to be made. The developer is expected to promote these orders and reimburse any costs incurred by the Council, this process should be started at the earliest opportunity, and you are advised to contact Eric Wilson 273 6178 to discuss this in more detail.

7. The developer is advised that all works on the public highway must be co- ordinated with and where necessary make allowance for the City Council’s telecommunications (Metropolitan network) strategy, you should contact Andy Bennett (0114 273 6249) for further information.

244 fee payable to the Local Planning Authority. An application to the Local Planning Authority will be required using the new national standard application forms. Printable forms can be found at www.sheffield.gov.uk/planning or apply online at www.planningportal.gov.uk. The charge for this type of application is £85 or £25 if it relates to a condition on a householder application for development.

9. From the 6th April 2008, the Town and Country Planning (Fees for Applications and Deemed Applications) Regulations 2008 require that all requests for confirmation of compliance with planning conditions require a fee payable to the Local Planning Authority. An application to the Local Planning Authority will be required using the new national standard application forms. Printable forms can be found at www.sheffield.gov.uk/planning or apply online at www.planningportal.gov.uk. The charge for this type of application is £85 or £25 if it relates to a condition on a householder application for development.

Site Location

245 SUPPLEMENTARY IINFORMATION

Members may recall that this application was presented to them for consideration on the 8th June this year. Negotiations regarding the wording of the section 106 agreement have continued since members recommended approval of the application and as such the decision notice has not yet been released.

The purpose of this report is to inform members of the developers proposed amended development phasing. The planning conditions attached to the original report require the office element of the scheme to be completed prior to the occupation of the food store. However it was noted in the original report that should the developer wish to pursue a split phased approach - building the superstore, neighbourhood retail units and public realm under an initial phase with delayed delivery of the office element of the scheme, this matter would be reported back to board for members consideration.

Since the grant of planning permission the applicant has reappraised the proposals in light of the current economic climate and considers the completion of the development in a single phase to be unviable, and if required by planning condition to deliver the scheme under a single phase the proposal as a whole could potentially be shelved for a period of three years.

The developer therefore proposes delayed phasing of the office development requiring a period of three years of the food store trading to finance the remainder of the project. It is proposed to phase the scheme as follows;

Phase 1 Completion of the food retail store, car parking, access arrangements, the small retail units and partial completion of the public realm works including Caborn’s corner.

Phase 2 Completion of the office and remaining public realm works by the 31st December 2015 following three years of the food store trading.

There are a number of concerns with this phased approach. The delayed delivery of the office building will leave this key gate way, edge of the city centre site located close to the listed Wicker Arches as a hoarded construction site for a period of approximately 5 years while the store is constructed and operated. The delayed phasing will remove the office building, associated perimeter active frontages and mix of uses on site and will expose the two level customer car park and various internal elevations that are obviously not of the same design quality as the approved office building. The delayed phasing will also mean that part of the public realm improvements around Spital Hill and along Savile Street which included new steps and concourse area will not be delivered in the first phase, albeit that a majority of these areas are currently surfaced in secondary palette materials.

In addition to these design and layout concerns, officers have also raised issues regarding the feasibility and financial implications of constructing the offices in the

246 phased manner proposed, due to the layout constraints imposed by the construction of the first phase, existing site retaining walls and topography of the surrounding land.

The applicant has submitted a development appraisal which has detailed proposed build costs as a result of the phased approach. The appraisal has been assessed by the Council’s Design and Project Management Team and the development costs attributed to the phased approach are not considered unreasonable or financially unviable for any future developer. The feasibility of the construction has also been considered including access arrangements for service vehicles which are vitally important given the highways constraints in the immediate vicinity.

The developer has submitted a construction methodology statement which details how the offices will be constructed. This methodology incorporates crane servicing, temporary possession of part of the Tesco car park for contractor parking and importantly details of how the site will be accessed and serviced by construction vehicles. It is proposed to provide a vehicle loading/unloading area within the site accessed from Savile Street to serve the construction of the offices. The applicant has demonstrated by way of vehicle tracking that within the constraints of the site a 6 axel articulated vehicle with steel overhang (largest vehicle required) could enter and exit the loading area. In order to minimise any impact of the construction access on traffic movement’s in the vicinity, delivery access will be controlled by condition preventing deliveries between 0730 and 0930 and 1530 and 1830 Monday to Friday. A construction methodology statement will also be conditional of any approval, requiring details of how the developers will deal with off site stacking of construction vehicles and appropriate ingress and egress in order to minimise any impact on vehicle traffic using Savile Street. Protected footways and pedestrian access to and around the site will be maintained through-out the construction process.

The phased approach raises a number of significant design and layout concerns. However there are also a number of regeneration and employment benefits as well as improvements in city wide shopping distribution derived as a result of the scheme being delivered albeit in the phased manner proposed.

The proposed phased delivery of the scheme can be suitably secured by way of a section 106 agreement, which will require the developer to complete the remaining public realm works and the office building by the 31st December 2015. This completion date ties in with a commencement of development of the food store, small retail and public realm works mid 2010 with an eighteen month building programme leading to anticipated completion by Christmas 2012. The offices site will then be left clear for two years before works commence on the offices which have an anticipated 12 month build programme in order to meet the 31st December 2015 overall completion deadline.

The applicant has also agreed to extend the public art project to cover the interim construction hoarding which will surround the office site. A public artist will be appointed to work with the community to come with up with various designs for the hoardings. This project will be similar to the hoardings that currently surround the former Nelson Mandela building adjacent to the train station.

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In order to allow this approach Condition 3 which required completion of the office building prior to the occupation of the food store will be amended to remove reference to the office development. Minor wording alterations to other conditions are also required to deal with the phased delivery of the scheme. As noted above the completion and phasing of development will be secured by section 106 agreements.

Additional Heads of terms

10. Phasing

Unless the Council agrees otherwise: (i) to complete the Phase 1 Works no later than the date that the Retail Food store opens for trade; and (ii) To Practically Complete the Offices no later than 31 December 2015. (iii) To complete the phase 2 public realm works no later than the 31st December 2015.

Public Art

A contribution of £3500 towards the provision of public art hoardings.

Recommendation

In conclusion, it is recommended that the amended phasing proposals are acceptable and planning permission should be granted subject to the above highlighted variations to condition 3, additional delivery hour constraints and construction methodology requirements, the previous heads of terms and additional heads of terms highlighted above. It is not considered necessary to refer this matter back to the Secretary of State as this has already been done and no adverse direction was received.

Original officer report follows:

LOCATION AND HISTORICAL CONTEXT

The application site is located at the south eastern edge of the Spital Hill District Shopping Centre, bound by Carlisle Street to the north, Savile Street to the south, Spital Hill to the west and Atlas Works to the east. The site is approximately 5 hectares in area and was formerly occupied by vehicle sales uses, which included external display areas, showrooms, parking areas and a petrol filling station.

A large majority of the 5 hectare developable area is located at the Savile Street level. The east and north boundaries of the site are defined by structural stone walls which retain Spital Hill and Carlisle Street, which is located approximately 8 metres above the level of the site. The application site also includes an area of highway at the junction of Carlisle Street and Spital Hill which is the site of a proposed pedestrian concourse.

248 The character of the area is varied, comprising of buildings of varying age and usage. Savile House is located opposite the site on Savile Street and is a 10 storey structure, recently refurbished for office accommodation. Other buildings along Savile Street are generally substantial 3 to 4 storey structures and include a Listed Saw Mill and car sales showrooms. The Listed Wicker Arches are located to the south side of Savile Street and comprise of a former railway bridge which spans Wicker and the junction of the Inner Relief Road. Spital Hill is defined by a mixture of commercial uses largely brick built with buildings set at the back edge of the pavement between 3 and 4 storeys in height. Lion Works, a grade II listed building, is located to the west of the site.

The site has been cleared and none of the existing structures other than the retaining walls and ramps adjacent to Spital Hill and Carlisle Street will be retained as part of the development.

The majority of the site falls within an allocated Fringe Industry and Business Area, however the proposed public square is situated in the Spital Hill District Shopping Centre as defined in the adopted Sheffield Unitary Development Plan.

PROPOSAL

Members may recall approving an outline planning application in January 2008 (planning ref 07/01733/OUT) for a mixed use scheme comprising of the following:

- A food store comprising of 10,216 sq metres of gross floor area inclusive of storage and staff facilities. 6,802 m sq of total net sales floor space. - 5535 sq metres of gross office floor space, which comprises of 3875m sq of net lettable B1 office space - 431 sq metres of neighbourhood retail floor space. - 879 car parking spaces inclusive of 110 long stay spaces - petrol filling station - New landscaping and public realm works.

Following revisions to enlarge the floor plates of the office accommodation fronting Savile Street, which has enabled the inclusion of additional neighbourhood retail uses, the proposals could not be considered as a reserved matter of the original proposal and a full planning application has been submitted.

The current proposals seek full planning permission for the following:

- A Food store comprising 10,487 sq m of gross floor space, 6802 sq metres total net sales floor space. - 822 sq metres of neighbourhood retail uses comprising of A1/A2/A3/A4/A5 uses. - B1 office space comprising of 5331 sq metres gross of B1 office space, 3875 sq metres of net lettable floor space. - 739 Parking spaces - A Petrol filling station - New landscaping and public realm works

249 Environmental Impact Assessment (EIA)

The requirement for the provision of an EIA & Environmental Statement (ES) under the Environmental Impact Assessment Regulations 1999 was assessed during the pre-application process. This is because the proposed development is considered to be an ‘Infrastructure Project’ under Schedule 2 Part 10 (b) of the Regulations (development in excess of 0.5 hectares site area and involves the construction of more than 10,000 sq metres of commercial floor space).

The applicants requested an EIA Screening Opinion on 10.9.08. After full consideration of the selection criteria in Schedule 3 of the Regulations (characteristics of the development, location of the development, characteristics of the potential impact), a screening opinion was issued by letter on 1.10.09, concluding that an EIA was required to accompany the application. The applicant has therefore submitted an Environmental Statement to assess the potentially adverse effects upon the environment, arising from the development.

Housing Market Renewal (HMR) Regeneration Context

The application site falls in the Burngreave Panel Area within the East Area Development Framework Area in the Transform South Yorkshire Housing Market Renewal Pathfinder. In this context the area has been the subject to a master planning exercise, that culminated in the production of the Burngreave Fir Vale Master Plan that was approved by Cabinet in May 2005 as a material consideration in the planning process.

The Spital Hill proposals in the Burngreave Fir Vale Master Plan include the creation of three distinctive zones:

- A consolidated retail core, that incorporates the redevelopment of the former Murco Garage site for a new indoor retail area, the restoration of Sorby House for community workspace, and public realm renewal; - A community core around the Ellesmere Green that builds upon community facilities with the restoration of Vestry Hall as a community learning resource centre, public realm improvements to Ellesmere Green, and the creation of new housing at the Ellesmere Elderly Persons Unit site, and - An Employment Zone at the area bounded by Spital Hill, Spital Street, Brunswick Road and the Inner Relief Road, where employment generating uses are promoted via new developments and the restoration of Listed Buildings.

The Master plan identified the need to provide a supermarket and identified an area of search for the development with a recommendation that a further study be carried out to determine the best location and retail capacity.

In the light of this the Council commissioned specialist consultants to undertake a Retail capacity Study and design exercise to identify potential development options.

250 The study highlighted Spital Hill’s deficiencies as a shopping centre, having the least convenience floor space of all Sheffield District Centres and poorly perceived as a location for food shopping. The study identified that an extra 3700sq metres of convenience goods floor space in addition to the food store (up to 1800 sq metres) already permitted under a separate consent at the Hartwell’s site could be accommodated, or an extra 3900 sq metres of convenience floor space if it was to replace the permitted Hartwell’s food store.

The area of search identified for a supermarket looked at existing sites within the District Shopping Centre and the current application site. The study assessed the physical feasibility of building a food store, including the number of businesses that would be affected by demolition to make way for the store and the cost of compensating those businesses. Two alternative options were identified:

Scenario A: a second small/medium sized retail store in the District Centre, in addition to the medium sized store already permitted on the Hartwell’s site

Scenario B: A larger food store up to 3900 sq metres net convenience floor space on the Hartwell’s site.

Both options were considered feasible but it was recommended that the larger food store on the Hartwell’s site was the better option as it would secure regeneration benefits for the District Centre, would place Spital Hill further up the hierarchy of District Centres, but not beyond the status of District Centre. However any new store would have to be fully integrated with the District Centre as a genuine anchor subject to design and highways issues. Cabinet subsequently endorsed the findings of these reports in January 2006 as a material consideration, making them official amendments to the Burngreave Fir Vale Master Plan. This endorsement in turn afforded the release of other sites previously considered for a supermarket for other development opportunities.

It is one of the key objectives of Housing Market Renewal to regenerate District Shopping Centres, as they are the key service centres for the wider residential neighbourhoods that play an integral role in making an area attractive, successful and sustainable in the longer term. The Spital Hill proposals within the Burngreave Fir Vale Master Plan aim to strengthen the currently ailing District Shopping Centre. The strategy for delivering this is

- to create a new food store that would improve the range, choice and quality of food shopping at the District Centre, - to increase footfall by increasing the number of people living in the area through stimulating new development, - to increase the number of people working and training in the area via the employment zone and restoration of Vestry Hall and Sorby House (currently nearing completion), and - to increase the use of community facilities (via the restoration of Vestry Hall and Sorby House alongside the strengthening of the community core).

Burngreave is classified as a deprived neighbourhood; the creation of a supermarket would conform to the principles of the Under Served Markets Project,

251 a national scheme which seeks to contribute towards neighbourhood renewal. The introduction of a new supermarket at Spital Hill would meet the needs of the community by increasing the range and quality of products and services, increase local employment and training opportunities, contribute towards increased footfall and prospective trade for local businesses, whilst also acting as a significant catalyst for regeneration by making Spital Hill increasingly viable and sustainable and attracting further inward investment. The development itself would improve the quality of the built environment, could improve safety and security with the natural surveillance of the District Shopping Centre and result in greater community pride.

The regeneration/renewal of Spital Hill will not only benefit existing communities within the Panel Area, but will also service new residential developments proposed in the Burngreave and Fir Vale Master Plan. These new developments on sites identified in the Master Plan include up to 50 dwellings at the Ellesmere EPU/ Gower Street car park site (partly within the District Shopping Centre), up to 57 dwellings at Catherine Street, and up to 300 dwellings at Woodside. In addition other speculative residential proposals within the area will come forward as a result of the Master Plan which will help to achieve the aims of the adopted Master Plan.

Burngreave New Deal for Communities and the Mixed Communities Pilot

Burngreave New Deal for Communities covers part of the Panel Area. Burngreave New Deal in partnership with Sheffield City Council have several regeneration schemes at Spital Hill under the Advancing Together Initiative. These include the Public Realm Renewal around Ellesmere Green, and the restoration/refurbishment of both Vestry Hall and Sorby House, which are key buildings in the locality that have stood empty for a number of years. This part of the Panel Area has also been identified as a Mixed Communities Pilot, due to progress being made in addressing comprehensive regeneration challenges via the partnership approach advocated between New Deal for Communities and the Council. The promotion of mixed income communities is seen as a key feature by Government to creating sustainable communities in successful neighbourhoods. The mixed community approach has three objectives as follows:

- Major changes to the housing stock and tenure/income mix - Improvements to the environment and quality of local schools and retail/leisure facilities - Action to tackle worklessness, low educational attainment, poor health, crime and antisocial behaviour.

The creation of a supermarket contributes towards this as it will improve the current offer at the District Shopping Centre and meet current/future needs, whilst also holding great potential for localised employment which is a key requirement to complement overall regeneration in the locality.

RELEVANT PLANNING HISTORY

The site benefits form an extant planning consent for the erection of a retail park inclusive of a small supermarket with a convenience floor space of 1860 sq metres

252 and comparison floor space of 7,726 sq metres comprising of retail units limited to sell bulky goods and an A3 food and drink use.

01/00270/OUT – Redevelopment of site to include retail (Class A1), Public House/restaurant (Class A3) and associated parking accommodation and landscaping(revised scheme) – Former Hartwell site Savile Street, Spital Hill and Carlisle Street. – Granted Conditionally.

04/00973/OUT - Erection of a A3 unit and associated car parking accommodation (as amended 21.07.04 and 22.07.04) – Granted Conditionally

04/03646/REM - Erection of 6 (Class A1) retail units and 1 (Class A3 - Food and Drink) retail unit and provision of associated car parking accommodation and landscaping works (as amended 07/04/05) – GC

07/00120/REM - Erection of retail units and car parking accommodation - Application to vary conditions 5, 10, 12, 13, 14, and 16 of 04/03646/REM to defer the timing of submission of details to 'Prior to the commencement of construction on any of the units above ground floor slab level' instead of 'Prior to works commencing on site' (condition 5), 'Prior to the commencement of the development' (condition 10) 'Before the development is commenced' (conditions 12, 13 and 14) and 'Before the development commences ' (conditions 16) (application under Section 73) (as amended 8.2.07) GC

07/00132/OUT - Erection of retail units (Class A1) and public house/restaurant (Class A3) car parking accommodation and landscaping - Application to vary condition 5 of 01/00270/OUT (9B/0177P) to defer the timing of submission of a noise survey to 'Prior to the commencement of construction on any of the units above the ground floor slab level' instead of 'Before the development is commenced' (Application under Section 73) (as amended 8.2.07) – GC

07/00141/OUT - Erection of retails units (Class A1) and public house/restaurant (Class A3) car parking accommodation and landscaping - Application to vary condition 17 of 01/00270/OUT (9B/0177P) to defer the timing of submission of details to secure highway improvements to 'No construction of any of the units above ground floor slab level shall take place until' instead of 'The development shall not begin' (application under Section 73) (as amended 8.2.07)

07/01733/OUT - Mixed use development comprising of the erection of a retail foodstore (use class A1), offices, petrol filling station, 3 retail units and construction of associated car parking, access roads, pedestrian access and landscaping (Environmental Impact Assessment development) (In accordance with amended plans received 13/11/2007) – Granted with a Legal Agreement.

PUBLIC CONSULTATION

Burngreave and Fir Vale Masterplan had several rounds of public consultation with more than 3000 people being involved in the process. The retail feasibility study produced by the council was also subject to consultation with the Spital Hill Project Group, Burngreave Area Panel and Burngreave New deal for Communities

253 partnership with all accepting the recommendation that a larger food store on the Hartwell’s site should be pursued prior to its endorsement by cabinet.

The submission of this full application builds on the community consultation undertaken at the outline stage when consultees were asked to consider the principle of the proposed food store, neighbourhood retail units and office development as well as the scale, access and layout of the scheme. The initial exercise included a number of different methods of consulting the community including;

- Press releases - 7000 flyers were distributed via the Burngreave Messenger outlining details of forthcoming exhibitions and venues, - Exhibitions, display boards, leaflet distribution with comment cards, Initial information was also provided in three key languages Urdu, Somali and Arabic and multi –lingual translation of full material was made available on request - Stakeholder briefings, - Area Panel briefing, - Councillor briefings, - A web site set was set up www.spitalhillpartnership.co.uk to distribute information and provide updates on the scheme. - Information leaflets were also available in a range of local schools, women’s groups and community centres throughout the area in order to engage harder to reach groups.

A total of 40 written feedbacks forms were received from this initial outline consultation exercise. 95% of respondents were in support of mixed use development on the site, 95% were in support of a Tesco superstore, 87.5 % were in favour of office development and 95% of recorded responses agreed that the proposed development would contribute to the regeneration of Burngreave.

Following on from this initial exercise continuing consultation has been undertaken with regard to the full planning application. This has included consultation with council officers and the Sheffield Urban Design Panel and Conservation Advisory Group. The developer also convenes a quarterly meeting of the Spital Hill Partnership which comprises of Burngreave New Deal for Communities, Jobcentre Plus, Sheffield First, Sheffield Work and Skills Board, Sure Start and Tesco. Ward members were also consulted on the proposals on the 20th November 2008 and a presentation was made to the Burngreave Area Panel on the 20th November 2008. The Spital Hill Partnership web site has also been updated to reflect the latest revised proposals. Attempts have also been made to inform the Burngreave Business Forum who were contacted at the outline planning stage however this organisation is no longer active. Representatives of this former group do however now form part of the Spital Hill Partnership.

The Council’s Statement of Community Involvement (SCI) was adopted in September 2006, as part of the new-style development plan under the Planning and Compulsory Purchase Act 2004. Although pre-application consultation remains voluntary, the SCI requires an assessment of it where appropriate.

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The applicants’ pre-application consultation on the application was agreed with the planning service. A consultation assessment summarising the process accompanies the application.

SUMMARY OF REPRESENTATIONS

Sheffield Design Panel

The scheme was presented to the Panel on the 2nd October 2008 prior to the formal submission of the planning application. Their comments are summarised as follows:

The Panel welcomed the opportunity to comment further on these proposals and supported the intention to continue an ongoing dialogue with the Panel as the design progresses.

Approach and Layout

A critical issue for the scheme appeared to be the relationship with the Inner Relief Road, which the Panel felt created a challenging environment in terms of the noise and pollution levels, as well as the significant amount of what appeared to be extraneous street clutter surrounding the key junction between the site and the Wicker arch.

The Panel was concerned that this was a rather unattractive environment, and raised the question as to whether the delivery of this proposal might facilitate a reengagement with highways engineers in order to provide crossing points with the minimum amount of street clutter. The ‘no build zone’ was noted, but the Panel was of the opinion that this was superfluous now that the road had been constructed, and wondered whether there was an opportunity to investigate this further to establish whether the proposed office could be brought further forward.

The width and openness of the street in its current form contributed to the speed of traffic and it was felt that setting the building back would exacerbate this problem. Although the formation of a space in front of the offices was supported, the Panel raised serious doubts as to whether the environment adjacent to the ring road would be conducive to quiet relaxation and enjoyment; and expressed a preference for the building to be brought forward instead.

Caborn’s corner farther up Spital Hill was felt to be a more appropriate public area for sitting and relaxing, or that any repositioning of the office might enable the introduction of recreational space to the rear. The Panel supported the retention of the office component of the project, and felt that it was a good response to the introduction of a supermarket into an urban context. An important element for the offices was the relationship with the series of car park decks within the site. It was noted that further work was being undertaken to provide a screen to improve this aspect and the Panel concluded that this was essential.

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Elevations

The concern expressed by the applicant in relation to the length of the elevation along Savile Street was noted, but the Panel did not agree with the initial solution to break it up, involving the car park canopy and the introduction of vertical brise soleil. There was a general feeling that the structure needed to be simple and honest; and that there may even be opportunities to develop the industrial typology; for instance through the introduction of solar wall.

The Panel had significant doubts that vertical brise soleil would ultimately function as intended, and felt that this approach needed to be fundamentally revisited.

Contextual Approach

The intention to break up the scheme into different elements through developing specific contextual responses was broadly supported; although there was agreement that this idea needed to be developed further. The existing character, grain and materials in evidence along Spital Hill and facing the Wicker Arch provided a useful starting point for how this element of the proposal might develop; and the Panel firmly supported the stated intention to develop a finer grain language to the retail elevations along this frontage. The Panel supported the previous advice given in relation to the need for a robust response in this location.

Whilst it was appreciated that the images were at an early stage of development; there was a real concern that they suggested a somewhat retail park style approach that was felt to be inappropriate in this environment. The Panel felt that there needed to be a greater degree of contextual thinking around the development of a convincing architectural language.

This needed to include a consideration of the roofscape that will inevitably be a fundamental element of these proposals given the numerous vantage points looking down onto this site.

Sustainability

The Panel understood that further discussions needed to be undertaken to determine the exact approach the development intended to take in relation to sustainability; but applauded the stated intention to achieve a 50% reduction in carbon emissions from an equivalent 2006 store; and the varied range of options being explored.

The range of potential solutions intimated, including the introduction of north lights and wind catchers; the investigation of biomass; and the inclusion of rainwater harvesting were welcomed and the Panel looked forward to seeing how these various elements would be incorporated into the scheme to achieve the target.

Conclusion

256 The Panel felt that the scheme had moved on and had addressed some of the issues, but there were still a number of key areas that needed to be resolved in order to achieve a successful scheme, in particular the elevational treatment of the proposals along Spital Hill.

Further discussion with Highways Engineers was felt to be of merit in order to establish whether there was scope to now relax the ‘no build zone’, in order to offer greater scope for the development of the key corner facing the Wicker Arch.

A further presentation was made to the panel on the 12th December 2008 and the following comments were made.

The Panel welcomed the opportunity to comment further on this important proposal and supported the ambition and broad scope of the proposals. There was agreement; however, that the scheme had not progressed as much as anticipated and that a considerable amount of further design development remains necessary in order to carry this through to being a viable proposal.

The points below cover the areas that the Panel considers need to be addressed, and these need to be properly taken into account in advance of any future review.

Wider concept

The scheme has been reviewed at a number of Design Panel (February 2007, July 2007 and October 2008) where the overall layout, the principles and the routes through the scheme have been supported. There was an overriding feeling, however, that the scheme had not developed from this framework and still appeared lightweight and lacked robustness.

The Panel felt that the 3D visuals were perhaps unhelpful in demonstrating a proper understanding of how the scheme would ultimately work: how people will move through and experience the building and the spaces and the movement patterns that will take place.

This is a large site, and the Panel felt the scheme was overcomplicated and would benefit from greater simplicity. This could be achieved through undertaking an extra layer of design development involving constant drawing and testing: utilising different scales ranging between 1:10 and 1:200 in order to resolve the individual design details.

The previous Panels had urged the design team to move away from what felt like a very retail park approach, and these comments were reiterated, especially in light of the palette of materials presented, which appeared to reinforce this type of architecture. The precedents illustrated indicated crisply detailed buildings, but this did not appear to be reflected in these proposals.

Sustainability

The Panel applauded the intention to achieve a 20% reduction in carbon and broadly supported the various measures outlined.

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Elevational Approach

The Panel were of the clear opinion that the architecture had not appeared to have developed from the outline proposal and that there seemed to be a real arbitrary nature to some of the elevations that required a more contextual response.

The stated concept of the different elements of the proposal needing to tie together visually was felt to be flawed, especially given the size of the site and the different uses themselves; and the Panel were convinced that the approach should instead be to recognise the different elements and to make them read as separate. The Panel felt that this could be achieved in a number of ways: through using different architects to offer a varied approach; the appointment of different practices for the various elements or through the use of a design enabler.

The Panel noted that there had been considerable discussion at the previous Panel in relation to the vertical brise soleil and the change to mesh was noted but they questioned, nevertheless, whether this was a concept that was entirely necessary.

The aforementioned problem of homogeneity appeared to be compounded by the mesh, which served to suppress the structural grid and therefore exacerbate the scale of the development by providing a uniform façade. The mesh might also prove counterproductive in terms of adding an extra layer to the building that could result in a rather gloomy internal environment. The delicate cuts through the mesh needed to be developed up in greater detail in order for the Panel to be convinced of the approach, but the overriding conclusion was that the idea needed to be dismissed if it was not contributing to solar shading.

The previous comments in relation to the elevations to Spital Hill were reiterated. The existing context along this street is fine grain and detailed with a vertical rhythm and the proposal still failed to carry through any convincing response to this; and there was agreement that the language needed to be more contextual, simple and robust. The Panel were of the view that there needed to be greater attention to detail in order to produce more robust buildings that had sufficient complexity in this context.

Landscaping

The retention of the space in front of the building was noted, but the Panel were not convinced that sufficient consideration had been given to the quality of the space that remained, which was felt to be somewhat unexplained in its purpose.

Whilst it was acknowledged that there had been the involvement of a landscape consultant this was not truly evident in the graphic realisations and the Panel felt that there needed to be some further consideration of what were key components of the scheme to ensure that the spaces created and landscape was truly integrated in an organised manner.

Conclusion

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The approach to sustainability was positive, but there was unanimous disappointment that a number of the key comments that had been made at the last Panel and previous meetings had not been acted upon.

There was an overwhelming feeling that the scheme needed to have a clear direction and that the various elements needed to be developed further as distinct components that would respond better to the surrounding context. This is a very important and conspicuous site in Sheffield and the Panel considers that it deserves a more coherent response.

The Panel was mindful of the lack of real progress over a long period of time and recommends that a fresh approach should be taken to grasp the main issues that had been identified at previous meetings. It does not think that the current response to the surrounding context and the public spaces around the site is appropriate.

Sheffield Conservation Advisory Group

The Group welcomed the proposed preservation of the retaining wall and railway tunnel within the site. The Group felt that the design of the proposed development was less robust and weaker than that of the retaining wall, the tunnel and adjoining Wicker Arches. The Group queried the need for the proposed wire mesh material and suggested that a specimen should be submitted, to enable consideration of the proposals. The Group felt that if the atrium was pointed towards Wicker Arches, it would have greater practical use. The Group considered that, while it was straightforward to follow the submitted coloured plans, a model of the development would be useful, showing the development in a wider context, particularly indicating the view through Wicker Arches.

South Yorkshire Passenger Transport Executive (SYPTE)

SYPTE have no further comment to make following the grant of outline planning consent, subject to the inclusion of the measures contained in the original section 106 agreement being agreed as part of this proposal.

Yorkshire and Humber Assembly

No objection as the Assembly considers the issues that arise in this application are not strategic in nature.

Yorkshire Forward

Principally the proposals are welcome. The proposals have potential to improve the range of offices available within Sheffield. Yorkshire Forward along with its partners, have made significant investments as part of its ‘urban renaissance’ programme to transform the quality of the urban environment, with the aim of stimulating regeneration and to establish the city centre as the main location for office space. This in turn helps to support economic activity in a central location, which is both accessible and sustainable. Therefore we encourage the council to

259 satisfy themselves that there is demand for further office development in Spital Hill. Yorkshire Forward has invested in various community buildings in the Burngreave Area. This investment is intended to get hard to reach individuals into work. We would therefore be keen to ensure the proposed neighbourhood retail units complement this aim.

The use of renewable energy sources and low carbon technologies on site as well as other passive design features to reduce the developments predicted carbon emissions by 20% is welcomed. These measures have the potential to contribute towards the Region’s target to reduce greenhouse emissions by 20-25% by 2016. Yorkshire Forward would welcome a commitment to achieving BREEAM excellent standards on all the office units in the proposal. It would also be desirable to include proposals for reducing the risk of surface water run-off through the use of SUDS to help reduce the risk of localised flooding. These proposals would support objective 5C (ii) of the Regional Economic Strategy (RES) which seeks to promote energy security and reduced fossil fuel dependency by more energy efficiency, clean and renewable energy generation in line with Policy ENV5 of the Regional Spatial Strategy (RSS)

Yorkshire Forward welcomes the promotion of sustainable modes of transport, including green travel plans for the scheme.

The project also offers an opportunity to address the wider application of recycling procedures for the community. The proposals should include in their design, space for the separation and segregation of waste at source, in addition to the storage of bins. In addition we would support a commitment to use at least 10% recyclable building materials on site as reusing products recovers their value. This would be consistent with Policy ENV12 of the RSS.

CABE

No comment

English Heritage

Recommend the application should be determined in accordance with national and local policy guidance, and on the basis of your specialist conservation advice.

First South Yorkshire

Surprised that the traffic modelling which predicts 570 evening peak movements into the site and 651 out of the site, predicts no significant increase in congestion bearing in mind these numbers and the amount of car parking.

Concern that the modelling results do show significant increases in bus journey times. The availability of a mitigation fund is noted, but the application states that this will only be available within 24 months of the completion of the scheme. It is unclear how and at what point the finding will become available. It is strongly recommended the grant of planning permission should be subject to action being

260 taken immediately once bus journey times worsen and not after long period of monitoring.

The statutory Quality Partnership adjacent to the site is an important bus corridor which has received significant levels of vehicles investment on the basis of a partnership approach to bus journey timing improvement

The close of Carlisle Street is noted and, concern is expressed that this has been progressed without the discussion with First South Yorkshire, as it will have a detrimental impact on the length of the bus journey times and subsequent service frequency.

Response

The proposed highways arrangements have not differed from the previous grant of outline planning consent (planning ref 07/01733/OUT). The traffic impacts of the development have been modelled extensively using the council SARTURN and AIMSUM models. Full consideration was given to impacts on bus journey times and suitable mitigation measures have been agreed should bus journey times be affected.

These mitigation methods include the provision of a fund for bus lane improvements, which can be required at any point during the 24 month monitoring period.

The closure of Carlisle Street has been discussed at length with SYPTE who represent the bus operators in South Yorkshire.

Public Responses

12 letters of representation have been received including 10 objections and 2 letters of support. The issues are summarised as follows:

In objection

- The addition of a multinational supermarket would have an adverse effect on existing local traders, many of whom live in the local area and have taken risks to invest in their local economy in the present difficult economic climate. - A multinational company will be able to undercut the local competition. - Closure of Carlisle Street will serve to channel business away from the established grocers and shops at the heart of Burngreave - Access to local businesses will be cut off and dissuade pedestrians from walking down Carlisle Street which will become a cul de sac. - The bus stop on Carlisle Street will become redundant and there will be increased congestion on Savile Street East adding an extra 5 to 10 minutes to journey times each day. - There are already 2 huge Tesco stores within a 2-3 mile radius (Upperthorpe and Abbeydale) and there is no justification for another store.

261 - Development will create traffic problems in an area that is already a bottle neck during peak hours. - Increase in air pollution for residential areas within 100-200 metres of the development and also located above the store at Pitsmoor and Burngreave where fumes are likely to drift. - Flood risk for residents will increase due to the new development and associated runoff in the nearby River Don. - Pollutants will flow into the river from the site. - Ecology will be affected due to increased pollutants in the air and water. - Recreational value of the River Don basin will be reduced by building a huge store. - Impact on the city centre as a result of the diversion of late night business, increased traffic jam’s for those that travel to and from Rotherham and will cause people to shop in the store rather than in local stores in the city. - The city centre is not a good location for a supermarket, this has been proved elsewhere in cities such as Cambridge, York and Canterbury. - Increased congestion on the surrounding road network. - Traffic management should be considered as part of the development and entrances to the new development should avoid cars cutting across traffic. - A second lane should be provided along Savile Street and Attercliffe Road. - Pedestrian safety should be considered. - The vibrant mix of local shops including small supermarkets will be adversely affected. - A large supermarket will provide fewer jobs and lower quality jobs than the existing independent units, through aggressive competitive tactics which may drive local businesses out. - The Burngreave triangle is becoming an excellent social hub for community regeneration, a new supermarket is likely to undermine the progress of the last 5 years. - Multinational corporations siphon off profit form local communities, proving a net reduction in the local economy. - Supermarkets do not align with the City’s Environmental Strategy of achieving a behavioural shift in consumption patterns and waste generation moving away from highly processed and packaged foods sold by supermarkets. - Tesco have a poor human rights record. - There are already 7 Tesco stores in the city. An alternative retailer would be preferable in order to ensure a diversity of choice for residents. - There are large numbers of newly constructed offices and retail units which have been vacant for some time, therefore there is no demand for such uses. Any new developments will increase the time new developments remain vacant and this would have a clear negative visual and social impact on the area. - Concerned with the overall scale of the development. - The development is an imposing structure on an area that is essentially a local shopping area. - Closure of Carlisle Street would almost remove all passing trade as no one will need to use Carlisle Street. - The main access point will be from Savile Street and only a small number of people will use the proposed pedestrian entrance on Carlisle Street. A

262 Zebra/Pelican crossing would be a more appropriate measure to allow access. - Additional customer parking should be provided in the district centre. - A petrol filling station should be provided. - The Rock Christian church would be disadvantaged by the proposed road closures through the loss of passing trade, and associated loss of congregation and booking for events and conferences. - The 45 and 46 bus services are used by more vulnerable members of the community, safe travel to and from the Rock Christian Church is essential particularly in the evening. People attending the church will be required to walk significant distances to Spital Hill and or Carlisle Street to access bus services which would greatly increase the risk to safety and security of the users of the church. - The closure of Carlisle Street will greatly increase journey times to the Rock Christian Church. - Concerns that the number of additional retail units included alongside the store will detract from the town centre, given the current number of vacant units and the potential detrimental impact on town centre retail.

In support

- The Wicker Pharmacy supports the application subject to the inclusion of conditions which preclude the provision of a pharmacy and post office within the store and neighbourhood retail units. - The regeneration and construction of retail units is welcomed as it will complement the local ethnic shops in the vicinity.

RESPONSE TO REPRESENTATIONS

Under planning legislation the occupier of a development is not a material consideration, and planning powers do not allow the Local Planning Authority to distinguish between different operators. Issues of claimed financial, environmental and employment practices of an operator are not material planning issues and therefore cannot be given any weight and planning permission cannot be determined on the claimed practices of an applicant All other Issues are covered in the main body of the report.

PLANNING ASSESSMENT

Unitary Development Plan (UDP)

The following policies apply to this scheme:

The site is identified on the Unitary Development Plan Proposals Map as being within a Fringe Industry and Business Area. UDP Policy IB6 – (Development in Fringe Industry and Business Areas) sets out preferred, acceptable and unacceptable uses within such areas.

Policy IB9 (Conditions on Development in Industry and Business Areas) considers matters of dominance, amenity, design and highway safety.

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Policy S4 (District Centre Shopping) promotes food retail in district centres and where no suitable sites within such centres, at their edges.

Policy S5 (Shop Development Outside of the Central Shopping Area and District centres) (a) and (b) require out of centre retail development not to undermine the vitality and viability of the City Centre or any District Shopping Centre as a whole, either taken alone or cumulatively with other recent or proposed development, or to jeopardise private sector investment or any proposals to promote and regenerate those areas.

Policy S11 (Design of Retail Development) requires provision of access for people with disabilities, safe and easy pedestrian movements at ground level, and adequate car and cycling provision.

S12 (Improvements to Shopping Centres) The City Council will undertake and assist with environmental improvements to make Shopping Centres more attractive and convenient to use, especially in or near to areas of known poverty.

GE11 (Nature Conservation and Development) seeks to protect and enhance the natural environment. The design, siting and landscaping of development should respect and promote nature conservation and include measures to reduce any potentially harmful effects of development on natural features of value.

GE22 (Pollution) states development should be sited so as to prevent or minimise the effect of any pollution on neighbouring land uses or the quality of the environment and people's appreciation of it.

Policy GE24 (Noise Pollution) requires that development should not create noise levels causing a nuisance, and sensitive uses and noisy uses should not be located close together.

Policy BE1 (Townscape Design) states that, a high quality townscape will be promoted with a positive approach to conservation and a high standard of new design.

Policy BE3 (Views and Vistas In the City Centre) states that development will not be permitted to damage the traditional city centre skyline or views and vistas, which are important to the centre’s character. In particular Protection will be given to (b) views within and looking from the city centre (v) along Wicker towards the Railway arches is identified as being afforded special protection.

BE6 (Landscape Design) seeks to ensure good quality landscape design and developments should include landscape schemes that provide relevant information relating to new planting and/or hard landscaping, and of existing vegetation to be removed or retained; and provide an interesting and attractive environment; and integrates existing landscape features into the development, including mature trees, hedges and water features; and promotes nature conservation and uses native species where appropriate.

264 Policy BE7 (Design of Buildings Used by the Public) requires safe, equal and easy access for people with disabilities to buildings used by the public.

Policy BE8 (Access to Workplaces) promotes suitable access to workplaces where there are 20 or more employees, especially to reception and toilet facilities.

Policy BE10 (Design of Streets, Pedestrian Routes, Cycle ways and Public Spaces) requires that the development of public spaces should meet several requirements including, (a) make them convenient and safe to use for all, (b) maximise personal safety, (c) create attractive, welcoming and usable open areas, (f) minimise the conflict between pedestrians, cyclists and motorised traffic.

Policy BE12 (Public Art) encourages public art as an integral part of the design of major developments.

BE22 (Archaeological Sites and Monuments) states sites of archaeological interest will be preserved, protected and enhanced.

Where disturbance of an archaeological site is unavoidable, the development will be permitted only if: an adequate archaeological record of the site is made; and where the site is found to be significant, the remains are preserved in their original position.

Policy T20 (Car Travel to the City Centre) restrains car commuting into the city centre, and encourages improved car access to the City Centre for shoppers, visitors and people with disabilities.

Policy T21 (Car Parking) states that car parking will be provided where it would (a) meet the operational needs of businesses, (b) be essential for the viability of new development, (c) enable ready access to the city outside peak hours, (d) improve the environment or safety of streets, and (e) meet the needs of people with disabilities. The policy also states that levels of parking will also be regulated to prevent excessive peak hour congestion.

Policy T24 (Public Short-Stay Car Parking) encourages public short stay parking in the city centre. It requires all major shop developments to include sufficient off- street short stay parking to meet its needs.

Retail policy issues will be examined in detail under the Retail Impact section of this report

Core Strategy

Policy CS 2 (Business and Industrial Development on Brownfield Land and Green field Land) gives priority to the redevelopment of previously developed land where it is accessible by public transport.

Policy CS 3 (Locations for Office Development) identifies locations on the edge of the city centre as acceptable for office development with development in the city centre and at its edge accounting for 65% of total office development in the city.

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Policy CS 11 (Employment Locations in the North East Urban Area) identifies Spital Hill as an area where new opportunities for employment education and training will be promoted.

Policy CS 37 (Firth Park, Spital Hill and Chaucer District Centres) identifies Spital Hill to be expanded and renewed with a wider range of shops and services and other developments providing jobs so it becomes the key service centre for Burngreave, as envisaged in Housing Market Renewal plans.

Policy CS 51 (Transport Priorities) set out the city strategic transport priorities which include promoting choice by developing alternatives to the car, maximising accessibility, containing congestion levels improving air quality, road safety and supporting economic objectives through demand management measures and sustainable travel initiatives.

Policy CS 52 (Key Route Network) The A6109 Savile Street forms part of the Key route network, and should fulfil strategic transport function to include concentrating through and strategic traffic movements on A roads, with best use being made of existing road capacity, including improvements with bus priority and traffic management measures which are identified in Policy CS 56 (Priority Routes for Bus and Bus Rapid Transit).

Policy CS 53 (Management of Demand for Travel) includes measures to meet demands by promoting public transport, walking and cycling, make best use of road systems, implement travel plans for new developments, promotion of more efficient and sustainable uses of vehicles, managing public car parking to promote short stay facilities in the city centre and long stay at park and ride facilities, creating controlled parking zones, applying maximum parking standards to manage parking provision.

Policy CS 54 (Pedestrian Routes) and Policy CS 55 (Cycling routes) seeks to ensure that improvements are made to the pedestrian environment and strategic cycle links mainly to key employment locations.

Policy CS 63 (Responses to Climate Change), Policy CS 64 (Climate Change, Resources and Sustainable Design of Developments) and Policy CS 65 (Renewable Energy and Carbon Reduction) primarily seek to ensure that the impacts of climate change are mitigated by new developments. This is to be achieved by ensuring developments are sustainably located, giving preference to previously developed land with access to public transport. In addition all buildings should achieve high standards of energy efficiency minimise water consumption, and maximise water recycling, reduce the risks of flooding and minimise waste. Policy CS 65 set out specific targets for renewable energy and Carbon reduction which require the production of 10% of a developments predicted energy needs form decentralised and renewable or low carbon resources and generate further renewable or low carbon energy or incorporate design measures sufficient to reduce the development’s overall Carbon emission by 20%.

266 Policy CS 66 (Air Quality) identifies that action will be take to improve Air quality in all areas of the city, particularly in areas where residents live in road corridors with high levels of traffic.

Policy CS 67 (Flood Risk Management) seeks to reduce the impacts of flooding, through a series of measure including surface water run off limitation, requiring the use of Sustainable Urban Drainage Systems, directing development away from areas of high probability of flooding unless there is an overriding case for development and mitigation measures are included and where developments are located in the floodplain appropriate mitigation and flood protection measures are incorporated.

Policy CS 74 (Design Principles) states that high quality development will be expected, which would respect, take advantage of and enhance the distinctive features of the city, its districts and neighbourhoods In doing so development should respect topography, view and vistas to landmarks and skylines, townscape and landscape character of city districts and neighbourhoods taking account of their scale, layout and built form, style and materials. Development should also respect the distinctive heritage of the city, contribute to place making, sustainability and enhance character to create attractive, sustainable and successful neighbourhoods.

Policy CS 75 (Improvements to Gateway Routes into and through the City) prioritises improvements in different areas of the city including routes through the Lower Don Valley along the A6109.

National Policy

Planning Policy Statement 1: Delivering Sustainable Development (PPS1) PPS1 sets out the Government's national policies on different aspects of land use planning in England. PPS1 sets out objectives for the planning system in order to facilitate and promote sustainable and inclusive patterns of urban and rural development. These objectives are:

- Making suitable land available for development in line with economic, social and environmental objectives to improve people's quality of life. - Contributing to sustainable economic development. - Protecting and enhancing the natural and historic environment, the quality and character of the countryside, and existing communities. - Ensuring high quality development through good and inclusive design, and the efficient use of resources. - Ensuring that development supports existing communities and contributes to the creation of safe, sustainable, liveable and mixed communities with good access to jobs and key services for all members of the community.

Planning Policy Statement 6: Planning for Town Centres (PPS6)

The Government’s Planning Policy Statement 6: Planning for Town Centres is also relevant. Its primary aim is to strengthen shopping and other uses in central areas. One of the key objectives identified within PPS6 states:

267 ‘The Government’s key objective for town centres is to promote their vitality and viability by:

- Planning for the growth and development of existing centres; and - Promoting and enhancing existing centres, by focusing development in such centres and encouraging a wide range of services in a good environment, accessible to all’.

Planning Policy Guidance Note 13: Transport (PPG13)

PPG13 sets out a number of criteria that should be considered when determining planning applications, these include:

- Actively manage the pattern of urban growth to make the fullest use of public transport, and focus major generators of travel demand in city, town and district centres and near to major public transport interchanges. - Locate day-to-day facilities, which need to be near their clients in local centres so that they are accessible by walking and cycling. - Accommodate housing principally within existing urban areas, planning for increased intensity of development for both housing and other uses at locations which are highly accessible by public transport, walking and cycling; - Ensure that development comprising jobs, shopping, leisure and services offers a realistic choice of access by public transport, walking, and cycling. - Use parking policies, alongside other planning and transport measures, to promote sustainable transport choices and reduce reliance on the car for work and other journeys.

PPS 22 Renewable Energy

Builds on the guidance and targets set out in the governments Energy White Paper which sets targets to generate 10% of UK electricity from renewable energy sources by 2010 with aspiration’s to double that figure to 20% by 2020. This aims to put the UK on a path to cut its carbon dioxide emissions by some 60% by 2050, with real progress by 2020.

PPS 22 states ‘that the increased development of renewable energy resources is vital to facilitating the delivery of the Government’s commitments on both climate change, and renewable energy.’

PPS 25 Development and Flood Risk

Aim’s to ensure that flood risk is taken into account at all stages in the planning process to avoid inappropriate development in areas at risk of flooding, and to direct development away from areas of highest risk. Where new development is, exceptionally, necessary in such areas, policy aims to make it safe, without increasing flood risk elsewhere, and, where possible, reducing flood risk overall.

Regional Spatial Strategy

268 Both the current RSS support’s town centre development. The current Policy E2 promotes existing town centres as the main focus for shopping. Policy E3 promotes economic development and the use of previously developed land. Policy T2 sets parking standards for the regional and sub regional cities.

The Burngreave and Firvale Master Plan

The Plan was produced to further HMR objectives and was approved by Cabinet in May 2005. It sets out a strategy to regenerate Spital Hill shopping centre by increasing the range of shops and services, increasing footfall, and enhancing the public realm. It recommended a supermarket be developed in the centre. A supplementary study, ‘Spital Hill – Options for a new food store recommended its development on what is now the application site, and a subsidiary Study showed that there was capacity for a large food store. The report ‘Spital Hill – Options for a new food store’ recommended that, to ensure that the store contributed to the regeneration of Spital Hill and acted as a genuine anchor to the Centre it should be ensured that:

- The store is elevated so that the main front entrance is off Spital Hill/ Carlisle Street as close as possible to the Centre and that the retail floor space is at this level. This would achieve the objective of a food store adjacent to the centre, with the potential for local people to walk in to the store.’ - A contribution is sought towards the cost of physical enhancement of Spital Hill District Centre for public realm improvements, improved car parking for Spital Hill, or other measures to contribute towards the upgrading of Spital Hill as a District Centre. - The report noted that the design of the development should be of the highest quality, relate to the buildings on the western side of Spital Hill, and form a powerful ‘gateway’ to Burngreave and Spital Hill. Residential or office use of the space above the store should be required. The food store operator should be required to set up a training and employment scheme for local residents, especially local unemployed and disadvantaged residents.

Cabinet approved the studies as an official amendment to the Burngreave/ Fir Vale Master Plan in January 2006 and endorsed its recommendations to promote a store with up to 3,900m2 net convenience floor space on the Hartwell’s site.

Policy Analysis

The Sheffield Unitary Development Plan identifies the site as being within a Fringe Industry and Business Area where business uses within use class B1’ which includes offices, are a preferred use and residential, small shops and food and drink outlets are all acceptable uses in principle (Policy IB6 refers), although this has been superseded by the advice in PPS6 and the cabinet approved ‘Supermarket feasibility Study’ which is classed as an official amendment to the Burngreave and Fir Vale Masterplan.

The Government’s planning policy guidance PPS6 focuses on a range of issues relating to town centres, the key objective being to promote the vitality and viability

269 of town centres. PPS6 identifies shops and offices as some of the main town centre uses to be assessed on their need, scale, sequential approach, impact and accessibility. A similar approach is also required with regard to office development.

Within the Fringe Industry and Business Area there are a mix of both preferred and non-preferred uses as well as vacant and underused land and buildings. The provision of office accommodation on this site would increase the balance of preferred uses in the policy area removing a sui generis car sales use.

The site is located on the edge of Spital Hill District Centre and the edge of the city centre as identified in the UDP. The Core Strategy indentifies the city centre, accessible locations on the edge of the city centre and district centres on high frequency public transport routes, as priority locations for office development. Previously developed sites accessible by public transport will also be given priority over green field sites. CS 11 (Employment Locations in the North East Urban Area) identifies Spital Hill as an area where new opportunities for employment, education and training will be promoted. On the basis of the new core strategy policies, which encourage office development in the highly accessible and sustainable location on the very edge of the city centre, the previous restrictions on the maximum size of an individual occupier of the office unit have been lifted. The proposals will also contribute to the aims of CS 11 by increasing the employment, education and training opportunities in the Spital Hill The principle of office accommodation on this site is therefore considered acceptable and supported by the local and national planning policies.

Retail policy issues are covered in the section below.

Retail Impact Assessment

The application proposes more retail floor space than the approved outline application 07/01733/OUT: the Tesco is now 10,487 sq metres instead of 10,216 sq metres. However the increase is small, and the net sales area, which determines the store’s likely turnover and impact, is to remain the same as in the previous application. The neighbourhood retail units are proposed to be 822 sq metres instead of 431 sq metres.

The proposed ancillary ‘neighbourhood retail’ units are located on the edge of the Spital Hill District Centre and, to ensure that they remain complementary uses and do not harm the District Centre, a condition restricting their floor space is recommended. It is considered that limiting the maximum gross floor space of a single neighbourhood retail unit to 350 sq metres would ensure that the units are of a scale that would complement and improve Spital Hill as a District Centre. This limit will be a maximum size with provision in the design of the scheme to allow smaller occupants if required. The provision of these additional retail units will help to generate linked trips within the district centre and provide additional retail floor space, which could be occupied by smaller independent retail outlets, enhancing the existing retail offer in the centre.

Policy S4 positively promotes food retail development at the edge of district centres if there are no suitable sites for development within them. Since there are no

270 suitable alternative sites within Spital Hill centre the proposal should be ‘promoted’ under Policy S4.

Policy S4’s promotion of edge-of-centre food retail development is moderated by the requirements of PPS6: out-of-centre and edge-of-centre retail development should be assessed against the tests of need, scale, sequential approach, impact and accessibility. Considering these in turn:

Need

A quantitative and qualitative need must be shown for any store proposed outside an existing town centre. Quantitative need is the future demand for additional retail floor space, having regard to future spending and floor space, and qualitative benefits are improvements to the distribution and accessibility of shopping to allow genuine choice.

Quantitative Need

A quantitative need for a food store with a net convenience floor space of 3,900 sq metre was identified by the Spital Hill Capacity Study. It would serve the area to the north and east of the City Centre, equivalent to Zone 4 in the Sheffield Retail Study (2003). The applicants’ updated retail assessment confirms that, despite the recession, there will be a quantitative need for more floor space. It estimates that by 2014 convenience spending in Zone 4 will be £77m but that existing floor space will have capacity for only £19.2m. The proposed Tesco, and the neighbourhood units would have capacity for £46m so would contribute to meeting a quantitative need for convenience spending in its catchment without exceeding the amount needed.

The store would also have 3,036 sq m of comparison goods sales floor space. The extant retail park consent on the site does not indicate a need for non-food floor space of a more general kind and conditions were imposed on the original permission to prevent such floor space. Nevertheless it is accepted that superstores generally provide comparison goods sales floor space, and the Spital Hill Capacity Study assumed ‘that around 30% of the overall sales floor space would be devoted to comparison goods sales’. The amount of comparison goods floor space proposed in this scheme would constitute 45% of the Tesco’s sales floor space. While many comparison goods are purchased in superstores by customers on an ‘impulse’ basis in association with a food shop, the Spital Hill Capacity Study noted that larger stores also stock higher order purchases where price comparisons are usually made before purchase, and so there is more potential for competition with high street retailers.

Tesco Extras stores, like the one proposed, sell clothing, books, toys, sports goods, electrical goods, DIY, etc. Catchment areas are larger for comparison than for convenience shopping, as people are prepared to travel longer distances to compare goods. The City Centre, including the New Retail Quarter and The Moor redevelopments, can serve the quantitative need for comparison spending in the City as a whole, including Zone 4. However the proposed amount of comparison goods floor space is not a serious concern because:

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- The difference between the amount of comparison floor space proposed (3,036 sq m) and the amount considered ‘typical’ in the Spital Hill Capacity Study (i.e. 30% of total sales floor space, which would be 1,614 sq m) is relatively small 1,422 sq m and - The store’s comparison turnover (£25m) would be small compared with the £165m forecast comparison goods spending in Zone 4 at 2014. The fall- back position if the store were not allowed would be the development of a retail park already permitted, and partially implemented on the site. This would have had a turnover of £13m (at 1994 prices – although prices for household goods have deflated since then). The net increase in comparison spending would therefore be less than £25m.

The impact on existing businesses at Spital Hill will be insignificant because of the limited comparison retail offer there, and the floor space is likely to improve the attraction of the store, with knock-on improvements by way of linked trips and increased footfall in the district centre.

The impact on the New Retail Quarter is not anticipated to be significant, as noted in the section on Impact below.

Qualitative Need

The proposal will provide qualitative benefits. It will improve the distribution of superstores: there are currently no superstores in the area to the north and east of the City Centre and south of Ecclesfield (between A6135 Barnsley Road and the A630 Parkway). The Capacity Study’s analysis of Household Survey data showed that even when Sainsbury’s at Meadowhall was open, most food spending of residents in Zone 4, which approximates to the likely catchment of the store, went to shops outside the area. It showed that only 12% of people in Zone 4 ever use Spital Hill for food shopping. A superstore at Spital Hill would therefore encourage clawback of this expenditure.

Spital Hill itself would benefit, as it currently does not conform to the PPS6 description of district centres as having ‘at least one supermarket or superstore’. The centre has the smallest amount of convenience floor space of any district centre in the city. It will also benefit from the proposed small retail units at the Carlisle Street level and environmental improvements between the store and the centre, which will encourage visitors to the supermarket to use the rest of the centre and will increase the range of shopping.

PPS6 encourages retail development in deprived areas that lack access to a range of services and facilities. There will be ‘clear and demonstrable benefits in identifying sites for appropriate development to serve communities in these areas’. Additional weight should be given to meeting these qualitative considerations. Spital Hill is in the most deprived 10% of ‘super output areas’, as identified in the English Index of Multiple Deprivation, so the proposed development will meet these criteria. These benefits are contingent on the development conforming to the requirements given in the Spital Hill Options report. It is ‘absolutely vital to ensure that the permitted store contributes to the regeneration of Spital Hill, by acting as a

272 genuine anchor to the District Centre’. This would require the store to be elevated so that the main front entrance can be accessed off Spital Hill/ Carlisle Street as close as possible to the main Spital Hill District Centre. The retail floor space must also be at this level so that local people could walk in to the store.

The Spital Hill Options report recommended other qualitative improvements be negotiated: contributions towards public realm improvements to the Centre; the design of the development to create a gateway to the centre; creation of residential or office space; a training and employment scheme for local residents. PPS6 states that the benefits of physical regeneration; employment – in particular the creation of higher skill opportunities or opportunities; economic growth; and social inclusion are considerations to be taken into account in assessing planning applications.

In conclusion, the proposal will satisfy these needs for both the wider catchment of the superstore and for Spital Hill as a district centre.

The Sequential Approach

PPS6 requires a sequential approach to be taken to retail development. ‘Positive benefits are likely to be strongest where additional development takes place in the centre, or by an expansion of the centre, followed by edge-of-centre sites where a development would be well connected to the centre and result in a significant number of linked trips and clawback expenditure’

Sequentially preferable sites should be suitable, viable and available within a reasonable period of time. The Spital Hill Options report examined three sites within the district centre itself including land at the junction of Carlisle Street and Spital Hill, Junction of Hallcar Street and Spital Hill and Gower Street. There were disadvantages with all. None were big enough to accommodate a store of the size needed to provide regeneration benefits to the centre and would have required demolition and relocation of existing business in the centre.

The Hartwell site is not within the centre itself but there are no other suitable or available sites anywhere in the north east of Sheffield that are closer to any centre. The Hartwell site adjoins the southern end of the centre and, provided that links to Spital Hill district centre described in the ‘Options for a new food store’ report are put into place, qualifies as an edge-of-centre site that is well linked to the centre and could be incorporated in the centre.

Scale

PPS6 requires the scale of development to relate to the role and function of the centre within the wider hierarchy and the catchment served. The proposed store would be large relative to the existing offer in Spital Hill district centre. Its net sales floor space would be greater than the 2,340 sq m of retail floor space in the existing centre. Nevertheless the scale of the development is considered acceptable for the following reasons:

- Spital Hill is designated a ‘district centre’ in the SDF Core Strategy and its expansion is consistent with policy CS37.

273 - PPS6 describes district centres as having ‘at least one supermarket or superstore’ and defines superstores as ‘usually with more than 2,500 sq m trading floor space’. Therefore it is inevitable that any superstore proposed would at least have more sales area than currently exists at Spital Hill.

The Capacity Study noted that development of a large supermarket would place Spital Hill ‘higher up the pecking order of district centres’, and make it the most significant centre for food shopping in the north east quadrant of Sheffield. However it would not ‘move the centre beyond the status of the district centre, taking into account the significant scale of convenience (and comparison) goods floor space in existing district centres such as Hillsborough, Crystal Peaks and Chapeltown’.

PPS6 also states, in the context of finding sites of appropriate scale, that where a need has been identified sites should be identified in the centre, or failing that on the edge of the centre, capable of accommodating larger format developments.’ In this case, a need has been identified for the amount of convenience floor space proposed and the location of the development is consistent with PPS6 requirements, provided that the appropriate links with the centre are made.

In conclusion, while the scale of the proposal is large, there is a need for the proposed amount of convenience floor space and the scale of the development as a whole will provide benefits to the centre, through the likelihood of greater contributions from the applicant towards public realm improvements.

Impact

PPS6 requires an impact assessment for any application for retail development that is outside an existing town centre and not in accordance with an up-to-date development plan strategy. Policy S5 (a) and (b) of the UDP require out of centre retail development not to undermine the vitality and viability of the City Centre or any District Shopping Centre as a whole, either taken alone or cumulatively with other recent or proposed development nor to jeopardise private sector investment or any proposals to promote and regenerate those areas.

Trade diversion to a new food superstore is likely to come mainly from similar large stores, all of which are outside the study zone. The applicants expect that of the store’s £45m convenience turnover 35% would be diverted from Asda at Handsworth, 25% from the Morrison’s at Hillsborough, and between 5% and 10% each from Asda at Chapeltown; Morrison’s at Ecclesfield; Morrison’s at Catcliffe; Tesco at Infirmary Road. About 4% of its turnover is estimated to be diverted from the City Centre. Small proportions would come from centres such as Spital Hill itself and Firth Park. The estimates of trade diversion are judgements based on distance, competing facilities, etc. and they are considered reasonable.

The only impacts of concern would be those on existing town centres. Trade diversions from existing centres are as follows:

Competing Centre / Store Proportion of shop’s / centre’s trade that will be lost City Centre 1%

274 Spital Hill 2% Firth Park 3% Netto at Lane Top local centre 7% Asda at Chapeltown 9% Morrison’s Hillsborough 20%

Impact on Spital Hill

The store would ‘clawback’ leaked expenditure from the surrounding area and PPS6 recognises this as a positive impact. The improved parking and pedestrian proposals mean that the District Centre will be made more accessible as a result of Tesco's proposals, which may offset any negative impact. At Spital Hill District Centre there is only a limited comparison retail offer, so the comparison goods element of the store would not have a harmful impact but would enhance the retail offer of the centre. There are several small convenience shops in Spital Hill. Some serve a specialised market so are unlikely to be affected by a Tesco and any impact on the other less specialised shops is likely to be mitigated by the increased footfall within the centre brought about by the store, provided that the store is designed and sited as a fully integrated anchor to the centre.

However if the proposed development were to contain a pharmacy or post office, people would be less likely to visit the existing pharmacy and post office at Spital Hill. These are at the northern end of the centre and their continued presence there would act as an encouragement to shoppers at Tesco to visit that part of the centre. A condition will therefore be imposed to ensure that no part of the proposed development contains a dispensing pharmacy or post office. This would lessen the likely impact noted in the Spital Hill Capacity Study - that a large store at the southern end of the centre could lead to the northern end becoming ‘a relatively poorer location for retailing’ and ‘more secondary in its nature’. Imposing such a condition is also consistent with the PPS6 requirement that local authorities should seek to protect existing facilities that provide for people’s day-to-day needs.

Impact on City Centre

UDP Policy S5 requires out of centre retail development not to undermine the vitality and viability of the City Centre. The health of the City Centre depends on it attracting many people from a wide catchment area. It is comparison rather than convenience retailing that will do this, since people are not willing to travel long distances for food shopping. Consequently the impact of the food floor space at Spital Hill on the vitality and viability of the City Centre is likely to be insignificant. Although a previous permission on the site (99/0044P) included a food store whose floor space was limited by condition to 1680 sq m, this condition had been imposed to ensure that a major City Centre scheme that depended on the redevelopment of the food markets at Castlegate would not be prejudiced. The Castlegate site was just 600m away. Now, however, redevelopment of the Markets is taking place 2km away and no major City Centre scheme is contingent upon it.

There is a large amount of non-food floor space in the Tesco store. The SPG for the New Retail Quarter states that ‘Outside the Central Shopping Area the Council will not permit major non-food retail development that may prejudice or delay the

275 achievement of the Council's re-development strategy for the New Retail Quarter.’ However the Spital Hill Capacity Study advises that the comparison floor space element of a new large food store at Spital Hill would have insignificant consequences on the New Retail Quarter.

Impact on Hillsborough

The store would divert an estimated £11m from convenience goods trade at Morrison’s at Hillsborough (and £2m in comparison goods). The Morrison’s at Hillsborough would also lose £8m of convenience trade to the superstore and district centre proposed by the Sheffield Development Framework at Buchanan/Chaucer school site. Whilst these amounts are substantial the calculation excludes the effect of any potential trade loss between the Buchanan store and the Tesco at Spital Hill and the Sheffield Retail Study (2005) calculated that Morrison’s convenience trade is likely to be £21m above what would be expected from company averages. A reduction of as much as £19m would still leave it trading at around the company average. The impact on the store, and consequently on Hillsborough district centre, would therefore be sustainable.

Impact on Other Centres

The Spital Hill Capacity Study commented that shops in Firth Park and Darnall perform a ‘top up or secondary main food shopping role for a relatively local population catchment’. The effects on Chapeltown and Lane Top are considered to be sustainable.

Transport and Highways

Traffic Impact on Highway Network

As with all major development proposals, the application for this store and office development included a Transport Assessment (TA), which looked at the various highway impacts this development would generate. It was agreed with the City Council that the Friday evening peak (5 – 6pm) would be the critical time period for assessment. Details of traffic generation and distribution were then agreed and the impacts then predicted making use of the Council’s SATURN and AIMSUM traffic modelling packages.

The development is predicted to generate 570 vehicle movements into the site and 651 out in the evening peak; Due to the large volume of new trips to the site, two access points are proposed to help distribute the extra traffic onto the adjacent highway network.

The general impact of this development was then assessed using the City Council’s SATURN model, this is a strategic modelling tool which covers all major routes within Sheffield (and most of Rotherham); The results of this modelling predicted no significant increase in congestion on the network around the store, and only a very slight increase in journey time around the network as a whole; These results have to be treated with a little caution as the model relies on drivers

276 acting logically when making route choices, but it does form a good base on which more detailed local modelling can be undertaken.

Based on the results of the SATURN modelling , the City Council’s existing City Centre AIMSUM model was extended to include the highway network surrounding this site, and a series of model runs were then undertaken. Initial results from this modelling again indicated that no significant impact on the local highway network would result from this development; However, it was clear that these results were based on a large number of vehicles diverting onto routes remote from the area under consideration, and that additional “virtual” queuing was being created beyond the limits of the model.

A further run of the AIMSUM model was made with much of the dissipated traffic, together with traffic diverted from the closure of Carlisle Street, forced to stay within the modelled network, the results from this exercise did predict significant increases in journey times on Savile Street and in particular Spital Hill, which would impact on bus journey times. This model run was very much a worst case scenario as, in practice, drivers will divert to more remote routes.

The developer’s consultants also undertook individual junction analysis work, for both the new site access junctions and existing adjacent highway junctions, in all instances the junctions were predicted to operate within their theoretical capacity.

The modelling work has predicted that at best no material impact on the local road network will result from these proposals, however in the worst case, there would be a major impact on the local network with average journey times increasing by around 2 minutes. As a potential detrimental impact may result from these proposals, a precautionary approach has been taken as regards securing off site highway mitigation measures.

The developer has agreed to fund a “Smarter Choices” campaign for three consecutive years on the Spital Hill / Burngreave Road / Barnsley Road corridor, this type of measure has been shown to have a very positive impact on reducing car based trips and could, if very successful, result in a reduction in vehicle movements along this corridor.

The developer has agreed to provide £50,000 towards traffic signal junction optimisation measures and additional highway signage to ensure the best use of the existing infrastructure is made.

The developer has also agreed to a series of measures within the site Travel Plan, including the appointment of a Travel Plan Co-ordinator, commitments to measures to promote public transport and cycle use, and a financial commitment that if agreed targets are not met, new measures will be introduced.

It should be noted that the above approach is very much in line with national guidance where the introduction of “soft measures” is seen as the best solution if at all possible.

277 If, following the opening of the new store, an increase in journey times have been created on the local highway network, based in particular on bus journey times along the Spital Hill – Barnsley Road corridor, the developer has agreed to fund a package of measures totalling £305,000, these works would include the provision of additional bus lanes (including further consideration along Spital Hill itself through the shopping centre), queue detection equipment, CCTV works to help monitor the network and Variable Message Signage (VMS) works to direct motorists away from congested areas.

The above works are to be secured via a 106 agreement.

Access works to Savile Street

The main vehicle access into the site will be from a new signalised junction off Savile Street, just to the west of 12 O’Clock Court.

This will be an all movements junction including both a right and left turn slip road into the site, the signals will incorporate pedestrian and cycle crossing points on the desire lines, and will also maintain the bus priority lane on the westbound approach to the City Centre.

The highway improvements to Savile Street also include modifications to the pedestrian crossing point being provided as part of the Savile House development, the provision of a bus stop lay-by near the pedestrian entrance to the store and the provision of an eastbound cycle lane along the site frontage, finally the full extent of the footway abutting the site is to be reconstructed, making use of materials that are similar in quality to the City Centre palette.

Access works to Spital Hill

The secondary access point is from Spital Hill just to the south of Carlisle Street.

This will also be a signal controlled junction which will only permit left turn manoeuvres into the site (The provision of a right turn lane was physically very difficult to accommodate, and bearing in mind the new junction’s close proximity to the new Ring Road junction, could have led to queuing problems). Both left and right turning manoeuvres will be permitted for exiting vehicles, and the junction has been designed to accommodate the new access to the Brunswick Street development, which already has outline consent. The new junction also incorporates a pedestrian/cycle crossing facility to the north of the site entrance.

The highway works to Spital Hill also again include full reconstruction of the footway abutting the site with City Centre type materials.

To the north of the site, the developer has also agreed to contribute the sum of £371,500 towards public realm improvements within the district centre to help link the new development with the existing shopping centre.

Removal of Traffic from Carlisle Street

278 This element of the development does give rise to significant highway concerns, closure of the road to through traffic will lead to existing movements being diverted onto other routes; It will reduce the flexibility of the network as a whole, and will also have a slight impact on accessibility to properties off Carlisle Street.

Retention of Carlisle Street as a through route would be very difficult to accommodate in highway terms, based on its close proximity to the new site entrance off Spital Hill, the junction would almost certainly have to be incorporated into a larger signalised layout, which in turn would give rise to additional delays on through traffic along Spital Hill.

Perhaps more importantly if Carlisle Street was retained as a vehicle route, a large degree of severance would occur between the new store and the district centre, and the opportunity to undertake the major enhancement works to “Caborns Corner” proposed by the developer would be lost.

On balance it is considered that the advantages in pedestrian linkage and simplification of the highway improvement works to Spital Hill do outweigh the real drawbacks that will result from the closure to traffic on this road.

Although Carlisle Street will be closed to through traffic, pedestrian and cycle links to Spital Hill will be retained.

The developer will also be funding traffic management measures (inclusive of TRO’s and signage) to the Carlisle Street, Sorby Street, Gower Street block to ensure suitable access arrangements, especially as regards HGV access are maintained, the developer will also be funding an improvement scheme to the Carlisle Street / Gower Street / Sutherland Street junction to make the junction operate more effectively based on the reduced access requirements of Carlisle Street.

Two bus services currently use Carlisle Street, the 85 and 86 services, which are operated on a commercial basis, SYPTE have indicated that whilst these services are not operating with a significant amount of spare time in the timetable it will be the decision of the operator first to consider the future of the service. However, as indicated above, a short diversion up Spital Hill and via Gower Street would allow the service to continue its original route without significant diversion. Concern has been raised by the Rock Christian Group regarding the diversion of the service. However, new bus stops will be provided at Caborn’s Corner as a result of this development and new stops are proposed at Ellesmere Green, both of which are in very short walking distance of the church and commercial premises, therefore suitable pedestrian access is retained.

Impact on Public Transport

Of particular concern is the impact that new development traffic could have on existing public transportation provision. The site is located between two main public transport corridors into the city centre, one of which (Spital Hill) is subject to a Statutory Quality Partnership (SQP). The Spital Hill and Burngreave Road sections of the A6135 form part of the North Sheffield (Barnsley Road) Statutory

279 Quality Partnership Scheme (SQPS), which is the first of its kind in England. This agreement was made in accordance with sections 114 – 123 of the Transport Act 2000 by: South Yorkshire Passenger Transport Authority; South Yorkshire Passenger Transport Executive; and Sheffield City Council. Local bus operators are also involved and have invested in the work of the partnership.

The scheme aims to improve the quality of bus services within the scheme area by enabling bus operators to achieve more reliable and punctual local services, and by improving the quality of the vehicles and the infrastructure along the route. These improvements are intended to give the residents of North Sheffield better access to vital services and employment opportunities.

The flagship scheme of the SQPS is a £1.3 million bus priority scheme on Burngreave Road and Spital Hill. The scheme comprises a set of bus pre-signals on Burngreave Road, which will artificially queue general traffic to allow late- running buses to reach the head of the traffic and then run unimpeded down Spital Hill and into the bus lane that approaches the Wicker. Thus creating a ‘virtual bus lane’ on the sections of the route where there is insufficient width for traditional, physical separation. The stretch of bus lane along Spital Hill will ensure that buses gain priority at the new junction with the Inner Relief Road and that the time savings and improvements to the overall journeys are not compromised.

As indicated previously in the report, these proposals have been subject to extensive traffic modelling, the results of this modelling, even in the worse case scenario have shown that the development will give rise to virtually no delay on the out of City Centre services; However, for inbound services some level of delay (especially as regards the worse case scenario) are predicted. The highway mitigation described in the Traffic Impact on Highway Network section of this report are specifically designed to mitigate against these predicted delays.

The developer is also funding the provision of new bus shelters for both inbound and outbound service stops on both the Spital Hill and Savile Street routes, these stops will incorporate real time information on bus services, and within the store itself, a public transport information point, which will again incorporate real time information is also to be provided.

Car Parking

The scheme proposes the creation of 739 parking spaces. These spaces will be split between the proposed office units (71 spaces) and the supermarket.

Based on the new guidance contained within the Regional Spatial Strategy, the maximum parking ratio for offices is 1/60 sq metres (giving a max total of 89 spaces) and for the retail element the maximum parking ratio is 1/18 sq metres (giving a max total of 583 spaces for the main store and around 50 spaces for the smaller units as a slightly higher ratio for these units would be acceptable) with the provision of 41 disabled parking spaces, this would give a total maximum level of 763 spaces, which exceeds the proposed number of spaces.

280 Given the sustainable location of the site and its high volume and frequency of bus services the parking level proposed is considered acceptable for this scale of development. The office spaces will be physically separated from the retail stores parking by control barriers to prevent abuse of the long stay spaces. Adequate disabled parking facilities will also be included in the office parking area. Until the office element is completed these dedicated spaces will either not be constructed or will be permanently sealed from the store, and this item is covered by condition.

SYPTE previously expressed concern that due to the location of the site on the edge of the city centre the car parking could be used as commuter parking for the city centre. Given the known shortage of parking in the district centre, a three hour time limit will be imposed on the supermarket parking in order to afford shoppers adequate time to undertake shopping activities and linked trips with the district centre, given these short stay restrictions it is not considered the proposed parking would be attractive or suitable for commuter parking. A parking management plan will be conditioned to ensure that appropriate enforcement of the car park is undertaken to discourage such activities.

Secure covered cycle and motorcycle parking facilities are also to be provided for office and store staff and for visitors to the site.

The proposed parking provision for the store and B1 office accommodation is within the threshold limits of adopted National and local guidance. It is therefore considered acceptable.

Dedicated taxi rank facilities for the store and adjacent shops are also to be provided as part of the development within Carlisle Street.

Pedestrian and Cycle Access

Both pedestrian and cycle access will be gained from Savile Street at the lower level and from Spital Hill at the higher level, a major pedestrian link from “Caborn’s Corner” is also being created at the upper level.

Both new site access points include pedestrian and cycle crossing facilities, and for on carriageway cycle routes, advance stop lines will be provided. As indicated previously the works to Savile Street include the provision of an eastbound cycle lane, with the footways abutting the site being fully reconstructed.

A partially segregated cycle route from the east (Attercliffe Road / Five Weirs Walk) to the site exists and a “toucan” crossing facility linking this route to the site is proposed. The reverse route back towards Attercliffe Road is entirely on carriageway, and the provision of at least a partly segregated route has been investigated, unfortunately no easy solution to this problem has been discovered and at present it will continue as existing.

Taxi Rank Provision

At the upper level a formal taxi rank area is being created within Carlisle Street, adjacent to the main upper level pedestrian entrance. The close proximity of this

281 rank to the store entrance and the main pedestrian route to the district shopping centre should also offer some synergy of use with the district centre.

A further Taxi ramp and private hire drop off provision is also provided on the ground floor car parking area, adjacent to the main pedestrian entrance at that level.

Servicing

Servicing of the store takes place from an upper deck, which is accessed from the main vehicle entrance to the site off Savile Street. Prior to entering the car parking areas, an access to the service ramp is provided, which segregates service vehicles completely from the public areas of the site.

Due security concerns, site layout, design constraints and safe operation of the car park, height restrictions will be in place to prevent HGV’s from accessing the lower car parking area. Therefore any HGV’s deliveries to the office and neighbourhood retail units will be required to deliver goods to a collection area within the Tesco service yard, where the goods will be securely stored for collection. Goods will then be distributed by smaller van which can access the ground floor parking area, to the office and neighbourhood units from dedicated service areas within the site. The removal of waste will take place in a similar manner. This process will prevent servicing taking place from the public highway and will be managed by an appointed centre manager. A service and delivery management plan will be secured by condition.

Travel Plan

The TA included a travel plan framework for the site to encourage the use of sustainable travel modes for the store and office employees together with shoppers, general visitors and deliveries to the site.

Some of the main measures proposed include:-

- Appointment of a Travel Plan Co-ordinator. - Provision of dedicated and signed parking spaces for low emission vehicles. - Monitoring of staff travel, including targets for maintaining the number of single occupancy car trips in the first year, decreasing the number by 5% in the first two years and decreasing the number by a total of 15% in the first 5 years of operation. Should the two or five year targets not be met, then a sum of £15,000 for each target will be made available to fund measures to improve the number of staff travelling by public transport. - A commitment to consider the provision of an LPG pump within the petrol filling station. - A commitment to discuss with First, Stagecoach and SYPTE the options for obtaining discounted season tickets for staff at the site. - The provision of cycle racks adjacent to the store and office accesses and the public square. - The provision of discounts on cycle purchases, as part of a national Tesco scheme.

282 - Provision of a public transport information kiosk in the entrance to the store. - Consideration of requests for flexible working practices to reduce peak hour demand, where feasible. - Sharing of best practice within the Tesco Travel Plan team.

The Travel Plan for the office element of the development will need to consider similar measures, and more detailed information on the Travel Plans will need to be submitted as part of the reserved matters application.

The general conclusion within the TA supporting this application, indicates that the local road network in the vicinity of this site will continue to operate satisfactorily when the development is fully operational. The new access junctions will operate safely and have sufficient capacity for their intended use, and the precautionary mitigation measures should be sufficient to resolve any traffic problems that are created.

It is consider that the TA does represent a reasonable assessment of the impacts the development will have on the highway network, and the mitigation measures proposed are fair.

The proposals do represent a significant traffic generation scheme, which will clearly give rise to some impact on the local highway network, the closure of Carlisle Street is of concern in highway terms, and the development’s potential impact on public transport, also gives grounds for concern.

However, the provision of a new large retail unit adjacent to the District Centre, is considered to offer major potential benefits in terms of linked trips. The provision of a large element of office accommodation within the development should also add to these benefits.

The development is also in a very highly accessible location on the edge of the City Centre, which should offer the maximum potential for trips on public transport.

In terms of national, regional and local planning policy the site is ideally located. Therefore, subject to the appropriate conditions and section 106 agreement, it is acceptable in highway terms.

Inclusive Access

The development will provide inclusive access to all areas and a suitable number of mobility parking spaces located in the closest proximity to the building’s entrances.

Design

The site has now been cleared .The former buildings on site were set back from the Savile Street Road frontage and due to their design, position and the nature of the use, failed to complement the appearance of the streetscene. The buildings also had no frontage to Spital Hill or Carlisle Street due to the topographical changes across the site and existing retaining walls.

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The development comprises of three elements: the retail superstore, office building and neighbourhood retail units. The proposed buildings are laid out in a perimeter block form providing active frontages to all street facing boundaries of the site.

Office block

The proposed office block is located at the Spital Hill/Inner Relief Road junction. The building is predominantly three storeys in height, rising to four storeys at the Inner Relief Road junction. The increased height of the building at this junction reflects the site’s importance as a gateway site not only into Spital Hill, but also on approach to the city centre form Savile Street and Spital Hill, where the building will form part of a gateway development due to its relationship to the Wicker Arch. The office building continues up Spital Hill at a height of three storeys reflecting the massing of existing buildings on the western side of Spital Hill.

The design of the Spital Hill elevation reflects the finer grain of materials and buildings in the locality. This has been achieved by using robust materials including brick and exposed steel work with simple punched windows, which give the elevations a vertical emphasis. The office corner and elevation facing Savile Street is a more contemporary response using a mixture of glass, brick and steel mesh cladding to create a striking response to the varied built form of Savile Street. The ground floor of the building is constructed in brick. This gives the building a robust plinth and strong interface with the hard landscaping materials. The upper floors facing Savile Street are largely glazed with a series of coloured/opaque glass to add interest. The majority of the facade is however covered with a steel mesh cladding. The cladding is fixed to the structure of the building at first floor level and above. This Savile Street office facade is south facing and the mesh provides the necessary solar shading in the summer months to enable the building to be naturally ventilated. The mesh system will also be articulated to provide additional interest and elevated above the roof height of the building to screen roof mounted plant. The mesh is broken at the cores of the building to ensure the overall length and mass of the structure is reduced. The mesh is continued around the corner element of the scheme rising to a point at the Spital Hill/Inner relief road junction.

The increase in height of the building at this point and the design of the mesh facade increases the building’s prominence and signals the entrance to Spital Hill and the City Centre to motorists and pedestrians. The corner feature of the office development has been amended during the process to reduce the mesh’s projection above and beyond the elevation and to increase the robustness of the building. This has been achieved by introducing a more robust treatment to the lift and stair core, reflecting the approach elsewhere in the scheme and reducing the height and projection of the mesh, ensuring that it is now framed by the building. The office block will provide activity along Savile Street and Spital Hill, enhancing the pedestrian environment and will be complemented by high quality public realm improvements.

Retail Store

284 The store is located centrally within the site, elevated above Savile Street to provide two elevated trading floors with direct pedestrian access from Caborn’s corner via an atrium. The atrium runs through the site providing a central pedestrian link to Savile Street and affords access for shoppers from the parking areas. The atrium will be a welcoming space, naturally light by large sky lights and a glazed slot in the façade, which runs almost the entire length of the store, meeting the full height glazed entrance at Savile Street. The lower ground level of the store will comprise of car parking which will be screened in part by the elevation treatment of the store, metal mesh cladding and green walls.

The store itself will be faced in a multi shaded terracotta coloured cladding system, the colour of which has been selected to pick up on the red brick buildings in the locality and makes reference to the Hancock and Lant building on Blonk Street in the pattern and colour of the system. This material will break down the overall scale of the building and provide a finer grain response, which is often very difficult to achieve in large functional buildings. Glazing will also be provided at higher level and the cladding system will be cut in places providing a series of ‘slashes’ in the elevation, which will add interest, relief and modelling. The northern boundary of the store is screened by adjoining buildings and therefore is largely functional in its design. The service area is set back from Savile Street, adjacent to the northern boundary and will be screened appropriately so as not to appear out of character. The roof form of the development includes a shallow sloping pitch, which will be broken up by a number of substantial roof lights affording natural day light into the store and mono draught wind catchers which will articulate the roof.

Petrol Filling Station

The Petrol filing station is located adjacent to the Savile Street access to the site and comprises of a small kiosk building and a covered pump area. The design is acceptable and will be complemented by landscaping.

Neighbourhood Retail Units

The neighbourhood retail units are located at Carlisle Street alongside the main entrance to the retail store. The proposed units comprise a small parade of shops, two storeys in height. The units have been designed to emphasise the finer grain in this area, by using more robust materials including stone from parts of the boundary wall, which will be removed to accommodate the development. The use of materials and pattern of the facade has been designed to complement the existing shop units in the district centre, whilst providing a contemporary response that enhances the development as a whole. The facade will be articulated by a change in plain of each of three facing materials and the roof line broken by a brick parapet. The main store entrance is identified by a projecting canopy and glazed facade. The proposed shop fronts provide increased activity at street level and will enhance the appearance of the public space to be created and the district centre itself.

Car parking is screened from public view by the perimeter block form and multi level nature of the development. Therefore the visual impact of parked cars will be minimal when passing or observing the site from local vantage points.

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The design of the development has been approached in order to bring forward a comprehensive development whilst ensuring each building has its own identifiable character which contributes to the appearance of the street scene and visual amenities of the area. The proposals are considered to significantly enhance and improve the appearance of the site, complement the appearance of the street scene and create a landmark building that that will form a gateway site into the city centre and Burngreave.

Affect on Listed Buildings

The proposed development does not detrimentally affect he setting or appearance of any listed building which adjoin the site. The Wicker Arches are located some 80-100 metres from the site and the design of the scheme and materials proposed ensure that it is of an appropriate quality for this gateway site. Public Realm/Landscaping

Enhancements will be made to the hard and soft landscaping on site. This will include improvements to the footways within the development with secondary palette materials as set out in the Urban Design Compendium. Two new areas of public realm will be created at Caborn’s Corner and outside the entrance to the office block at the junction the new Inner Relief Road.

The new public square at Caborn’s Corner will transform the current highways layout, by stopping up Carlisle Street and providing a pedestrianised square which will enhance the vital interface of the store and the district centre. This area will encourage people who would not ordinarily visit Spital Hill to explore the district centre via linked trips with the proposed development. Due to the level difference between the store entrance and Spital Hill, the space will incorporate a series of steps and a ramp to afford disabled access. The steps are aligned to provide a direct line of sight between the store entrance and the district centre. Raised planted areas which incorporate seating will also be provided. A commemorative tree dedicated to Mr Caborn from a delegation of Bulgarian Trade Unionists is located in the current landscaped area at Carlisle Street. The species is in poor condition due to the excessive shading from the existing canopy of mature trees. The existing tree and plaque will be removed during the public realm works and will be conditioned to be integrated into a new planting scheme.

New Trees will be planted along Savile Street creating a boulevard leading towards the Wicker and the enlarged new public concourse area located at the junction of the site with the Inner Relief Road.

The applicant agreed at outline stage to contribute £250,000 towards off site public realm improvements. Following negotiations with the applicant to value engineer of the hard surfacing within the public realm agreement has been reached to contribute an additional £121,500 towards off site public realm enhancements within the district centre. This gives a total contribution of £371,500.

It is a conditional requirement that the applicants provide a comprehensive landscape scheme for the site to include several street trees (planted in the

286 ground). A suitable condition will be attached to any consent ensuring these trees are delivered. This will help create a sense of place, enhance the built form and the public realm will mirror other projects recently rolled out across the city.

Development Phasing

Completion of the core and shell of the office and neighbourhood retail units prior to occupation of the food store is secured by planning condition The condition is worded to deliver the scheme in a comprehensive manner in order to provide a layout and design which addresses the site’s road frontages, screens internal car parking decks and addresses the site’s prominent gateway location at the Wicker/ Inner Relief Road junction.

However the developer has indicated in recent discussions, in order to finance the overall project in the current difficult economic/ market conditions, the scheme may have to be phased. The first phase may comprise of the store, neighbourhood retail units and the public realm, with the office development delivered in a second phase post occupation of the foodstore. The developer will be reviewing project phasing over the coming financial year prior to the commencement of development on site, with a view to potentially requesting a phased delivery by variation of planning conditions. Details of any such variation of planning condition application will be reported back to members for consideration at the relevant time.

Sustainability

The importance of mitigating the impacts of climate change within new developments is identified in PPS 22 and PPS 1 which identifies that climate change impacts should be taken into account in the location and design of new development, and the inclusion of renewable energy resources in new developments is vital to achieving the governments carbon reduction renewable energy targets and sustainability agenda.

In excess of 10% of the development’s energy needs will be generated from an on site Combined Heating Cooling and Power Plant (CCHP), which is a decentralised low carbon source of energy. The CCHP will produce electricity and heat for the development. The heat generated by the equipment will also be used to heat the buildings and through the use, of absorption chillers, cool parts of the development, contributing to the stores substantial requirements for produce refrigeration.

A number of energy efficiency measures will also be included to reduce the development’s carbon emissions by in excess of 20%, these measures will include;

- Sustainable Drainage systems comprising of rainwater collection tanks to gather and reuse rainwater. The collection tanks reduce the effects of flooding by intercepting and holding water on site to be reused rather than it directly entering the mains drainage system. - The use of concrete will be minimised, building materials will be selected from the Building Research Establishments Green Guide to Construction with an aim of meeting A+, A and B ratings where possible. - Air handling and recycling units

287 - Inclusion of roof lights each with an area of 36 sq m in order to promote day lighting within the store and minimise the use of electrical lighting. - Roof mounted Monodraught wind catchers and façade design provide natural ventilation - High efficiency heat pumps and cooling. - Building orientation and façade treatment will maximise solar gains and provide appropriate shading and cooling during the summer months.

The developer has also agreed to meet a condition requiring each building within the scheme to attain a BREEAM ‘very good’ rating further enhancing the development’s overall sustainability credentials.

In addition to the local and national sustainability requirements the developer also has a corporate sustainability agenda which sets down a number of criteria all new stores must meet these include;

- Halving carbon emissions from all new Tesco stores built worldwide between now and 2020 compared with an equivalent store built in 2006 - Halve emissions form existing stores and distribution centres worldwide by 2020 - Halve the CO2 created per case of goods delivered worldwide by 2020.

An environmental store format has also been developed which demands that a number of sustainability design concepts are included as standard in every store at the feasibility stage

Public Art

A public art brief has been commissioned and will be secured by legal agreement. The brief will require the art work to be integrated into the hard landscaping works. The public art project will require the artist to engage with the local community in developing ideas for the proposal, which will forge a sense of community ownership of the spaces, whilst enhancing their appearance.

Noise

The main noise sources associated with the development will be during the temporary construction phase and noise from the operational activities associated with the development (including plant and vehicle traffic). A PPG 24 noise assessment has been undertaken to identify potential impacts. The closest noise sensitive uses (residential properties) are located on the upper floors of commercial properties on Spital Hill, located approximately 20 metres from the site.

The site has now been cleared, however construction works are likely to require earth moving equipment and construction vehicles to operate from the site. Construction noise and hours of working are governed by the Control of Pollution Act 1974, which will ensure suitable hours of work and construction noise is controlled.

Operational Noise from the development once constructed is most likely to be generated by fixed plant attached to the buildings. The type and location of the

288 plant has not yet been specified. A condition will therefore be applied requiring fixed plant to be suitably attenuated.

Vehicle noise associated with site including servicing, car parking, traffic generation and the use of the proposed petrol filling station have been considered. Parking areas are screened by buildings, which will attenuate noise transmission from the site. Noise generation associated with the perceived traffic demand of the development does not give rise to any detrimental noise generation and the communal service area and petrol filling station is located in the eastern corner of the site, at the greatest possible distance from residential properties.

A condition will be attached to ensure appropriate glazing specifications to the proposed office accommodation fronting Spital Hill and Savile Street to attenuate traffic noise.

The store will operate on a 24-hour basis closing only Saturday and Sunday evenings due to Sunday trading laws. The neighbourhood retail units will be the subject of greater restrictions initially. Once occupied if extended hours of operation are required by individual operators they will be considered at that time under separate applications.

Ecology

The site largely comprises of hard standing, public highway and an isolated area of tree planting at the junction of Carlisle Street and Spital Hill. Given these existing circumstances and the nature of the previous commercial uses, the site is of limited Ecological Value. However an ecological impact assessment has been undertaken to establish if there are any features of ecological interest on the site. There are no statutory designated sites of nature conservation value within or immediately adjoining the site. The nearest statutory designation Salmon Pastures Local Nature Reserve (LNR) is some 750 metres from the site and the Neepsend Brickworks Site of Special Scientific Interest (SSSI) is located approximately 1.1 km from the site, designated largely for its geological rather than ecological interest.

Given this distance from the site the LNR an SSSI are considered unlikely to be adversely affected by the development the site.

The Lower Don Valley site of nature conservation interest (Sinc), is located at its closest point, 30 metres to the south of the site. Associated with this non-statutory site and bordering the River Don on both sides is a green link corridor. The separation of the application site from this area of ecological interest by virtue of existing buildings and the public highway (Savile Street) ensures that no detrimental impacts arise as result of the development.

No evidence of protected species or habitats of ecological importance or protected under the Sheffield Local Biodiversity Action Plan are present on site. There is no recorded evidence of roosting bats on site, however they have been recorded within 1 km of the site and their presence in the area is considered likely due to the proximity of potential habitat in the form of mature trees alongside the River Don.

289

The provision of bird and bat boxes is therefore considered necessary. The boxes should be located on the river edge, if suitable agreement can be reached with landowners or alternatively on the buildings within the site. Subject to the inclusion of this condition the development is not considered to give rise to any harmful ecological impacts.

Archaeology

An archaeological desk based assessment has identified archaeological potential including survival of early 19th century buildings along the southern boundary of the site and which may contain evidence of mixed industrial and domestic use. There is also potential for disturbance as a result of the public realm works at Caborn’s corner.

No scheduled ancient monuments or listed buildings fall within the site boundary.

Suitable conditions will be attached to ensure that the necessary investigations are undertaken and the findings are recorded.

Ground Conditions

The site is largely covered by hard standing formerly accommodating vehicle storage and repair areas, a petrol filling station with underground storage tanks and above ground oil storage tanks. The site has historically been occupied by mixed industrial uses, including the occupation of the site by a railway station, and associated buildings and more recently a scrap metal yard and lorry park. Past and Present industrial activities at the site have resulted in potentially hazardous material being present on site. Initial desktop assessments have identified potential contaminants. Further investigation is required and suitable conditions will be attached to ensure that potential impacts can be suitably mitigated.

Air Quality

PPS 23 States that any air quality consideration that relates to land use and development is capable of being a material consideration and most likely in cases where there are predicted exceedences of Air quality Standards (AQS) in an Air Quality Management Area (AQMA) or where a development renders an Air Quality Action Plan (AQAP) unworkable. However it also indicates that it is not the case that all planning applications inside or adjacent the AQMA’a should be refused if developments would result in a deterioration of local air quality and the presence of an Air Quality Management Area (AQMA) should not sterilise development.

The European Air Quality Framework Directive establishes a strategic framework for setting Europe wide limit values for twelve air pollutants, which include Sulphur Dioxide (SO2), Nitrogen Dioxide (N02), Particles (PM10), Lead (Pb), Carbon Monoxide (CO), Benzene, Ozone, Polycyclic Aromatic Hydrocarbons (PAHs), Cadmium (Cd), Arsenic (As), Nickel (Ni) and Mercury (Hg). Member States have been set legally binding limit values for each pollutant to achieve, established by a series of Daughter Directives. The UK Government's policy on air quality is set in

290 the Air Quality Strategy for England, Scotland, Wales and Northern Ireland (AQS) published in January 2000 and updated in 2003, as required by Part IV of the Environment Act 1995.

Under Part IV of the Environment Act local authorities are required to review and assess air quality within their administrative boundaries with the aim of working towards the air quality standards by their target dates. Where there is a risk that air quality objectives are unlikely to be achieved by the target period the authority is required to declare an Air Quality Management Area and prepare AQAP, to ensure improvements in air quality. In recognition of the need to minimise environmental impacts SCC published a guidance note in 2001 encouraging developers of new developments to adhere to sustainable development principles. The guidance confirms SCC wishes to protect air quality in areas where air quality is good and improve it in areas where it is not so good, it also emphasised that any proposed development that could adversely affect air quality does not inevitably mean a prohibition of the development, with planning applications decided on merits, taking full account of all relevant material planning considerations, so a balanced assessment can be made.

Sheffield’s AQMA covers the whole Sheffield urban area. The AQMA replaces two previous Air Action Zones covering the city centre and the area around the M1 J34 corridor.

The applicant’s ES assesses the base line air quality conditions and the impact the development will have on local air quality both during construction, and as a completed operational development.

Both the Construction Phase and Operation Phase of the development will have impacts on air quality with the main emission source arising from vehicle emissions due to traffic generation. N02 is the most significant of the emissions from this source, in terms of its impact upon local air quality, with PM10 being the most significant pollutant arising from the Construction Phase as a result of dust generation associated with site clearance.

The assessment identifies sensitive receptors, including both commercial and residential properties in the immediate vicinity of the site as representative of those properties that may be exposed to the highest and the largest change in concentrations as a result of the development. The applicant’s assessment of the baseline air quality in the locality indicates that annual mean N02 concentrations currently exceed and are predicted to exceed current EU limits values in 2011 without the development in place. The assessment of PM10 concentrations indicate that there are potential current and predicted likely exceedences of PM10 concentrations at a number of the identified sensitive receptors without the development in place.

The assessment of Air Quality levels and its impact is accepted. Due to current base line excedences of the EU/National air quality limits any increase in concentration of N02 and PM10 will be considered a high priority, in accordance with the impact classifications.

291 The applicant’s assessment demonstrated predicted impacts, at sensitive receptors for N02 and PM10. For N02 minor beneficial impacts and neutral impacts are predicted, with PM10 impacts also ranging from minor beneficial to neutral impacts on air quality with the development not resulting in any significant improvements in air quality.

The applicant’s conclusion within the ES states that by 2011 the potential impact of the proposed development on annual mean and short term mean concentration of NO2 and Pm10 will be neutral or minor beneficial improvements. However given the existing baseline exceedences of EU air quality limits for NO2 any predicted impacts will be considered a high priority. Therefore it is essential to ensure that adequate mitigation is put in place to off set and reduce the potential impacts of the development on air quality.

It is intended to achieve these through a variety of measures including;

- A green travel plan, which will promote alternative methods of transport to the site, reducing traffic and congestion including measures such as; - travel plan coordination group - Set up and oversee a car sharing facility - Interest fee loans/discounts for purchase of bicycles for commuting - Subsidy of annual bus passes - Reducing incentives for car travel (including company cars) - Provision of LPG at the petrol station - Bike and cycle loans. - Home delivery - Sharing of information and best practices with travel plan coordination team - Targeted local labour recruitment reducing the need to travel - Provision of low emission vehicle priority parking - Delivery fleet management to ensure that all LGV and HGV delivery vehicles meet euro III standard minimum and by 2011 euro IV standard. - Funding of the councils ‘Smarter Choices’ public transport promotion along the Statutory Quality Partnership Route for a period of three years to which is designed to increase the attractiveness of public transport and provides incentives for public transport use to the general public. - Enhanced pedestrian waiting areas and bus shelters with real time public t ransport information increasing the attractiveness of public transport. - Public Transport Information kiosks - Consideration of flexible working practices to reduce peak hour demand. - Provision of safe secure and covered parking cycle and motorcycle parking with showers and changing facilities within the development, facilitating the use of alternative modes of transport. - Contribution of 50,000 towards signal optimisation at junctions around the site that will improve traffic flows reducing localised congestion. - Commitments to establish a reduction in single persons car born occupancy monitored by a Travel Plan coordinator, and establishment of commitments to a reduction of 5% within 2 years and 15% reduction after 5 years with financial penalties of £15,000 towards public transport if each target is not achieved. - Fit continually regeneration trap to existing HGV’s and to reduce pollution.

292 - Construction and demolition practices undertaken in a responsible manner with air quality monitoring where necessary. - Funding infrastructure improvements should delays to public transport occur as a result of congestion to include variable message signage, queue detection, camera monitoring to alert early warnings of traffic congestion. - Provision of 25 priority low emission car parking spaces split between the office and store - Provision of 6 electrical car charging points split between the office and store. - Provision of on site renewable energy production which will account for the over 10% of the development’s energy demands, and an additional 20% carbon saving through energy efficiencies.

The applicants have identified a commitment to implement an Environmental Management and Monitoring Plan designed to monitor emissions during demolition and construction. This covers a variety of measures governing site planning, construction traffic, demolition works, earth moving and site activities measures which will minimise any impacts from the construction phase.

Subject to the inclusion of these methods, air quality impacts will be mitigated.

Socio-Economic

The applicants study area is based around Spital Hill and the wider catchment incorporating zone 4 of the Sheffield Retail Study 2003. The Indices of Deprivation (2000) measures deprivation of every ward in England considering a number of factors including income, employment, health, housing and access to services. There are 8414 wards in England with the most deprived rank being 1. Analysis of the study area shows variance between the wards contained in it; however overall Burngreave is has greatest level of deprivation with a score of 60. The study area shows notable deprivation in income, employment, education, health and housing.

The analysis of unemployment in the study area suggests an average of 5.7%, with unemployment being most significant in Woodside 11.7% and Burngreave 7.9% comparing to a district average of 4.2%. Analysis of basic educational attainment and higher-level attainment illustrate that none of the neighbourhoods in the study area are hitting the district average. Life expectancy in the study area of 76.4 years also falls below the district average of 78.9 years.

Employment affects

The development will generate temporary employment during the construction phase and permanent employment on completion of the various elements of the scheme. Due to the nature of the development not all of these employment opportunities will be provided in Sheffield as a number of specialist trades and fabrication required in the construction process may come from outside Sheffield. The principles of sustainable construction will however be incorporated with a key element being the local recruitment of the construction workforce. It is estimated that 487 jobs will be created though the construction process.

293 Proposed permanent direct employment based upon job density ratios within the developer ES indicated that circa 600 new staff would be employed by the new development in a mixture of full and part time positions. This breaks down as 395 jobs created by the store, 21 by the neighbourhood retail units and 204 by the office development. Recruitment for the store will be focused to target the local employment market and is conducted through the national job centre plus (JCP) it is envisaged recruitment from outside the area will not exceed 10%. JCP work with local organisations (Burngeave Opportunities Jobnet) in this case to satisfy New deal requirements.

Directly generated jobs on site will also generate indirect employment opportunities arising from supply and servicing of the site the applicant has estimated this to be 35 jobs although additional opportunities may arise in respect of green space maintenance.

Increase retail floor space as a result of the development will increase consumer choice in the local area enhancing the retail offer of the district centre, helping to retain local consumer expenditure in the local area and reducing the need to travel.

The store is expected to generate net 73.3 million pounds of turnover in the test year 2014, with 90% of comparison and convenience turnover drawn from the study area. This results in draw of 44.9 million pounds of convenience turnover and 31.2 million pounds of comparison in 2014 from the study area. This leaves residual capacity of 12.8 million pounds of convenience turnover and 108.4 million pounds of comparison turnover in the same year. This scale of development is considered consistent with the approved retail capacity study undertaken by White Young Green for Spital Hill. The neighbourhood retail units are anticipated to generate a net turnover of 2.7 million pounds based on net floor space and estimated turnover of £3000/m2.

There is considered to be a 2.6% trade impact on existing retailers in the district centre, however given the qualitative improvements in the retail offer of the district centre as a result of the development, trade leakage that is currently experienced will be reduced, helping to focus investment and expenditure in the district centre.

The proposed development will lead to a significant net employment gain over that generated by the current car sales use on the site. Overall, the development is considered to result in positive socio economic impact.

Regeneration Partnership

The Spital Hill Partnership is a public/private sector partnership set up by Tesco working jointly with Burngreave New deal for Communities, Jobcentreplus, Sheffield First, Sheffield Future, Sheffield Work and Skills Board, Shaw Trust and Sure Start. The focus of the partnership will be to bring more local unemployed people back to work. Through partnership working the development will target people who are traditionally hard to access and help to break down barriers to employment such as low skills levels, disability, lack of work experience, language and childcare. This will be achieved through the Tesco Job guarantee programme, which offers pre-employment training and work experience within a structured

294 training programme enabling Tesco to offer jobs on the basis of aptitude as opposed to existing qualifications.

The scheme offers those who are interested in work, a first impressions interview to assess willingness to work. Detailed job matching ensures that recruits aspirations are equated to individual work contracts, with a rolling programme of pre-employment training is then tailored to meet individual learning needs. Everyone who completes the pre-employment training course is guaranteed a job. Tesco have successfully delivered such schemes elsewhere in the country including Seacroft East in Leeds, Mansfield and Deysbrook in Liverpool. The actual number of jobs that are ‘ring fenced’ for people to be recruited in this way is discussed and agreed with the local agencies with the aim of recruiting around 50% of store staff through the job guarantee scheme, prior to opening up recruitment to local people under regular recruitment procedures.

The foundations of the programme have already been established following the launch of the Spital Hill Partnership July 2007. The partnership bodies are working to identify if there is a need for preparatory up skilling to access the Tesco pre employment training and to identify appropriate support and training including childcare provision. This regeneration partnership will be secured by legal agreement to ensure that the programme is implemented should planning permission be granted.

Flood Risk

The application site lies within flood zone 3a as defined on the Environment Agency’s Strategic Flood Risk Map. In line with the guidance contained in PPS 25 the proposed scheme represents a vulnerable use and therefore the sequential and exception tests as set out in PPS 25 must be satisfied. Substantial master planning and assessment has been undertaken which identifies the application site as a preferred location for a food store and defines the search area for any potential alternative locations. The applicant has identified a number of alternative sites that are available these include sites at Parkwood Springs, Atlas Way and Holywell Road none of which are sequentially preferable for locating a food store than the proposed development site. On this basis and subject to the imposition of conditions which require flood mitigation measures to include raising floor levels within the office accommodation and restricting surface water run off the development is acceptable with regard to flooding.

Cumulative Impacts

The ES has analysed the cumulative impacts of the development taking into account the scope of the submitted EIA with regard to extant planning consents in the immediate vicinity of the site. The two scheme considered are

- Brunswick Road scheme Planning ref: 05.3185/OUT. The scheme is in outline only with the development proposing less than 10,000 sq metres of office space (gross), residential accommodation, ancillary A1/A3/A4/A5 units, not exceeding 280sq metres The accompanying illustrative plans indicate the development would be between 10 and 15 storeys in height

295 - Savile House Planning ref (04/04560/FUL) proposes the refurbishment of the existing building changing its use form industry to office proving 11,000 sq metres of office space gross and 277 car parking spaces.

Socio Economic Impact

The proposed developments would provide substantial investment and employment within the locality in comparison to the existing uses, both during construction and through long term permanent employment. Savile House alone would support in the region of 405 full time positions based on 7700 sq m of lettable floor space. The Brunswick Road scheme proposes 7000 sq metres of lettable floor space and 200 sq metres of other commercial floor space providing 378 permanent full time jobs. In addition the proposed Tesco development will generate circa 600 new job opportunities. The proposed development will contribute to the supply of new office accommodation in this edge of city centre and allocated Fringe Industry and Business Area. The proposed retail element will also address comparisons and convenience trade leakage from the area and enhance the attractiveness of the existing retail offer in Spital Hill.

Landscape and Townscape Impacts

The Savile House development has been completed. The Brunswick scheme is in outline only with external appearance reserved for subsequent approval, but it is envisaged that the site would be redeveloped in a comprehensive manner proving active uses on the site. The proposed scheme provides frontage development along Spital Hill and Savile Street with a reference corner building at the junction of Savile Street and associated environmental improvements and landscaping. Cumulatively the committed developments at Brunswick Road and Savile House along with the proposed scheme will lead to a significant enhancement to the built form in the locality.

Transport and Accessibility

The applicant’s traffic modelling analysis has taken into account the potential traffic generation from both extant permissions. The Savile House scheme is now on site however the Brunswick Road development is approved in outline only and may not actually be developed. Therefore the modelling takes account of a worse case scenario.

Ecological Impacts

An ecological assessment has been conditioned to be submitted with the reserved matter application at Brunswick Street to ascertain any likely impact, with no conditions identified on the Savile House scheme. The application site is of little ecological value and is not considered to give rise to any detrimental impact as a result of the development, however conditions will be attached to provide bat/bird boxes on site. There are considered to be no harmful cumulative ecological implications.

Archaeology

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Suitable mitigation measures in the form of planning conditions will be attached to any planning consent requiring further investigation work to be carried out prior to the submission of a reserved matters application. . A condition has been attached to the Brunswick Road scheme requiring an archaeological assessment and no issues were identified as a result of the Savile House scheme. The development is not considered to give rise to and cumulative archaeological issues.

Ground conditions

There are no ground condition issues as a result of the cumulative impact.

Flood Risk/Drainage

The Brunswick Road site is located outside of flood zone 3A. The Savile House scheme raises no flooding or drainage issues as result of its assessment. There are no cumulative impacts on flooding and drainage and adequate mitigation is to be secured by condition.

Noise

Suitable noise mitigation conditions have been imposed on the two outstanding consents, which will mitigate any impact as result of noise; similar conditions will be imposed on the current application.

Air Quality

No air quality issues have arisen as a result of the Savile House and Brunswick Road schemes. The additional traffic flows as a result of these developments have been input into the air quality assessment and considered as part of the overall air quality impacts of the development.

Effects During Construction

Suitable mitigation will be secured by planning condition and the Control of Pollution Act 1974.

Subject to the implementation of effective conditions on the proposed application and the extant schemes the development is not considered to result in any cumulative detrimental impacts.

CONCLUSION/SUMMARY

In summary, the proposed redevelopment of this former car sales site, is one that raises a number of significant issues, and has a number of potential impacts. These have been carefully considered within the Environmental Statement prepared by the applicant, and also within further supporting information and addendums, and by officers in assessment of the proposals.

297 This scheme follows the principles established in the outline planning approval (planning ref 07/01733/OUT) and proposes a comprehensive mixed use scheme comprising of the following

The layout of the site provides a perimeter block with active frontages along Savile Street, Spital Hill and Carlisle Street and the proposed office building sited at the junction of the Inner relief road. The design of the building is acceptable and will provide a significantly improved gateway into the city centre and Burngreave. The scale of the building along Savile Street reflects the existing built form and hard and soft landscaping improvements, including a boulevard of trees, will enhance the visual amenities of the locality and appearance of the streetscene. The built form along Spital Hill appropriately reflects the rising topography providing active frontages on approach to the district centre from the south. The primary store entrance is taken at grade from Carlisle Street with additional active frontages provided by way of small neighbourhood retail units at Caborn’s Corner.

It is considered that the design of the scheme is acceptable and there is sufficient separation between the site and the listed buildings to safeguard their setting and special architectural and historic interest.

Two levels of sales floor space are provided in store, both of which are elevated above Carlisle Street. This provides grade access through the main entrance to the store from Carlisle Street (Caborn’s Corner).

In order to ensure that the development is effectively linked into the district centre, and to maximise the potential for linked trips between the store and the existing centre, Carlisle Street is to be closed at the junction with Spital Hill forming a public square. Alternative access routes to properties/businesses on Carlisle Street/Sorby Street are provided via Savile Street and junction improvements are to be made at the Gower Street/Sutherland Street roundabout by the developer. Alternative access can also be gained via Gower Street from Spital Hill.

The scheme will provide a new high quality public realm to Caborn’s Corner and the inner relief road with improvements to hard surfacing and planting within the site boundaries. Additional section 106 contributions of £371,500 have also been secured for physical enhancements and improvements to Spital Hill District Shopping Centre in addition to the works at Caborn’s Corner. The proposed store is considered to be appropriately linked into the district shopping centre with the sales floor elevated over two levels with grade access taken form Carlisle Street to ensure maximum regeneration benefits for the existing District Shopping Centre.

298

The proposed office accommodation will add the creation of a vibrant mix of uses on site. The scale of the proposed office accommodation is acceptable in this highly sustainable edge of city centre location.

The development incorporates acceptable sustainability credentials, including decentralised low carbon combined cooling heat and power system as well as energy efficient measures which will reduce the development’s carbon emissions by 20%.The development therefore satisfies policies CS 63, 64 and 65 of the Core Strategy.

The developers have set up a regeneration partnership. The focus of the partnership will be to target local unemployed people. Through partnership working the development will target people who are traditionally hard to access and help to break down barriers to employment such as low skills levels, disability, lack of work experience, language and childcare. This will be achieved through the Tesco Job guarantee programme, which offers pre-employment training and work experience within a structured training programme enabling Tesco to offer jobs on the basis of aptitude as opposed to qualifications. This will be secured by section 106 agreement.

A major issue in the consideration of the application has been the management and mitigation of the traffic impacts of the development. The proposals do represent a significant traffic generation scheme, which will clearly give rise to some impacts on the local highway network. The closure of Carlisle Street is of concern in highway terms, and the development’s potential impact on public transport, also gives grounds for concern. However the traffic assessments supporting this application indicate that the local road network in the vicinity of this site will continue to operate satisfactorily when the development is fully operational. The new access junctions will operate safely and have sufficient capacity for their intended use. The precautionary mitigation measures (inclusive of bus lane improvements, signage, CCTV cameras, queue detection) as well as signal optimisation, junction improvements, travel plan commitments and funding of the councils smarter choices programme are considered sufficient to resolve any traffic problems that may occur.

The development is in a very highly accessible location on the edge of the City Centre, which should offer the maximum potential for trips on public transport. In terms of national, regional and local planning policy the site is ideally located.

The spaces to be provided within the car park are split between the office and retail uses in accordance with relevant parking standards. The management of the car park and servicing of the area will be controlled through suitable management arrangements and agreed strategies. The developer will also be conditioned to provide enhanced bus waiting facilities in the form of bus stops with real time information on both Savile Street and Spital Hill. A public transport information kiosk will also be provided within the store at Caborn’s corner to assist with journey planning.

299 The applicants have identified that the development will have an impact on air quality, however subject to appropriate mitigation measures secured, by way of the green travel plan, public transport promotion, and contributions to air quality monitoring, the development is considered acceptable.

The proposals have been assessed in accordance with the tests laid out in Planning Policy Statement 6. The Burngreave and Fir Vale Master plan identified the need to provide a supermarket. The Council commissioned specialist consultants to undertake a Retail capacity Study and design exercise to identify potential development options. The studies highlighted Spital Hill’s deficiencies as a shopping centre, having the least convenience floor space of all Sheffield District Centres and poorly perceived as a location for food shopping. The study also demonstrated a deficiency in supermarket provision in the wider North East Area with household surveys showing that even before the closure of Sainsbury’s at Meadowhall 76% of convenience expenditure is spent outside of the North east area of Sheffield, with the closure of Sainsbury’s only increasing this leakage of expenditure. The application site was considered the best site to achieve maximum regeneration benefits for the centre. The Council’s Cabinet subsequently endorsed the findings of these reports in January 2006 as a material consideration.

The applicant has satisfactorily demonstrated that there is a quantitative and qualitative need for the provision of a supermarket at this site given current deficiencies in the retail offer. The development would raise the status of Spital Hill District Centre but not beyond that of a district centre. There are no sequentially preferable sites in the north east sector of the city and the identified impacts on the city centre and other centres as a result of the development are considered sustainable. The site is in a highly sustainable location served by public transport facilities and in close proximity to surrounding housing areas, making the site highly accessible.

The development will provide in the region of 600 permanent full and part time jobs and approximately 450 temporary jobs during the construction process.

The Environmental Statement has considered the visual and landscape impact of the development, from surrounding vantage points. Following assessment it is concluded that the layout and scale of the development is acceptable and will significantly enhance the visual amenities of the locality providing active frontages around the perimeter of the site that reflect the topographical changes across the site. High quality soft and hard landscaping public realm improvements at Caborn’s corner and within the site boundaries will enhance the overall quality of the development.

It is therefore considered that the proposed development is acceptable, that all potential environmental impacts have been adequately assessed within the Environmental Statement, and that the development will provide substantial economic, regeneration, employment and socio economic benefits, without impacting negatively upon existing centres or upon the strategy for regeneration of Sheffield City Centre.

300 It is concluded that planning permission should be granted for the proposed development subject to a legal agreement and planning conditions and subject to referral to the First Secretary of State under the shopping directive.

Shopping Direction (Circular 15/93) Referral to Secretary of State

As of the 20th April the new Town and Country Planning (Consultation)(England) Direction 2009, appended to Circular 02/09, replaced Circular 15/93 Shopping Directive governing the rules for referring applications meeting certain criteria and thresholds, relating to shopping development.

However as the application was received and validated before the 20th April the application will be referred to the Secretary of State under the previous circular 15/93

The proposed gross retail floor space within the development is 10,487 square metres.

Paragraph 3b of the Circular states that a referral will be required were gross shopping floor space on any application would be between 2,500 – 20,000 square metres, and would exceed 20,000 square metres when aggregated with gross shopping floor space of not less 2,500 square metres, which is comprised or included in any other development of land.

As Sheffield has approved gross shopping floor space far in excess of 20,000 square metres (the New Retail Quarter being of most note with 98,500 square metres gross), the application would need to be referred to the Secretary of State, if the Board is minded to approve it.

RECOMMENDATION

Grant subject to:

- The signing of a legal agreement under Section 106 of The Town and Country Planning Act 1990, in accordance with the Heads of Terms set out below. - The proposed list of planning conditions. - The confirmation of the Secretary of State that the Council can determine the application as recommended.

Members are also requested to confirm that they agree with the following:

Raise no objections to the proposed advertisement of the necessary Traffic Regulation Orders (including the prohibition of vehicles on Carlisle Street) that will be required as part of the highway works associated with this development subject to satisfactory arrangements being made with Statutory Undertakers with regards to any of their mains services that may be affected and suitable alternative routes being created.

Heads of Terms

301

If within the first 24 months of completion and upon full occupation of the part of the development comprising a retail superstore, increased delays to public transport are taking place along the Spital Hill/Burngreave Road route, the developer shall pay the sum of £305,000 towards a scheme of bus lane improvement measures along this route, together with vehicle queue detection measures, CCTV and VMS works as well as a contribution of £1000 per annumn for a period of two years towards bus journey monitoring.

A contribution of £15,000 towards public transport improvements if after 2 years a 5% reduction in staff single person car occupancy from agreed base line levels has not been reduced, and a further contribution of £15,000 after 5 years if a 15% reduction in staff single person car occupancy has not been achieved.

Pay the sum of £10,000 immediately prior to occupation of that part of the development comprising of a retail superstore followed by a further contribution of £10,000 12 months after the first payment in each case by way of a contribution per annum for a period of 2 years towards air quality management in the vicinity of the site.

An annual financial contribution of £20,000 toward the ‘Smarter Choices’ public transport promotion campaign for a period of three years from first occupation of development comprising the retail superstore

The developer shall ensure that before any part of the development is occupied:

(i) A Detailed Travel Plan for the relevant section of the site has been submitted and approved; (ii) A Travel Plan Co-ordinator to be appointed for each relevant section of the site (whether or not it is the same travel plan coordinator) relevant section of the site. The Travel Plan Co-Ordinators to form and take an active part in a Travel Plan Group (comprised of representatives from the occupiers of the development) to discuss performances, successes and best practice; (iii) Monitoring arrangements for the operation of the Travel Plan have been agreed with the City Council;

Upon first occupation of the retail superstore a financial contribution of £50,000 towards junction optimisation and signage works in the vicinity of the site.

To contribute to all the costs in respect of training those enrolled in the employment training scheme being promoted by the Spital Hill Regeneration Partnership in order that the local people are given an opportunity to enhance their employment prospects from job opportunities arising from the development.

Prior to the commencement of development a contribution of £371,500 towards public realm enhancements within Spital Hill district centre.

To allocate and provide 25 parking spaces for use by low emission vehicles near the store entrance, and to provide appropriate signage demarcating those spaces.

302 Upon commencement of development, the developer shall take responsibility for the on going maintenance and upkeep of the retaining wall within the site boundary to the southern side of Spital Hill and Carlisle Street.

Case Number 08/05888/CHU

Application Type Planning Application for Change of Use

Proposal Continuation of use of land as extension to garden and erection of 1.8 metres high fencing

Location Land Adjacent To 28 Brushfield Grove Sheffield S12 4XR

Date Received 15/12/2008

Team CITY CENTRE AND EAST

Applicant/Agent Mr D McDonald

Recommendation Grant Conditionally

Subject to:

1 The development shall be begun not later than the expiration of three years from the date of this decision.

In order to comply with the requirements of the Town and Country Planning Act.

2 The development must be carried out in complete accordance with the following approved document;

Application site plan received on the 9th July 2009

unless otherwise authorised in writing by the Local Planning Authority.

In order to define the permission.

Attention is drawn to the following justifications:

303 CS47 - Safeguarding Open Space LR5 - Development in Open Space Areas

and to all relevant material considerations, including Supplementary Planning Guidance.

Site Location

LOCATION AND PROPOSAL

304 This application seeks retrospective permission to change the use of a small area of open space to form an extension of the domestic curtilage of No. 28 Brushfield Grove.

The site lies to the south of No.28 located between a bowling green to the west and No.30 Brushfield Grove to the east. The site occupies a concealed position between the adjoining property and the bowling green and appears to be an anomaly in the Unitary Development Plan boundary in light of the consistent rear boundary of the adjoining domestic curtilages, the site’s isolated position and limited usability in relation to the wider open space area.

The site is in an allocated Housing Area as defined in the adopted Sheffield Unitary Development Plan (UDP), but is considered to be informal open space in line with the definition set out in Policy CS 47 ‘Safeguarding Open Space’ as set out in the adopted Core Strategy.

RELEVANT PLANNING HISTORY

06/02193/FUL - Two-storey side extension to dwellinghouse – Granted Conditionally

SUMMARY OF REPRESENTATIONS

No letters of representation have been received.

PLANNING ASSESSMENT

The proposed garden area is enclosed by a 1.8 metre high timber fence, which negates any potential overlooking of adjoining properties and secures the site. The proposal is therefore not considered to conflict with policy H14 (Conditions on Development in Housing Areas) which seeks to protect the amenities and living conditions of adjoining properties. Therefore the remaining issue is whether the principle of the loss of this small area of informal open space is considered to conflict with the provisions of Policy CS 47 ‘Safeguarding Open Space’ of the Core Strategy and policy LR5 ‘Development in Local Open Spaces’ of the adopted UDP.

Policy CS47 seeks to protect open space where it would result in a quantitative shortage of open space. An open space assessment has been carried out which has identified that overall provision of open space in the locality stands at 4.22 hectares per 1000 population which exceeds the minimum guideline of 4 hectares per 1000 population but falls short of the recommended provision of 7.02 hectares per 1000 population. Informal open space provision is split into five categories for the purposes of the open space assessment. These categories include parks and gardens, natural and semi natural green space, amenity green space, allotments, cemeteries and church yards.

The application site comprises of approximately 100 sq m of land and so its potential loss would have a very limited impact on the level of informal and overall open provision in the locality. The site adjoins a park which is allocated open space as defined in the UDP and is relatively well maintained space comprising of a

305 bowling green, tennis courts, hard play areas, maintained grass land and a pond. Given the proximity of this park the loss of this small parcel of land is not considered to detrimentally affect resident’s access to open space. In addition the open space assessment has actually identified that the provision of parks and gardens will continue to exceed the recommended standard of 1.55 ha per 1000 population, if the development is permitted.

Policy LR5 identifies that informal open space should be protected where it provides a well used and high quality facility. The parcel of land was previously unkempt and from overhead photographic evidence was not being maintained to the same standard as the adjoining park, perhaps due to difficulties in accessing such a small piece of land, its perceived lack of ownership, concealed position and lack of integration with the larger park.

With regard to other unmet informal open space needs, due to the site’s size, location and restricted access it would not be suitable as a formal allotment site, burial ground or church yard. The site is not considered to have any overriding intrinsic amenity value, or contribute to the appearance of the wider park, which would warrant the site’s retention. Environmental planning have also confirmed that the site is of no significant landscape value that would warrant its retention. The proposal is therefore considered to rectify an anomalous UDP land use boundary, removing an area of unkempt land. The proposal is therefore not considered to conflict with the provisions of policy LR5 of the UDP and CS47 of the Core Strategy.

RESPONSE TO REPRESENTATIONS

No letters of representation have been received.

SUMMARY AND RECOMMENDATION

This application is retrospective and seeks planning permission to change the use of a small area of informal open space to domestic garden area. The site is small approximately 100 sq m and whilst an open space assessment has identified specific informal open space deficiencies in the locality, the loss of this small site would have limited impact on overall open space provision. The provision of parks would continue to exceed recommended standards and overall open space provision would exceed the minimum guidelines. With regard to other unmet informal open space needs the site is considered unsuitable as allotments, burial grounds and church yards owing to the site’s size, location, limited accessibility and proximity to residential properties. The site is of very limited intrinsic amenity and landscape value and owing to its concealed position its loss is not considered to detract from the visual amenities of the area. The proposed change of use is therefore not considered to conflict with UDP policy LR5 and Core Strategy policy CS47 and will in fact correct an anomalous UDP proposal map boundary. In light of the above it is recommended that planning permission is granted.

306

Case Number 06/01076/CAC

Application Type Conservation Area Consent Application

Proposal Partial demolition of tower & demolition of single-storey annexe

Location Holiday Inn (Posthouse Hotel) Manchester Road Sheffield S10 5DX

Date Received 29/03/2006

Team SOUTH

Applicant/Agent Axis Architecture

Recommendation Grant Conditionally

Subject to:

1 The development shall be begun not later than the expiration of three years from the date of this decision.

In order to comply with the requirements of the Planning (Listed Buildings and Conservation Areas) Regulations 1990.

2 The buildings shall not be demolished before a binding legal contract for the carrying out of works of redevelopment of the site is made, and evidence of such a contract has been supplied to the Local Planning Authority and planning permission has been granted for such redevelopment.

To ensure that premature demolition does not take place and result in an undeveloped site, some time before rebuilding, which would be detrimental to the visual character of the locality.

3 The development must be carried out in it entirety, and in complete accordance with the following approved documents, unless otherwise authorised in writing by the Local Planning Authority:-

APPLICATION DRAWINGS

24072/000 LOCATION SITE LOCATION PLAN 24072/001 SITE PLAN - EXISTING 24072/P/14 B TOWER FLOOR PLANS LEVELS T0-T4 24072/P/17 C TOWER FLOOR PLANS LEVELS T5-T12 24072/P/110 F NEW BLOCK PLANS LEVEL 0

307 24072/P/111 F NEW BLOCK PLANS LEVEL 1 24072/P/112 F NEW BLOCK PLANS LEVEL 2 24072/P/113 F NEW BLOCK PLANS LEVEL 3 24072/P/114 F NEW BLOCK PLANS LEVEL 4 24072/P/115 E NEW BLOCK PLANS LEVEL 5 24072/P/117 F NEW BLOCK PLANS LEVEL -1 24072/P/118 F NEW BLOCK PLANS LEVEL -2 24072-P120 C ELEVATIONS - MAIN BLOCK 24072-P/121 B PROPOSED SITE PLAN 24072-P123 D ELEVATIONS - MAIN BLOCK 24072-P124 D ELEVATIONS - MAIN BLOCK 24072-P126 D ELEVATIONS - MAIN BLOCK 24072/127 D ELEVATION 5 (TOWER) 24072/128 D ELEVATION 6 (TOWER) 24072/P/140 A SITE TOP - PROPOSED SITE PLAN & APARTMENT PLANS 24072/P/141 A SITE TOP TOWNHOUSES - GA PLANS 24072/P143 TOWNHOUSE ELEVATIONS - TYPE A 24072/P144 A TOWNHOUSE ELEVATIONS - TYPE B 24072/P145 TOWNHOUSE ELEVATIONS - TYPE C 24072/P146 CORNER APARTMENT ELEVATIONS - 1 OF 2 24072/P147 CORNER APARTMENT ELEVATIONS - 2 OF 2

SUPPLEMENTARY MATERIAL:

24072/150 ANALYSIS PLANS - FOOTPRINT/SITE LANDSCAPING COMPARISON 24072/151 ANALYSIS PLANS - RESIDENTIAL SITE ACCESS 24072/152 ANALYSIS PLANS - EXTENT OF TREES 24072_160A (3D SET) 12NO. 3D VISUALS (NO DRAWING NO. ON IMAGES) 24072/P161 FOOTPRINT COMPARISON SITE PLAN 3D SECTIONAL DETAILS 'MAIN BLOCK (NEW BUILD)' 3D SECTIONAL DETAILS 'TOWER CONVERSION' 3D SECTIONAL DETAILS 'TYPICAL TOWNHOUSE (TYPE B - 3 BEDROOM)'

In order to define the permission.

Attention is drawn to the following justifications:

1. The decision to grant conservation area consent and impose any conditions has been taken having regard to the policies and proposals in the Sheffield Unitary Development Plan and adopted Core Strategy set out below:

BE16 - Development in Conservation Areas

308 and to all relevant material considerations, including Supplementary Planning Guidance.

Site Location

For Report please see 06/00836/FUL.

309

Case Number 06/00836/FUL

Application Type A Full Planning Application

Proposal Partial demolition, retention, extension & conversion of tower, and erection of 2 x 4 storey blocks to create 122 no. 1, 2 & 3 bedroom units and 11 x 3 storey townhouses in grounds, with associated basement car parking

Location Holiday Inn (Posthouse Hotel) Manchester Road Sheffield S10 5DX

Date Received 06/03/2006

Team SOUTH

Applicant/Agent Axis Architecture

Recommendation Grant Conditionally subject to a Legal Agreement

Subject to:

1 The development shall be begun not later than the expiration of three years from the date of this decision.

In order to comply with the requirements of the Town and Country Planning Act.

2 Details of the proposed phasing of the development shall be submitted to and approved in writing before the development commences. Thereafter, the works shall be carried out in accordance with the approved details.

In order to ensure an appropriate quality of development.

3 Samples of all proposed external materials and finishes, including windows, shall be submitted to and approved in writing by the Local Planning Authority before the development is commenced. Thereafter, the development shall be carried out in accordance with the approved details.

In order to ensure an appropriate quality of development.

4 Large scale details, including materials and finishes, at a minimum of (1:20) of the items listed below shall be approved in writing by the Local planning Authority before the commencement of development:

(i) Windows

310 (ii) Window reveals (iii) Doors (iv) Garage Doors (v) Eaves and verges (vi) External wall construction (vii) Brickwork/Cladding detailing (viii) Balconies/Sun boxes (ix) Entrance canopies (x) Coloured glazing to tower

Thereafter, the works shall be carried out in accordance with the approved details

In order to ensure an appropriate quality of development.

5 A sample panel of the proposed masonry shall be erected on the site and shall illustrate the colour, texture, bedding and bonding of masonry and mortar finish to be used. The sample panel shall be approved in writing by the Local Planning Authority prior to the commencement of the building works and shall be retained for verification purposes until the completion of such works.

In order to ensure an appropriate quality of development.

6 Prior to any works commencing on site, details of all external lighting shall be submitted and approved in writing by the Local Planning Authority. The approved lighting shall be implemented as per the approved details and be retained.

In the interests of the amenities of the locality and occupiers of adjoining property.

7 Before work on site is commenced, details of a suitable means of site enclosure shall be submitted to and approved in writing by the Local Planning Authority and the dwellings shall not be used unless such means of site enclosure has been provided in accordance with the approved details and phasing details as required by Condition 2, thereafter such means of site enclosure shall be retained.

In the interests of the amenities of the locality.

8 Notwithstanding the provisions of the Town and Country Planning (General Permitted Development) Order 1995, Part 1 (Classes A to E inclusive), Part 2 (Class A), or any Order revoking or re-enacting that Order, no extensions, porches, garages, ancillary curtilage buildings, swimming pools, enclosures, fences, walls or alterations which materially affect the external appearance of the dwellings shall be constructed without prior planning permission being obtained from the Local Planning Authority.

311 In the interests of the amenities of occupiers of adjoining property, bearing in mind the restricted size of the curtilage.

9 Notwithstanding the provisions of the Town and Country Planning (General Permitted Development) Order 1995 (and any order revoking and re- enacting the order) no windows or other openings shall be formed in all elevations of the building hereby permitted without the prior written consent of the Local Planning Authority.

In the interests of the amenities of occupiers of adjoining property, bearing in mind the restricted size of the curtilage.

10 The apartments and townhouses shall not be used unless the car parking accommodation for that particular phase as approved under condition 2, has been provided in accordance with those plans and thereafter such car parking accommodation shall be retained for the sole purpose intended.

In the interests of traffic safety and the amenities of the locality.

11 The gradient of shared pedestrian/vehicular access shall not exceed 1:12 unless otherwise agreed in writing by the Local Planning Authority.

In the interests of the safety of road users.

12 Before the development is commenced, details of the means of ingress and egress and routeing for vehicles engaged in the construction of the development shall have been submitted to and approved in writing by the Local Planning Authority. Such details shall include the arrangements for restricting the vehicles to the approved ingress and egress points. Ingress and egress for such vehicles shall be obtained only at the approved points.

In the interests of traffic safety and the amenities of the locality.

13 At all times that demolition and construction works are being carried out equipment shall be provided to the satisfaction of the Local Planning Authority for the effective cleaning of the wheels and bodies of vehicles leaving the site so as to prevent the depositing of mud and waste on the highway but before the development is commenced full details of such equipment shall have been submitted to and approved by the Local Planning Authority. When the above-mentioned equipment has been provided thereafter such equipment shall be used for the sole purpose intended in all instances and be properly maintained.

In the interests of traffic safety and the amenities of the locality.

14 The apartments / townhouses shall not be used unless turning space for vehicles has been provided within the site in accordance with the approved plans and thereafter such turning space shall be retained.

In the interests of traffic safety and the amenities of the locality.

312

15 Before the development is commenced, full details of suitable and sufficient cycle parking accommodation within the site shall have been submitted to and approved in writing by the Local Planning Authority and the apartments / townhouses shall not be used unless such cycle parking has been provided in accordance with the approved plans subject to the phasing details as required by Condition 2, and, thereafter, such cycle parking accommodation shall be retained.

In the interests of traffic safety and the amenities of the locality.

On occupation, the approved Travel Plan(s) shall thereafter be implemented, subject to any variations approved in writing by the Local Planning Authority.

In the interests of delivering sustainable forms of transport, in accordance with the Transport Policies in the adopted Unitary Development Plan for Sheffield and PPG13.

17 Before the development is commenced full details of the proposed refuse and recycling storage facilities to be provided to serve the development shall have been submitted to and approved in writing by the Local Planning Authority. The details shall include a method statement indicating how the facilities will be managed and serviced and how occupiers of the proposed development will be encouraged to maximise the use of the proposed recycling facilities to reduce general waste arising. Prior to the occupation of the proposed development the approved facilities shall have been implemented in conjunction with the approved method statement and shall thereafter be retained.

313 In order to ensure that proper provision for refuse is made and to encourage the maximum use of recycling in the interests of protecting the environment.

18 Before any work on site is commenced, a report shall have been submitted to and approved in writing by the Local Planning Authority identifying how the following will be provided:

19 The dwellings hereby approved shall be constructed to achieve a minimum standard of Code Level for Sustainable Homes Level 3 and before any dwelling is occupied (or within an alternative timescale to be agreed) the relevant certification, demonstrating that Code Level 3 has been achieved, shall be submitted to and approved in writing by the Local Planning Authority.

In the interests of mitigating the effects of climate change, in accordance with Sheffield Development Framework Core Strategy Policy CS64.

20 Before any work on site is commenced, a comprehensive and detailed hard and soft landscape scheme for the site shall have been submitted to and approved by the Local Planning Authority. The landscape works shall be implemented prior to the development being brought into use or within an alternative timescale to be first agreed in writing with the Local Planning Authority. Thereafter the landscaped areas shall be retained and shall not be used for any other purpose without the prior consent of the Local Planning Authority. They shall be cultivated and maintained for a period of 5 years from the date of implementation and any plant failures within that five year period shall be replaced.

314 In the interests of the amenities of the locality.

21 Before any work on site is commenced, measures to protect the existing trees, shrubs and hedges to be retained shall be provided, in accordance with details which shall be submitted to and approved by the Local Planning Authority. These measures shall include a construction methodology statement and plan showing accurate root protection areas and the location and details of protective fencing and signs. Protection of trees shall be in accordance with BS 5837, 2005 (its replacement) and the protected areas shall not be disturbed, compacted or used for any type of storage or fire, nor shall the retained trees, shrubs or hedge be damaged in any way. The Local Planning Authority shall be notified in writing when the protection measures are in place and the protection shall not be removed until the completion of the development unless otherwise agreed in writing.

In the interests of the amenities of the locality.

22 Unless otherwise indicated on the approved plans no tree, shrub or hedge shall be removed or pruned without the prior written approval of the Local Planning Authority.

In the interests of the amenities of the locality.

23 Unless otherwise agreed in writing the proposed green roof(s) (vegetated roof system) shall be provided on the roof(s) and walls in the locations shown on the approved plans prior to the use of the buildings commencing. Full details of the green roof and wall construction and specification, together with a maintenance schedule shall be submitted to and approved by the Local Planning Authority prior to works commencing on site and unless otherwise agreed in writing shall include for the roof a substrate based growing medium of 80mm minimum depth incorporating 15-25% compost or other organic material. Herbaceous plants shall be employed and the plants shall be maintained for a period of 5 years from the date of implementation and any failures within that period shall be replaced.

In the interests of sustainable development.

24 Any intrusive investigation recommended in the Phase I Preliminary Risk Assessment Report shall be carried out and be the subject of a Phase II Intrusive Site Investigation Report which shall have been submitted to and approved in writing by the Local Planning Authority prior to the development being commenced. The Report shall be prepared in accordance with Contaminated Land Report CLR 11 (Environment Agency 2004).

In order to ensure that any contamination of the land is properly dealt with.

25 Any remediation works recommended in the Phase II Intrusive Site Investigation Report shall be the subject of a Remediation Strategy Report which shall have been submitted to and approved in writing by the Local Planning Authority prior to the development being commenced The Report

315 shall be prepared in accordance with Contaminated Land Report CLR11 (Environment Agency 2004) and Local Planning Authority policies relating to validation of capping measures and validation of gas protection measures.

In order to ensure that any contamination of the land is properly dealt with.

26 Before development is commenced, full details of all hard surfaced areas within the site shall have been submitted to and approved by the Local Planning Authority. Such details shall consist of porous materials, or shall direct surface water run off from the hard surface to a permeable or porous area or surface within the curtilage of the dwellinghouse. Thereafter the hard surfacing shall be implemented in accordance with approved details.

In order to control surface water run off from the site and mitigate against the risk of flooding.

27 The site shall be developed with separate systems of drainage for foul and surface water on and off site.

In the interest of satisfactory and sustainable drainage.

28 No development shall take place until details of the proposed means of disposal of surface water drainage, including details of any balancing works and off site works have been submitted to and approved in writing by the Local Planning Authority.

To ensure that the development can be properly drained.

29 No piped discharge of surface water from the application site shall take place until surface water drainage works including off-site works have been completed in accordance with details to be submitted to and approved in writing by the Local Planning Authority.

To ensure satisfactory drainage arrangements.

30 Prior to being discharged into any watercourse, surface water sewer or soakaway system all surface water drainage from parking areas and hardstandings shall be passed through a petrol/oil interceptor designed and constructed in accordance with details to be approved in writing by the Local Planning Authority.

To prevent pollution of the Water Environment.

31 Before work on site is commenced, full details of suitable inclusive access and facilities for disabled people, both to and into the building(s) and within the curtilage of the site, shall have been submitted to and approved in writing by the Local Planning Authority and the dwellings shall not be used unless such inclusive access and facilities have been provided in accordance with the approved plans. Thereafter such inclusive access and

316 facilities shall be retained. (Reference should also be made to the Code of Practice BS8300).

To ensure ease of access and facilities for disabled persons at all times.

32 Before development is commenced, full details (at a scale of 1:50) of mobility housing provision (which shall equate to a minimum of 25% of the residential units) within the development shall have been submitted to and approved by the Local Planning Authority. Such details shall thereafter be implemented prior to occupation of the units, and shall thereafter be retained.

To ensure ease of access and facilities for disabled persons at all times.

33 The development must be carried out in it entirety, and in complete accordance with the following approved documents, unless otherwise authorised in writing by the Local Planning Authority:

Application Drawings

24072/000 LOCATION SITE LOCATION PLAN 24072/001 SITE PLAN - EXISTING 24072/P/14 B TOWER FLOOR PLANS LEVELS T0-T4 24072/P/17 C TOWER FLOOR PLANS LEVELS T5-T12 24072/P/110 F NEW BLOCK PLANS LEVEL 0 24072/P/111 F NEW BLOCK PLANS LEVEL 1 24072/P/112 F NEW BLOCK PLANS LEVEL 2 24072/P/113 F NEW BLOCK PLANS LEVEL 3 24072/P/114 F NEW BLOCK PLANS LEVEL 4 24072/P/115 E NEW BLOCK PLANS LEVEL 5 24072/P/117 F NEW BLOCK PLANS LEVEL -1 24072/P/118 F NEW BLOCK PLANS LEVEL -2 24072-P120 C ELEVATIONS - MAIN BLOCK 24072-P/121 B PROPOSED SITE PLAN 24072-P123 D ELEVATIONS - MAIN BLOCK 24072-P124 D ELEVATIONS - MAIN BLOCK 24072-P126 D ELEVATIONS - MAIN BLOCK 24072/127 D ELEVATION 5 (TOWER) 24072/128 D ELEVATION 6 (TOWER) 24072/P/140 A SITE TOP - PROPOSED SITE PLAN & APARTMENT PLANS 24072/P/141 A SITE TOP TOWNHOUSES - GA PLANS 24072/P143 TOWNHOUSE ELEVATIONS - TYPE A 24072/P144 A TOWNHOUSE ELEVATIONS - TYPE B 24072/P145 TOWNHOUSE ELEVATIONS - TYPE C 24072/P146 CORNER APARTMENT ELEVATIONS - 1 OF 2 24072/P147 CORNER APARTMENT ELEVATIONS - 2 OF 2

SUPPLEMENTARY MATERIAL:

317 24072/150 ANALYSIS PLANS - FOOTPRINT/SITE LANDSCAPING COMPARISON 24072/151 ANALYSIS PLANS - RESIDENTIAL SITE ACCESS 24072/152 ANALYSIS PLANS - EXTENT OF TREES 24072_160A (3D SET) 12NO. 3D VISUALS (NO DRAWING NO. ON IMAGES) 24072/P161 FOOTPRINT COMPARISON SITE PLAN

3D SECTIONAL DETAILS 'MAIN BLOCK (NEW BUILD)' 3D SECTIONAL DETAILS 'TOWER CONVERSION' 3D SECTIONAL DETAILS 'TYPICAL TOWNHOUSE (TYPE B - 3 BEDROOM)'

In order to define the permission.

Attention is drawn to the following justifications:

PPS3 H7 - Mobility Housing H10 - Development in Housing Areas H14 - Conditions on Development in Housing Areas H15 - Design of New Housing Developments H16 - Open Space in New Housing Developments BE5 - Building Design and Siting BE9 - Design for Vehicles BE15 - Areas and Buildings of Special Architectural and Historic Interest BE16 - Development in Conservation Areas BE17 - Design and Materials in Areas of Special Character or Historic Interest CS23 - Locations for New Housing CS26 - Efficient Use of Housing Land and Accessibility CS31 - Housing in the South West Area CS40 - Affordable Housing CS41 - Creating Mixed Communities CS64 - Climate Change, Resources and Sustainable Design of Developments CS65 - Renewable Energy and Carbon Reduction CS66 - Air Quality

and to all relevant material considerations, including Supplementary Planning Guidance.

This informative is intended as a summary of the reasons for grant of planning permission. For further detail on the decision please see the

318 application report by contacting the Planning Records section on 2734220 or by visiting Sheffield City Council’s website at www.sheffield.gov.uk/your- city-council/council-meetings/planning-boards

Attention is drawn to the following directives:

4. The applicant is advised that noise and vibration from demolition and construction sites can be controlled by Sheffield City Council under Section 60 of the Control of Pollution Act 1974. As a general rule, where residential occupiers are likely to be affected, it is expected that noisy works of demolition and construction will be carried out during normal working hours, i.e. 0800 to 1800 hours Monday to Friday, and 0800 to 1300 hours on Saturdays with no working on Sundays or Public Holidays. Further advice, including a copy of the Council's Code of Practice for Minimising Nuisance from Construction and Demolition Sites is available from the Environmental Protection Service, 2-10 Carbrook Hall Road, Sheffield, S9 2DB: Tel - 0114 2734651.

319 Site Location

LOCATION AND PROPOSAL

The site is of the former Holiday Inn (Posthouse Hotel), located within a residential suburb to the south west of the City. The site is characterised by the steep topography of its location, rising from Fulwood Road up to Manchester Road. The existing tower on the site is a landmark building within Sheffield and views can be seen from numerous vantage points both near and far.

The surrounding area is characterised by large stone built properties from the late Victorian/Edwardian era standing in substantial grounds. The exceptions are the 1960’s flat roofed apartments (Fulwood Mansions), located immediately to the east of the site, and the more recent Fairfield Heights development located immediately to the west of the site.

Members will recall that this application was deferred from consideration at the previous Board meeting (12th October 2009) to allow for a site visit, which took place on the 28th October 2009.

320

The Sheffield Unitary Development Plan (adopted 1998) shows the site as within a Housing Area. The site falls within both the Endcliffe Conservation Area (to the south of the site) and Broomhill Conservation Area (to the north).

The site currently accommodates a vacant hotel with associated gymnasium/health club, and car parking, set in landscaped grounds. There are two entrances to the site, the primary entrance from Fulwood Road and secondary entrance from Manchester Road. To the northern part of the site is an area of surface car parking and pool complex. The site at this point stands elevated above the south part of the site, which contains the existing tower and previous extensions to the east. A vehicle access runs through the site along the eastern boundary of the site close to Chesterwood Road .The site and hotel have not been used for over 3 years and is currently vacant.

The site is bound along Fulwood Road by a mature band of trees, which nearly fully screen the lower floors of the existing buildings from the highway. A stone boundary wall runs along the back end of the footpath, which forms a significant retaining wall, with the land sloping steeply towards the north.

The original application as submitted was for the retention, and extension of the tower by adding a further 2 storeys to the height, and extending the building by adding a metal frame (projecting 1.8 metre) with new cladding system to 3 sides.

The existing annexe buildings/health club was proposed to be demolished, and replaced with a large main block close to the eastern boundary of the site steeping up to 6 storeys, and the creation of 16 townhouses to the north of the site. Underground car-parking accommodation was proposed on 4 levels.

Following extensive negotiations with officers, a revised scheme has been submitted and, as amended the application now comprises of an additional set back floor to the tower, a metal framework enlarging the tower by 1.6 metres to the east and west elevations, and by 2.2 metres on the south elevation. This is to have a cladding system fitted to all four sides of the tower creating 83, one and two bed apartments.

The main block has been reduced in height to a maximum of 4 storeys in line with the neighbouring buildings along Chesterwood Road, and has been pulled towards the centre of the site, away from Chesterwood Road, Fulwood Road and Manchester Road. Green roofs and greenwalls have been added to the main block.

The top of the site has been re-modelled, with the town houses taking the form of a crescent, with private gardens to the rear for each unit.

The two existing access points are to remain, with the top access leading onto Manchester Road serving the townhouses and new Main Block, and the access leading onto Fulwood Road serving the existing tower.

321 The application site is part of both the Endcliffe and Broomhill Conservation Areas and a high quality of design is required.

This report considers both the full planning permission for the partial demolition, retention, extension & conversion of the tower, and erection of 2 x 4 storey blocks to create 121 no. 1, 2 & 3 bedroom residential units and 11 x 3 storey townhouses in grounds, with associated basement car parking, and also the Conservation Area Consent for demolition of the existing health club.

RELEVANT PLANNING HISTORY

- An application for the Partial demolition of the tower & demolition of the single-storey annexe is pending consideration and is considered within this report. Application No. 06/01076/CAC - Planning permission was granted for an extension to gymnasium. Application No. 96/00885/FUL - Planning permission was granted for an extension to gymnasium. Application No. 89/00584/FUL - Planning permission was granted for a health centre including swimming pool, gymnasium and Jacuzzi. Application No. 86/01772/FUL

SUMMARY OF REPRESENTATIONS

Original Submission - 49 Representations received;

- The proposal for 163 residential units is far too dense and is over development, with the building being too close. The size of the development is out of proportion to the neighbourhood and is neither architecturally nor aesthetically suitable for a Victorian suburb. - The proposal is too high and totally oppressive to existing residential buildings - The need is for family homes not 1 and 2 bed apartments which Sheffield has an excess of. - The buildings will need to be properly managed to avoid deterioration - The under croft parking is welcomed but is it sufficient? Where is the visitor parking? - The size of the development will exacerbate the existing pressure on the roads, sewers and parking in this area. - The degree of traffic will causing significant detriment to the amenities and quality of life of the neighbouring properties. - The proposal is in close proximity to neighbouring residential properties, with main habitable windows as close as 13 metres away from the proposed townhouses - The 4-storey townhouses will tower over ground floor occupiers of neighbouring residential properties - The proposed style of architecture is highly commercial and out of character with the surrounding Conservation Area, with its unique Victorian and Edwardian architectural Heritage.

322 - The (appalling) tower has been an eyesore for many years, and to develop it is unacceptable. - The development will do nothing to contribute to the community (private estate with not family accommodation). - The developers have made very little effort to engage with the local community. - The proposed building will impact on the privacy to occupiers of Fulwood Park Mansions through adverse overlooking. The green roofs will be used as gardens causing further overlooking. - Is it possible to make the scheme owner occupied? - The gated community would be socially and psychologically isolating. - The proposed new block is located far too close to the Chesterwood Drive blocks of flats leading to overlooking, loss of light and having a towering effect. - Requests for mature trees to be planted along the boundary to protect privacy to neighbours, that construction traffic enter and exit the site from the Manchester Road access, that the Manchester Road and Fulwood Road is not linked. - The need for affordable housing in Broomhill is for families. - The height of the buildings will dwarf the surrounding Edwardian and Victorian houses, blocking previously interrupted view. - There would be an unacceptable level of noise and dust created during construction. - Welcome the plan to re-develop the site, which is appearing derelict, however the plans show an over-development of the site. - The scheme should incorporate energy saving measures such as solar panels or mini wind turbines. - The town houses are in close proximity to properties along Manchester Road causing adverse overlooking, and loss of light. - There has been a lack of consultation, excessively short review time, and restriction of comment. - A model and full plans should be made available locally for study by local residents.

Councillor A Whitehouse wrote, stating:-

- Over density for permanent residence – hotel density not appropriate for permanent housing. - Too many 2 bedroom non-family flats with insufficient private space (Particularly the flats within the tower). - Disabled access is questionable in multi-storey apartments without alternative means of escape. - The use of roof gardens would result in overlooking and dis-amenity to residents at Chesterwood Drive and Fairfield Heights. - Overshadowing by and proximity to the main tower block of sections 4, 3 and parts of 1 nearest to 3 will cause dis-amenity to future occupiers. - The change in use from a hotel to a housing should be refused. - The site is highly visible across the valley and the proposal will inevitably result in loss of trees - Drawings fail to show the steep topography of the area.

323 - Access from Manchester Road would need to be widened to accommodate increased use. - Concerns regards asbestos in the current building which will be disturbed during construction. - Problems with drainage/sewerage in surrounding area. - The undermining of ground by the construction of an underground car park.

First Revised Submission – 18 Representations received;

- The density of the development will be too high in the Conservation Area. - The volume of cars exiting from the development is too high. - The new main block of flats adjacent to and extending the full length of the western boundary with Fulwood Park Mansions will infringe on privacy and light to occupiers of Fulwood Park Mansions. - The proposed new development is insensitive to the residents on both sites of the Hallam Tower estate, to wildlife and the general environment in the area. - The amendments seem relatively minor and the site remains over- developed. - The amended plans show huge areas of painted zinc cladding panels which is out of keeping with the conservation area, along with appearing cheap and being difficult to maintain. - The incessant noise of drilling and dust levels through excavation of the basement parking would be unacceptable to existing residents. - The existing schools and doctors would be affected by the increase in residents. - The amended main block is much larger than the present structure, they are too big and high, are sited too close to Fulwood Road and Fulwood Park Mansions, and the proposed size and position is out of proportion to the surroundings. - Whilst the number of units has been reduced, and there being no vehicular route through the site, it still will impact negatively on the existing traffic problems in the area. - Although the townhouses have been reduced in height they will still overlook neighbouring properties. - There appears to be more town houses concentrated on the side of the site than before and due to their height would further impact on overlooking to occupiers of Fairfield Heights. - There is no through access, which may cause problems if there is a major emergency in the underground car park. - The glass cladding to the tower is only three sides with the northern side left completely exposed revealing the ugly existing fascia. - There is still no provision for affordable housing. For a development of this scale this is scandalous. - The gated site would bar access to local residents, and cause problems for visitors and deliveries etc.

Councillor Paul Scriven wrote, stating:-

324 - The site is in the Broomhill Conservation Area and both the design, height, and overall appearance are not in keeping with the Conservation Area. - The density of the apartments is such that residents will have only a small about of space, and it is questionable as whether this could be considered decent living conditions. - The height and number of units would mean a loss of amenity for local residents living nearby greater than its usage as a hotel. - Traffic numbers will increase significantly leading to increase in the danger to both road users and pedestrians, along with straining on the existing road network. - The development would add to a clear imbalance as the side does not provide for predominantly family residences and therefore does not help to create a sustainable community within Broomhill Area.

Second Revised Submission – 17 Representations received;

- The amended plans show no changes that will alleviate any of the detrimental effects on occupiers of Fulwood Park Mansions. - Endcliffe Conservation area should be protected, and this high volume development is not in keeping with a Conservation Area, nor is it sympathetic to this green suburb - It is in conflict with UDP Policy BE16 - Erosion of spaces in Conservation Areas must cease - Traffic will increase considerably (see massive overdevelopment at University) - Loss of amenity to neighbouring properties - The site visit should include viewing the proposal from several locations within Fulwood Park Mansions.

Councillor Paul Scriven wrote, stating:-

- Same as previous comment (above) but added concerns about overlooking, and dominance of the proposed apartments on existing neighbouring properties. - The density is clearly significantly above PPG3 recommendations and therefore is an over development. - The building is already significant and prominent adding an additional floor will increase its dominance. - The proposed final finishing and cladding of the tower will have a sever and detrimental effect on the area, owing to its modern effect. - A condition should be imposed to allow public access through the site and not to be a gated community.

Councillor Shaffaq Mohammed has raised objections to the development on the following grounds:

- The current building is very dominant in relation to nearby properties, and adding further floors to this will only make the issue of overlooking into adjacent dwellings much worse. The proposal is an over development of the site and the density is clearly over and above current recommended

325 levels as stated in PPG3. Concerned about the additional traffic movements that will be generated as a result of the development and the capacity of both Fulwood and Manchester roads to cope with these additional levels of traffic.

Nick Clegg MP (add support to constituents objections):

- Concern about the height and length of the proposal and the affect this will have on neighbouring properties privacy and light, and to the visual amenity of the area. - There will be extra traffic to the area will add to the congestion on Fulwood Road and Manchester Road.

On 27 February 2007 the proposal was presented to Sheffield Conservation Advisory Group, who made the following comments:

The group raised no objections to the proposed conversion of the tower block, but due to the size and height of the tower, it considered that the new four/five storey buildings represented an over development of the site. The Group expressed concern at the lack of details regarding the cladding materials for the tower and plans for any children’s play facilities when it was likely that the 2/3 bed roomed town houses would attract families. The Group also considered that there was insufficient landscaping to act as a buffer on what was a very prominent site.

Applicant Consultation

The applicant has submitted a Statement of Public Consultation with the revised application. This exercise has taken place in the form of a public exhibition held at the site on the afternoon and evening of the 9th November 2006, a written consultation exercise sent to all parties originally notified of the proposal explaining the changes to the project, and the attendance of the applicants representatives at two meetings of the Broomhill Forum. The changes reflect some of the comments made by the public. These include enhanced landscaping to the boundary, the provision of cladding to the north facing elevation, the enhanced screening to the east side of the site to ensure reduced perception of vehicular activity, the retention of the trees in the centre of the site. The developer has stated that they have responded wherever possible to the comments received, however it has not always been possible to meet every individuals needs, and the the community have been closely involved in the project and positively contributed to the scheme submitted to the LPA for consideration.

PLANNING ASSESSMENT

Land Use Policy

The application site is located within a Housing Policy Area under the provisions of the adopted Sheffield Unitary Development Plan, with parts of the site located within the Broomhill and Endcliffe Conservation Areas. Therefore the relevant policies are as follows;

326 Planning Policy Statement 3 ‘Housing’ sets out the Government’s policies and provides advice on matters concerning housing and housing development. It emphasises the need to enable greater choice of housing, along with the re-use of previously developed sites at efficient densities.

The site is located within a Housing Area. Policy H10 states that housing is the preferred use in these areas, therefore in principle the residential aspect of the development is considered to be acceptable subject to the development meeting the criteria found in Policy H14.

The relevant Adopted Unitary Development Plan policies are;

BE5 ‘Building Design and Siting’ BE6 ‘Landscape Design’ BE9 ‘Design for Vehicles’ BE15 ‘Areas and Buildings of Special Architectural or Historic Interest’ BE16 ‘Development in Conservation Areas’ BE17 ‘Design and Materials in Areas of Special Architectural or Historic Interest’ H7 ‘Mobility Housing’ H10 ‘Development in Housing Areas’ H14 ‘Conditions on Development in Housing Areas’ H15 ‘Design of New Housing Developments’ H16 ‘Open Space in New Housing Areas’

The Sheffield Development Framework – Core Strategy includes the following policies which are of relevance;

CS23 ‘Location for New Housing’ CS26 ‘Efficient Use of Housing Land and Accessibility’ CS31 ‘Housing in the South-West Area’ CS40 ‘Affordable Housing’ CS41 ‘ Mixed Communities’ CS64 ‘Climate Change, Resources and Sustainable Design of Developments’ CS65 ‘Renewable Energy and Carbon Reduction’ CS66 ‘Air Quality’

Policy Issues

Sustainability

In order to satisfy Policies CS64 and CS65 of the Sheffield Development Framework conditions will be required to be added to any consent granted requiring details to be submitted.

It is anticipated that the new dwellings are designed and specified to achieve a Code for Sustainable Homes Level rating of 3. In addition to this the proposal includes rain water harvesting, green roofs to the Annex A, and a green wall along the eastern elevation of Annex A which will help to encourage local ecology, reduce thermal loading to the building and contribute to improving air quality. These factors will help to meet the requirements of Policy CS64.

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Policy CS65 sets a minimum requirement of 10% of the predicted energy of significant developments from decentralised, renewable or low carbon energy, unless it can be shown that this would not be viable.

Less information is provided as to how this will be achieved, however, the preliminary options for Code for Sustainable Homes Code Level 3 do cover the reduction in emissions, and the applicant accepts the requirements of this policy, and is agreeable to this matter being resolved by imposition of a condition.

It is considered overall, that the development subject to condition is capable of satisfying conditions CS64 and CS65.

Housing Policy

Policy H10 states that housing is the preferred use in these areas, therefore in principle the residential aspect of the development is considered to be acceptable. This is subject to the provisions of H14 which states that development is acceptable where, amongst other things, a. new buildings and extensions are designed and would be in scale and character with neighbouring buildings b. new development would be well laid out with all now roads serving more than five dwellings being of an adoptable standard c. the site would not be over-developed or deprive residents of light, privacy or security, or cause serious loss of existing garden space which would harm the character of the neighbourhood d. it would provide safe access to the highway network and appropriate off-street parking and not endanger pedestrians e. it would not suffer from unacceptable air pollution, noise or other nuisance or risk to health or safety

For non-housing uses the development should: i. occupy only a small area and not lead to a concentration of non-housing uses which would threaten the residential character of the Housing Area k. not lead to air pollution, noise, smell, excessive traffic levels or other nuisance, or risk to health and safety for people living nearby l. be on a scale consistent with the residential character of the area or meet primarily local needs

The following Core Strategy Policies are also relevant:

CS23 states that new housing development will be concentrated where it would support urban regeneration and make efficient use of land and infrastructure. The main focus (during the period 2008/09 to 2020/21) will be on suitable, sustainably located sites within (a) the main urban area of Sheffield.

CS26 states that housing development will be required to make efficient use of land but the density of new developments should be in keeping with the character

328 of the area and support the development of sustainable, balanced communities. Subject to the character of the area being protected, densities at sites within or near to a District Centre densities of 50 to 80 dwellings per hectare will be acceptable. This development proposes 100 dwellings per hectare and whilst this is above the suggested density, in this case the higher number is owing to the conversion of the existing tower building.

Therefore, the proposal is considered to be acceptable in principle subject to the criteria set out under UDP Policy H14 and Core Strategy Policies CS23 and CS26. These will be assessed separately below.

House Type Mix

One of the aims of Policy CS41: Creating Mixed Communities within the Core Strategy is to ensure that not more than half the residential units in any large development are made up of a single house type.

This development has a mixture of 1 bedroom, 2 bedroom, 3 bedroom apartments and 4 bedroom townhouses. The number of 2 bedroom apartments do make up over 50% of the units with 98 out of the 133 units on site. However this is partly due to the conversion of the existing tower and the restrictions of the site. The proposal does include 11 townhouses within the grounds.

Therefore it is considered that owing to the limitations of converting the existing tower, and that according to the most recent Housing Needs Survey for the area, which shows a high demand for flats, it is considered acceptable.

Highways

The provisions of PPG13, ‘Transport’ sets out the government advice with regard to transport, which has now been amended by the publication of PPS3. The guidance encourages new development to be in sustainable locations and close to facilities and Shopping Centres.

Policy BE9 requires that safe, efficient and environmentally acceptable site layouts for all vehicles (including cycles) and pedestrians should be provided for all new developments.

Policy H14 part (d) requires that a proposal would provide safe access to the highway network and appropriate off-street parking and not endanger pedestrians

It is considered that the estimates of the number of vehicular trips generated by the existing use have been considerably overestimated in the applicant’s traffic assessment. However, in the absence of historical actual survey information, using the Trip Rate Information Computer System (TRICS) database, highways officers have calculated the likely levels of traffic generated by a 138-bedroom hotel with health club using the TRICS database.

The estimates of traffic generated by the proposed residential development is considered acceptable.

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The following table indicates the vehicular traffic flows estimated to be generated by the existing and proposed use of the site:

Hotel + Health Club Residential Arr Dep 2 way Arr Dep 2 way AM 32 26 58 16 52 68 PM 43 30 73 50 21 71 Daily 485 486 971 238 243 481

It can be seen that the proposal would be likely to result in a slight increase in traffic movements generated by the site in the AM peak but that the proposal is likely to result in a reduction in vehicular movements to and from the site over a 24- hour period. This results in the proposed development not having any detrimental impact on the surrounding road network.

The originally submitted plans proposed a one-way system through the site, with traffic entering from Fulwood Road and exiting onto Manchester Road. The amended scheme proposed traffic to enter and exit from Manchester Road and Fulwood Road.

The proposal provides 139 parking spaces for the apartments within the basement, 21 spaces for the visitors, and 36 spaces for the townhouses at the top of the site.

The basement parking is accessed via two entrance ramps, one from Fulwood Road leading to 83 parking bays, and the other from Manchester Road leading to 56 parking bays. A hand full of the parking bays which are abutting a wall and a pillar may prove difficult to manoeuvre in and out of, and therefore a condition can ensure that they are re-configured.

The level of provision is in accordance with the Councils parking guidelines. Furthermore the site is located immediately adjacent to a very frequent public transport route and is also within walking distance of the Broomhill District Centre providing shopping facilities and services.

Cycle parking is provided within the basement parking providing secure storage. This should be conditioned, along with the layout of the cycle provision, owing to the current plans showing difficulties with limited space between the cycle stands and allowing access to the lift/stairs.

Layout and Design

Policy H15 ‘Design of New Housing Developments’ requires the design of a new housing development to: [a] provide easy access to homes and circulation around the site for people with disabilities or with prams; [b] provide adequate private gardens or communal open space; [c] provide uniform walls or fences around rear gardens next to roads, footpaths or other open areas. Good design and the use of good quality materials is expected in all new developments. Policy BE5 indicates that the following principles will apply for

330 physical design: (a) original architecture will be encouraged but new buildings should complement the scale, form and architectural style of surrounding buildings.

The provisions of Policies BE15 Areas and Buildings of special Architectural or Historic Interest and BE17 Design and Materials in Areas of Special Character or Historic Interest of the Sheffield Unitary Development Plan (UDP) echo and substantiate the advice contained within PPG15 and are therefore relevant in the assessment of the planning application.

Planning Policy Guidance 15, states that new buildings do not have to copy their older neighbours in detail. Some of the most interesting streets include a variety of building styles, materials and forms of construction, of many different periods, but together forming a harmonious group. A design that reflects and improves the site and its surroundings will help create a sense of character.

The provision of sub-terrain parking allows more thought to be given to provide attractive and user-friendly spaces. This frees up more space for the amenity areas, and gives a more spacious site, and allows good quality soft landscaping to be incorporated surrounding the footprint of the building. Furthermore it avoids large areas of hard standing surrounding the building, which currently scar the site.

The originally submitted application proposed 163 units in total on the site, comprising of refurbishment of the tower, erection of a new main block up to 6 storeys high, an annex block to the south of the tower and a number of townhouses to be located at the top of the site. Negotiations have led to a number of revisions, which are discussed below.

Annex A

An Annex block was proposed standing at 3/4 storeys high directly to the south of the tower. This building was considered to be harmful to the setting of the tower and far too close to its base and entrance. This view is very important, especially with the group of beech trees in the foreground, and the proposed relocation of the vehicular access to make room for the annex would harm these trees. Negotiations have lead to the annex being removed entirely from the scheme.

The Tower

The tower is a very prominent feature on the city skyline. It is has merit it is its simple form and slender south elevation rises cleanly out of the tree canopy. This is let down by its bulky east and west elevations and stark whiteness of the concrete. Re-cladding the tower in more muted colours would be beneficial.

The cladding will consist of primary glazing panels, enclosing a balcony/terraced area serving each unit. The glazing system will be fixed to the lower level of each floor, with a concertinaed upper window detail. Details and samples of the proposed cladding system are to be controlled through a relevant condition.

The original plans proposed to increase the height of the tower creating two additional floors. This was considered unacceptable, and the plans have been

331 altered to be no higher than the existing plant room, creating a single extra floor which is set back.

The port cochere/entrance cantilever is a strong and important design element of the tower and is clearly visible in long and near views. The original plans proposed to infill this section, however amended plans have been received remodelling the entrance and retaining the form of the entrance.

A new metal frame is to be installed on three elevations of the tower, extending the building by 1.6 metres on the east and west elevations and 2.2 metres on the south elevation. The cladding system/metal structure was originally proposed to just three elevations, and excluded the north elevation, however negotiations have lead to this elevation also being re-clad. This was considered important owing to the north elevation clearly being visible from Broomhill.

Main Block

It is important that with the tower remaining and being re-clad, that it is not hemmed in, in both long and near view, with development nearby. The main block originally extended up to 6 storeys and climbed up the slope. This was considered to be problematic and likely to be visible from long views harming the setting of the tower, along with impacting adversely on the amenities of occupiers of neighbouring properties.

Furthermore the nearness of the main block, and the retaining walls to Fulwood Road, damaged the setting of the tower and adjoining properties. The main block projected forward of the existing tower, and sat at odds with the buildings on Chesterwood Road.

Negotiations have lead to the footprint of the main block having been pulled back 5 metres from the boundary facing Chesterwood Road, it has been pulled back up to 8 metres from the Fulwood Road boundary to be brought in line with the Cedars (Located along Chesterwood Road), and substantially reduced in size facing Manchester Road. In turn this has resulted in an additional block, which joins the tower with the main block in the centre of the site.

The external cladding of the proposed main block consists of smooth sawn ashlar stone, aluminium windows/doors, sawn stone mullion details, timber frame work and split faced natural stone. An area of green wall is proposed facing Chesterwood Road, and green roofs are proposed on the majority of the main block.

The design and massing of the main block is consistent with the neighbouring residential developments along Chesterwood Road stepping up the site.

Townhouses

The townhouses originally were shown at four storeys, and were accessed from a private drive running along the north boundary of the site, which were positioned in three rows, and included no private garden space. These have been amended to

332 show the townhouses sitting in a crescent, with public space and access road moved to the front of the townhouses, along with parking provision, and private gardens to the rear backing onto the high boundary wall to the north. The town houses closest to the two existing villas 111 and 113 Manchester Road have been reduced in height to show two storeys to the rear. The town houses have a mono- pitch roof, revealing an additional storey to the front, giving three storeys.

All of the town houses would have an integral garage providing space for 2 vehicles. Single drives are located in front of the garages. The design of the town houses steps down the site following the topography of the site, and have a taken a modern design approach. Good quality materials are proposed including Natural stone, sawn stone, timber decking, aluminium windows, doors and garage doors. Details and samples of the materials can be controlled through a relevant condition.

Layout

With respect to hard surfaced areas, there is a substantial reduction from the current situation on site which features surface car parking provision. With the introduction of the basement parking, there will be only one main area of hard standing, which is existing, and would provide 21 visitor parking spaces. A small pull in providing 4 visitors spaces is located close to the access with Manchester Road.

There is currently no public footpath provision through what was the original hotel site, and it is proposed that no public footpath is proposed through the redevelopment of the site. There is an existing public footpath link between Fulwood Road and Manchester Road ‘Tapton Walk’ which is located close to the site. Furthermore, there is no clear external path through the site, partially owing to the level difference, and achieving adoptable highway standards.

Conclusion to design

The revised scheme put forward is a result of detailed negotiations to ensure that the built form and external appearance of the proposed development complements and enhances the Conservation Areas. It is considered that the scale, height and proposed materials of the proposed developments reflect that of the surrounding properties within the conservation areas, with a high quality of design and external appearance through out the scheme.

Furthermore, the design and materials of the proposed buildings are of considerably higher quality than the existing buildings to be demolished which do not contribute positively to the character of the Conservation Areas.

Amenities

Five townhouses back onto 111 and 113 Manchester Road, which are located at the top of the site. The rear elevations of the properties stand at two storeys in height with a mono-pitched roof system. The separation distance of 21 metres between facing windows is achieved at two storeys, and therefore it is considered

333 that no adverse overlooking or overshadowing will be created by these occupiers. Private garden lengths are in excess of 10 metres providing adequate levels of amenities space associated with family housing.

The town houses along the western elevation are positioned approximately 14 metres away from the west boundary. This results in adequate private garden areas. On the other side of this boundary stand the flats within Fairfield Heights. It is understood that along this elevation closest to the boundary, which is approximately 5 metres away, are a number of kitchen windows. These are not considered to be the main primary windows within the flats and furthermore are inadequate distance away from their own boundary. A distance of 19 metres is achieved, which whilst falling short of the 21 metre guideline is considered acceptable, especially as the site of Fairfield Heights is slightly elevated.

The tower is positioned away from the boundaries and will not create any adverse levels of overlooking or overshadowing above what that is currently on site. Each apartment within the tower benefits from a terraced/decking area, which can be used year round, with the cladding system being moveable to keep out the elements in winter. This level of amenity space is consistent with other flat developments in Sheffield.

The main block has been pulled back 6 metres from the originally submitted scheme leaving a distance of 16 metres to the boundary with the two blocks of apartments along Chesterwood Road closest to the site. There are no windows in the end gables of the apartments on Chesterwood Road, with the windows in the front and rear being sufficient distance away from the proposed building. Furthermore the windows are at an angle, and it is considered that they do not have a detrimental impact on occupiers of the proposed units or those occupiers of the units within the main block. Each apartment has an external space in the form of balconies.

Landscaping

Guidance regarding the protection of trees is contained with Policy GE15 -Trees and Woodland, which requires developers to retain mature trees, copses and hedgerows wherever possible.

Policy BE6 ‘Landscape Design’ seeks the requirements for good quality landscape design. The site falls in the Conservation Area and therefore the mature trees on the site are protected and are considered important local assets.

The remodelling of the main block has resulted in the retention of the important group of trees in the centre of the site, which, notwithstanding their individual condition, soften the character of the site/tower and integrate into the townscape/landscape.

The removal of the Annex building is such that this proposed building no longer impacts seriously on the large beech tree and line of trees along the frontage of the site facing Fulwood Road.

334 Towards the eastern edge of the boundary facing Fulwood Road, there is an area of dense tree cover, whilst some thinning of the trees would be welcomed to promote the longevity of the mature trees. Furthermore the pulling back of the main block away from these trees will reduce any future requests for pruning of felling.

Adequate protection also needs to be given to the retained trees during construction, which again can be controlled through a condition, along with a full landscaping scheme before any demolition/works are commenced.

Sedum roofs are proposed on the majority of the main block. This will help to retain and re-use water and release it slowly reducing peak surge demand on the drainage. Additional tree planting acts as a further buffer to the rainwater run-off, by absorption, and also provides solar shading, reducing solar gain.

A dense landscaping strip has been proposed along the eastern boundary facing Chesterwood Road. This will help to soften this part of the site which currently consists of the tarmac access road.

Details of a living wall indicated on the east elevation of the main block would also be required to be agreed by condition. This will help soften its appearance and enhance local biodiversity.

Overall, the proposal is considered to be acceptable in regards to its impacts upon trees and woodland and would therefore satisfy the requirements of UDP Policy GE15.

Affordable Housing

Policy H4 ‘Housing for people on low incomes’ of the Unitary Development Plan which was relevant when the application was submitted has been superseded by policy CS 40.

Policy CS40 requires developers of all new housing developments to be required to contribute to the provisions of affordable housing where this is practicable and financially viable. This is covered in more detail by the Affordable Housing - Interim Planning Guidance. (IPG)

The IPG states that a target level of 30 - 40% affordable housing will apply to developments of 15 or more units. In instances where the applicant does not offer to meet this target, the District Valuation Officer is asked to carry out a viability appraisal in order to establish what is thought to be an appropriate level of affordable housing contribution, taking account of an appropriate level of profit

The applicant has supplied a comprehensive development appraisal, which has been independently assessed by the District Valuers Office. The conclusion of this process is that it is not financially viable for the applicant to make any affordable housing contribution for the scheme.

335 For a scheme to be required to contribute to affordable housing, an acceptable level of developer’s profit of 15% is necessary. The appraisal in this instance shows the project generates a loss.

Whilst this is not ideal, it is reflective of these difficult economic times and is a situation that will not be unique to this application. It is therefore accepted that the scheme will provide no affordable housing contribution in this instance.

Mobility Housing

Policy H7 ‘Mobility Housing’ encourages the provision of a proportion of mobility housing, which is general purpose housing, suitable for easy adaptation to provide access for disabled people should they choose to live in the dwelling. This has successfully been achieved at a ratio of over 25% within the scheme. The design of the 1 bed and 2 bed apartments comply with the mobility housing criteria.

Open Space

Policy H16 requires that for new housing developments, developers will be required to ensure that there would be sufficient open space to meet the local needs of people living there. For sites over one hectare, a proportion of the site should be laid out as open space, except where the developer makes an appropriate contribution, if needed, to the improvement of existing recreation space in the catchment area of the site, or the provision of recreation space in the catchment area of the site would continue would continue to exceed the minimum guidelines after the development has taken place.

In this instance, the catchment areas for informal and formal space are well below the minimum guidelines required, and therefore a contribution is required. The financial contribution required is £111,935.25 that will be secured by a Planning Obligation under section 106 of the Town and Country Planning Act 1990.

Air Quality

The impact of the development on local air quality with respects to Nitrogen Dioxide and Fine Particles concentrations respectively, is small and not likely to be significant. The impact is unlikely to cause a breach of the National Air Quality Objectives or render unworkable any action on the Air Quality Action Plan.

SUMMARY AND RECOMMENDATION

The application seeks consent for the partial demolition, retention, extension & conversion of the tower, and erection of 2 x 4 storey blocks to create 121 no. 1, 2 & 3 bedroom units and 11 x 3 storey townhouses in grounds, with associated basement car parking,

The proposal is considered to be in keeping with the character of the area in design terms, and enhances and preserves the character of the Conservation Areas. The proposed scheme is considered acceptable in relation to impact on

336 highway safety. The amenities of adjoining occupiers would be safeguarded by the proposal, along with future occupiers of the proposed developments.

Overall, the application is considered to satisfy the relevant national and local planning guidance, and this application is recommended for approval in this instance, subject to the applicant entering into a Planning Obligation under S106 of the Town and Country Planning Act to secure a financial contribution towards enhancement of local open space.

HEAD OF TERMS FOR LEGAL AGREEMENT

On or before the commencement of the development, the owner shall pay to the Council, the sum of £111,935.25 to be used towards the provision or enhancement of Open Space within the vicinity of the site.

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