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DEVELOPMENT CONTROL BOARD 10 November 2016 Reference: 15/01743/OUT Officer: Tim King Location: Roundabout Junction Bob Dunn Way & Thames Road (Howbury Park) Proposal: Cross-boundary outline application for the demolition of existing buildings and redevelopment to provide a strategic rail freight interchange comprising a rail freight intermodal facility, warehousing, new access arrangements from Moat Lane, associated HGV, car and cycle parking, landscaping, drainage, and associated works (within London Borough of Bexley). Creation of a new access road from the existing A206/A2026 roundabout, incorporating a bridge over the River Cray, landscaping and associated works (within Dartford Borough Council). All matters reserved except for Access Applicant: Roxhill Developments Ltd Agent: Nathaniel Lichfield And Partners/Hugh Scanlon Target Date: 11/03/2016 Parish / Ward: / Town RECOMMENDATION: Approval of Outline Permission, subject to a S106 Agreement. SITE DESCRIPTION (1) This is a 60 hectare site (149 acres) on land adjacent to an existing rail depot at Slade Green. A cross-boundary application with the London Borough of Bexley (LBB), the vast majority of the site lies within the adjoining authority's area, and then extends across the River Cray, which forms the boundary between the two boroughs. THE PROPOSAL (2) Outline planning permission is sought by the applicant, Roxhill Developments Ltd, with matters of layout, scale, appearance and landscaping all reserved for subsequent approval. Only the matter of access is for determination at this stage. The proposal's various elements are as follows: - Demolition of the existing buildings on site; - Creation of rail access, including rail sidings, via the existing connection off the South Eastern Trains depot at Slade Green; - Provision of a central rail port forming part of an integrated intermodal area; - Creation of a series of development plots providing up to 184,500 sqm (GEA) of rail-served warehouse, distribution floorspace and hardstanding service areas adjacent to each building to allow for heavy goods vehicle access; - The creation of lorry and car parking within the site; - The creation of an internal access road, linking each unit with the new access road; - Provision of a new road access from the existing roundabout on Bob Dunn Way and Thames Road, across the River Cray via a fixed bridge into the application site; - The provision of a new access road to the existing Viridor waste recycling site, located directly south-west of the application site; - Retention of the land previously reserved for Crossrail to form a strip of undeveloped land adjacent to the Slade Green Depot; and - The implementation of an extensive landscaping scheme to help integrate the development with its urban fringe setting. (3) The SRFI facility would employ approximately 2,500 people which includes 965 operational (warehouse, drivers) and approx. 1,521 non-operational (office, admin, managerial and IT/sales staff) operating a traditional '3 shift' pattern with conventional change-over periods of 6am, 2pm and 10pm, supporting 24 operational hours. As the internal layout of the site is not finalised, the application contains no details as to the number of on- site car parking spaces. However, it is unlikely that this would differ significantly to the parking provision associated with the previous planning consent, amounting to 1,167 car parking spaces and 381 HGV spaces, therefore remaining in line with London Borough of Bexley's B1-B8 use parking standards. (4) The land within Dartford BC's area is limited to the relatively short stretch of land forming the vehicular access from the roundabout up to the point of the proposed fixed bridge crossing the River Cray. (5) The main site access proposes a link to the A206 Thames Road / Bob Dunn Way Roundabout / dual-carriageway (primary road) by way of a new access road to the SRFI site, adjacent to the existing (Viridor) waste recycling facility. This would comprise a 7.3m single carriageway. RELEVANT HISTORY (6) A similar scheme, submitted in 2004, under Dartford BC ref: DA/04/00803/OUT and LB Bexley ref: 04/04384/OUTEA was appealed following Dartford's decision to refuse planning permission for the considered adverse impact on the openness and character of the Green Belt. For its part LB Bexley failed to determine the application within the prescribed period and a local inquiry followed. (7) In December 2007 the Secretary of State, in agreeing with the appointed Inspector's recommendation, allowed the appeals. The overall conclusions were that, although the proposal constituted inappropriate development in the Green Belt, and would cause substantial harm to it, the benefits of the proposal amounted to the very special circumstances necessary to outweigh the harm to the Green Belt and any other harm. On the basis of an apparent need for such developments at that time and, considering that the proposal was seen not to be inconsistent with the various development plans (save for the Green Belt issue), planning permission was granted for a rail freight interchange with dedicated intermodal facility and rail-linked warehousing, subject to two separate S106 agreements; one covering a series of highway obligations and the other concerned with non- highway obligations. (8) In reaching the decision the Secretary of State agreed with the Inspector that the ability of the proposal to meet part of London's need for three or four SRFIs was the most important consideration to which she afforded significant weight. She also affords considerable weight to the lack of alternative sites to meet this need. (9) The outline planning permission granted, however, subsequently lapsed as the reserved matters were never furthered. COMMENTS FROM ORGANISATIONS (10) Greater London Authority (GLA) The GLA's Stage 1 response is summarised as follows: - Green Belt Proposed development is inappropriate and would be harmful to the Green Belt. A 'very special circumstances' case based on identified strategic need and the lack of alternative sites which could accommodate such a large facility and have access to the road and rail network has been made, which is considered to be persuasive but further information should be sought on the proposed carbon emission savings, reduction in traffic movements and the impact on the passenger rail network. - Strategic Rail Freight Interchange (SRFI) Supported under London Plan Policy 6.15, subject to clarification on carbon emission saving and wider transport impacts. Recognition of previous planning consent for Howbury Park. - Economic development The proposal would make a significant positive economic impact and help support the Bexley Riverside Opportunity Area and Regeneration Area. - Transport Concern regarding the potential impact on passenger rail, in addition to a number of other strategic transport issues raised (including level of cycle parking and contributions to signage and bus shelters). - Biodiversity The proposal would result in the loss of a significant area of land that proposes complementary habitats to the adjacent Crayford Marshes. Mitigation is proposed, but compensation measures should also be secured. - Climate Change The proposed carbon dioxide savings would exceed those set out in Policy 5.2 of the London Plan. - Inclusive design and access Conditions should be included on any consent to ensure the measures proposed are secured to meet the aims of London Plan Policy 7.2. - The GLA recommends that LB Bexley be advised that the application does not currently comply with the London Plan, but that possible remedies could address these deficiencies. (11) Highways England - Highways England (HE) initial response in December 2015, following receipt of the application, showed particular interest in the potential impact that the development might have upon the A282/M25, in particular M25 Junction 1A. We are concerned as to whether there would be any adverse safety implications or material increase in queues and delays on the strategic road network as a result of development. - The applicant's Transport Assessment (TA) provides evidence of traffic flows and queue lengths at the signalised roundabouts that were surveyed in June 2015. There were significant queue lengths on several lanes of different arms, most notably the Bob Dunn Way and the M25 southbound off-slip where evening peak hour queues of over 500 and 200 metres, respectively were recorded for some lanes. - From the data provided in the TA there is also an indication of traffic queueing on the northbound on-slip road from the main M25 carriageway. The queueing (along with mainline carriageway queueing) has been evident both with and without any network incidents, so is often simply down to capacity constraints. - The view is that there are currently insufficient details supplied in order to properly determine a reasonable position in relation to the planning application. There is a risk based upon the evidence to date that the proposed development may result in severe harm to the A282 Trunk Road and M25 Motorway. Further information is required from the applicant to establish whether this is the case. (12) Continued discussions between the applicant and HE, with input from KCC, DBC and LBB, have brought about a proposal whose impacts, mitigated by conditions, are considered acceptable to the Agency. This is considered later in the report. (13) Kent County Council (Highways) (14) From a Kent County Council perspective, this is an application where it is important to consider
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