HEDGE END, WEST END & BOTLEY Monday 16 April 2007 Case Officer Rachel Illsley

SITE: 1 & 2 , Mansbridge Road, , SO18 3HW

Ref. C/07/59322 Received: 19/02/2007 (17/04/2007)

APPLICANT: Simon & Derek Bartlett

PROPOSAL: Alterations & extensions to roof with addition of front & rear facing dormers to create 2 bed flat with 3 storey rear extension to provide staircase access & associated parking provision (amended scheme)

AMENDMENTS: None

RECOMMENDATION:

Subject to: i) the satisfactory provision of developers' contributions towards social and recreational facilities, off-site public open space and transportation infrastructure in the local area. If these contributions are not secured within one month of the date of committee, the 16th May 2007, it is recommended that planning permission be refused on these grounds.

PERMIT

CONDITIONS AND REASONS:

(1) The development hereby permitted must be begun within a period of three years beginning with the date on which this permission is granted. Reason: To comply with Section 91 of the Town and Country Planning Act 1990.

(2) Details and samples of all external facing and roofing materials must be submitted to and approved in writing by the Local Planning Authority before development commences. The development must then accord with these approved details. Reason: To ensure that the external appearance of any building is satisfactory.

(3) Details of Contractor's site hut location and any areas designated for the storage of building materials must be submitted to and approved in writing by the Local Planning Authority before development commences. The development must then accord with these approved details. Notwithstanding the provisions of the Town and Country Planning General Permitted Development Order 1995 site huts and building materials must not be stored elsewhere on the site without the prior written permission of the Local Planning Authority. Reason: To ensure that natural features are not damaged.

(4) Details of the proposed treatment of the site boundaries must be submitted to and approved in writing by the Local Planning Authority and the approved measures must be implemented by a date to be agreed with the Local Planning Authority. Reason: In the interest of amenity.

(5) During the construction period no storage of building materials or parking of vehicles shall take place underneath the crown spread of the tree(s) to be retained on the site. Reason: To protect the health of the trees to be retained on the site.

(6) Before development commences, a plan must be submitted to and approved in writing by the Local Planning Authority showing a line of protective fence around all trees, hedges and other natural features to be retained. Fencing shall be with chestnut pale minimum 1.2 metres high or other fencing approved in writing by the Local Planning Authority. No excavation shall commence on the site until the fencing has been erected and the fencing must be maintained during the course of works on the site. No access by vehicles or placement of goods, fuels or chemicals, soil or other materials shall take place inside the fencing area. Note: The card accompanying this notice should be sent to the Development Control Section when the protective fencing is in place and development must not commence until the fencing has been inspected and the card signed by the inspecting officer. Reason: To ensure the natural features are protected from damage throughout the construction period.

(7) The burning of materials obtained by site clearance or from any other source must not take place on this site or adjoining land. Reason: To protect the health of the trees to be retained on site.

(8) Before the development commences, or by such later date as the Local Planning Authority may determine, a landscape scheme comprising planting, details of hard surfacing and means of enclosure must be submitted to, and approved in writing by the Local Planning Authority. Such a scheme must include a planting specification and schedule, and shall indicate the position, size, number, planting density and species of shrubs and trees. A seed or turf specification must be provided for areas to be grassed. The planting scheme must include details of phasing, timing and provision for management and maintenance during the first ten years from the date of planting. Reason: To ensure that the appearance of the development is satisfactory.

(9) The landscape scheme must be completed within 12 months from the completion of the last building shell, or by such later date as the Local Planning Authority may determine. Any trees or plants which die, are removed or become seriously damaged or diseased during the first five years must be replaced during the next planting season with others of similar size and species unless the Local Planning Authority gives written consent to any variation. Reason: To ensure that the appearance of the development is satisfactory.

(10) No construction or demolition work must take place except between the hours 0800 to 1800 Mondays to Fridays or 0900 to 1300 on Saturdays and not at all on Sundays or Bank Holidays. Reason: To protect the amenities of the occupiers of nearby dwellings.

(11) The development hereby permitted must not be brought into use until the areas shown on the approved plan for the parking of vehicles and on-site turning shall have been made available, surfaced and marked out, and the areas must be retained in a condition to the satisfaction of the Local Planning Authority, and reserved for that purpose at all times. Reason: In the interests of highway safety.

(12) The layout plan showing provision for a temporary car park within the site to accommodate operatives and construction vehicles during the construction and fitting -out period must be submitted to and approved in writing by the Local Planning Authority and shall indicate the eventual use of that area. The development must accord with these details. Reason: To avoid obstruction of the adjoining highway.

(13) Measures to be submitted to and approved in writing by the Local Planning Authority, to prevent mud being deposited on the public highway by vehicles leaving the site must be implemented during the whole of the construction period. No vehicle shall leave the site unless its wheels have been sufficiently cleaned to prevent mud being deposited on the public highway. Reason: In the interests of highway safety.

(14) Prior to the commencement of the development hereby permitted, full details of the cycle and bin storage areas to serve the new unit shall be submitted to and approved in writing by the Local Planning Authority. Implementation shall be in accordance with the approved details and provision made on site prior to the first occupation of the new unit. Reason: To ensure satisfactory on-site provision.

(15) Prior to the commencement of the development hereby permitted, details of the proposed car park construction, surface treatment and the measures for the disposal of surface water from the car park shall be submitted to and approved in writing by the Local Planning Authority. Implementation shall be in accordance with the approved details and provision made on site prior to the first occupation of the new unit. Reason: To protect the River Itchen SSSI/cSAC and retained trees.

Note to Applicant: It is considered that, subject to compliance with the conditions and any obligations attached to this permission, the proposed development is acceptable because it will not materially harm the character of the area, the amenity of neighbours or highway safety, and it is in accordance with the policies and proposals of the development plan, as listed below, and after due regard to all other relevant material considerations the local planning authority is of the opinion that permission should be granted.

The following development plan policies are relevant to this decision and the conditions attached to it:

Hampshire County Structure Plan 1996 - 2011 [ C1, E16 ] Borough Local Plan Review 2001-2011 [ 1.CO, 2.CO, 22.NC, 24.NC, 59.BE, 101.T, 104.T, 147.OS, 169.LB, 191.IN ]

Notes to Applicant: The applicant is advised that should bats be discovered at any stage during the works, all work must stop immediately and Natural contacted for further advice, (1). The applicant should ensure that appropriate pollution prevention measures are taken to avoid any contamination to the watercourse. There should be no discharge of silty or dirty water to any watercourse or surface water drain during the proposed works.

Any construction or demolition activities should be carried out in accordance with the Environment Agency's Pollution Prevention Guidelines No.6 - Working at Construction and Demolition sites.

The risk of pollution can significantly be reduced by providing secondary containment measures as detailed in the Environment Agency Pollution Prevention Guidelines No2 (Above Ground Oil Storage Tanks). The guidelines stipulate requirements for the standard of tanks, pipework and secondary containment, including bund walls.

Pollution Prevention Guidance:

To minimise the environmental impact of this development pollution prevention measures should be incorporated wherever appropriate. Guidance specific to this development can be found in the following Environment Agency Pollution Prevention Guidance:

PPG 01: General guide to the prevention of pollution PPG 02: Above ground storage tanks PPG 05: Works in, near or liable to affect watercourses PPG 06: Construction and demolition.

The Environment Agency website is www.environment- agency.gov.uk/netregs/resources/278006, or contact the Customer Contact Team on 01962 764867.

Conservation Area Report:

This application has been referred to Committee for determination by Members as the proposals represent a departure from the policy framework contained within the development plan.

The site and its surroundings

Description of application

1. The application seeks permission for alterations and extensions to the roof of the existing building, to create an additional 2-bed flat within the roof space, which would be served by front and rear facing dormer windows.

2. The proposals also include alterations to the elevational treatment of the building and the erection of a three-storey enclosed staircase to the rear, to provide access to the new 2nd floor flat.

Site area

3. The site measures approximately 0.054 hectares in area.

Residential development (net)

4. The application would result in the creation of a third residential unit on the site, giving an overall density of approximately 55 dwellings per hectare.

Topography

5. There are various changes of level across the site – the access from Mansbridge Road slopes downhill slightly towards No’s 1 and 2 Gaters Mill, but ground levels are then relatively flat across the front of the building. To the rear of the building, there is a pronounced change in levels, with the ground rising significantly towards the rear boundary of the site. There is a level courtyard area immediately to the rear of the building, with steps then leading up to rear garden area that is at higher ground level.

Trees

6. There is a large tree immediately adjacent to the front corner of the existing building and trees adjacent to the parking area on the riverbank. There are also various trees and shrubs to the rear of the garden area.

Boundary treatment

7. There is no boundary treatment across the front of the site, with the hard surfaced access road and gravelled parking area leading to the river bank. The side boundary adjacent to Mansbridge Road is marked by relatively low brick wall next to the building, which then has fence panels positioned above it towards the rear of the site, as ground levels rise. The rear boundary is marked by 1.8m fencing, as is the common boundary in the garden area with the adjoining property.

Site characteristics

8. No’s 1 & 2 Gaters Mill are contained within a fairly standard two-storey building, which is the end building in a terraced row facing the River Itchen.

Character of locality

9. The site is designated as a conservation area, centred around the mill buildings.

Relevant planning history

10. Application C/06/57636 was submitted in July 2006, seeking permission for an identical scheme, other than the proposed parking arrangements. This application was refused in December 2006 due to a failure to provide adequate parking and manoeuvring space within the site, to serve the additional development proposed.

Representations received

11. To date, no letters of representation have been received in respect of this application. Any comments that may be received will be reported to Members at the Local Area Committee meeting.

Consultation responses

12. The Head of Planning Policy has raised no objection to the proposals, stating:

13. ‘I have no policy objection to the creation of an additional residential unit of accommodation here if it achieves improvements to the conservation area, and the Council’s Conservation Architect has confirmed he has no objection to the proposals’.

14. The Head of Countryside & Recreation has made the following comments:

15. ‘I have no objection to this application in respect of nature conservation. The consultation is similar to the previous application, C/06/57636. However, it does not contain the extra information submitted with the earlier scheme relating to the drainage of the car park. I would therefore request that these details are conditioned.

16. I am satisfied that the bat survey (4Woods Ecology, October 2006), has been carried out to an acceptable standard. The report indicates that bats are not present on the above site and that the existing building provides limited opportunities for roosting bats. Therefore, development should not impact on this protected species’.

17. No objection has been raised in respect of trees, subject to conditions being attached requiring details of tree protection measures and details of the construction and surface treatment of the proposed parking areas.

18. The Head of Engineering has raised no objection to the proposals, stating:

19. ‘Secure cycle storage is required for two cycles plus contributions towards road traffic reduction measures in respect of the additional dwelling’.

20. The Head of Environmental Health has raised no objection to the proposals.

21. ‘Secure cycle storage for two cycles is required, plus a contribution towards road traffic reduction measures in respect of the additional dwelling’.

22. The County Ecologist has stated she has no comments to make on the application.

23. Natural England has raised no objection to the proposals stating:

24. ‘Natural England is satisfied that the bat survey, (9 October 2006) has been carried out to an acceptable standard. The report states that no signs of bats were found in the building and that it is unlikely that bats or their roosts will be impacted upon by the proposed works.

25. In light of this information, Natural England has no objection to the proposed development. However, the applicant should be advised that should bats be discovered at any stage during the works, all work should stop immediately and Natural England contacted for further advice.’

26. The Environment Agency has raised no objection to the proposals, making the following comments:

27. ‘I can confirm the Environment Agency has no objection in principle to the proposal but would, however, wish the following to be taken into consideration:

28. Silt & Dirty Water - The applicant should ensure that appropriate pollution prevention measures are taken to avoid any contamination to the watercourse. There should be no discharge of silty or dirty water to any watercourse or surface water drain during the proposed works.

29. Construction & Demolition - Any construction or demolition activities should be carried out in accordance with the Agency's Pollution Prevention Guidelines No.6 - Working at Construction and Demolition sites.

30. Oil Storage - The risk of pollution can significantly be reduced by providing secondary containment measures as detailed in the Environment Agency Pollution Prevention Guidelines No2 (Above Ground Oil Storage Tanks). The guidelines stipulate requirements for the standard of tanks, pipe work and secondary containment, including bund walls.

31. Pollution Prevention Guidance: To minimise the environmental impact of this development pollution prevention measures should be incorporated wherever appropriate. Guidance specific to this development can be found in the following Pollution Prevention Guidance:

• PPG 01: General guide to the prevention of pollution • PPG 02: Above ground storage tanks • PPG 05: Works in, near or liable to affect watercourses • PPG 06: Construction and demolition’

32. Southampton City Council has raised no objection to the proposals.

33. West End Parish Council has raised no objection to the proposals.

Policy context: Designation Applicable to Site

• Within Strategic Gap • Outside Built-Up Area Boundary • Within Established Residential Area • Within Designated Conservation Area • Within candidate Special Area of Conservation • Within Site Of Special Scientific Interest

Development plan policies

• Hampshire Country Structure Plan 1996-2011: E16, C1, C2 • Eastleigh Borough Local Plan Review (2001-2011) : 1.CO, 2.CO, 22.NC, 24.NC, 59.BE, 101.T, 104.T, 147.OS, 169.LB & 191.IN

Planning policy guidance / statement

• PPS1 – Delivering Sustainable Development • PPS3 – Housing • PPG15 – Planning & the Historic Environment

Policy commentary

34. The above policies combine to form the criteria against which this application will be assessed with particular regard to the impact on the countryside, strategic gap and conservation area setting, the SSSI and cSAC interests, the visual appearance of the proposals and the impact to neighbouring properties.

Comment on consultation responses

35. Please see report below.

Comment on representations received

36. Please see report below.

Assessment of proposal: development plan and / or legislative background

37. Section 74(3) of the Planning (Listed Buildings and Conservation Areas) Act 1990 states that Section 66 (1) of the Act applies. This indicates that in considering whether to grant Conservation Area consent:

38. “The Local Planning Authority shall 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”.

39. In addition, Section 72(1) of the Act states:

40. “in the exercise, with respect to any buildings or other land in a Conservation Area of any powers (under the Planning Acts), special attention shall be paid to the desirability of preserving or enhancing the character or appearance of that area”.

Principle of Development

41. Policy 1.CO of the adopted local plan outlines the types of development considered appropriate for countryside locations, which include development necessary for agricultural, forestry or horticultural purposes, outdoor recreational uses, public utility services, extensions to education or health facilities and also states that any development should meet the other criteria of the plan.

42. Policy 2.CO of the adopted local plan relates to strategic gaps and states that planning permission will not be granted for development which would physically or visually diminish a strategic gap.

43. The principle of additional residential development in this area is therefore contrary to the policy guidance outlined in the local plan. However, the Head of Planning Policy & Design has indicated that an exception to this policy guidance may be considered acceptable for a scheme of high quality design, and of an appropriate size and scale in relation to neighbouring properties, in order to enhance the overall character and appearance of this section of the conservation area.

Density

44. The guidance contained in PPS3, which replaces PPG3, states that a density of 30 dwg/ha should be used as a national indicative minimum, to guide policy making and decision making. This guidance goes on to state that density is a measure of the number of units that can be accommodated on a site or within an area.

45. Policy 72.H of the adopted plan states that in accessible areas, the Council will expect residential developments to achieve the maximum residential density compatible with the protection of reasonable residential amenity up to or beyond 50 dwg/ha, if appropriate.

46. The proposed additional unit would result in a density of approximately 55 dwg/ha on the site – consideration therefore needs to be given to the visual impact of the proposals, the benefits offered to the conservation area, and the ability of the site to accommodate this level of development, in order to determine whether this application is appropriate for this sensitive location.

Siting & Layout

47. PPS1 sets out the Government’s policies on the delivery of sustainable development and places increased emphasis on promoting high quality design, stating that “…good design is indivisible from good planning”, (para 33). The guidance goes on to state that “…design which is inappropriate in its context, or which fails to take the opportunities available for improving the character and quality of an area should not be accepted”, (para 34).

48. This guidance is carried forward in Policy 59.BE of the adopted local plan, which states that amongst other criteria, proposals must take full and proper account of the context of the site, including the character and appearance of the locality or neighbourhood, and be appropriate in mass, scale, materials, layout, density, design and siting, both in themselves and in relation to adjoining buildings, spaces and views and trees worthy of retention.

49. Consideration must also be given to the fact that the site lies within a designated conservation area. PPG15 outlines the importance that the Government attaches to the protection of the historic environment. Paragraph 4.26 states that the local planning authorities are required to pay special attention to the desirability of preserving or enhancing the character and appearance of the conservation area in question, and that this should be a prime consideration in determining a consent application.

50. Policy 169.LB of the adopted local plan reiterates this guidance, and requires development to preserve or enhance the character and appearance of the conservation area and its setting, and requires materials to be used to be appropriate to and in sympathy with existing buildings and the particular character of the area.

51. As noted above, the existing building containing 1 & 2 Gaters Mill is quite plain in appearance in comparison to the rest of the buildings making up the Gaters Mill area. Due to the position of the building at the entrance to the site, this contrast in style and appearance is all the more apparent.

52. This application proposes a number of alterations to the appearance of the existing building, which are aimed at softening its appearance and creating an external appearance that is more sympathetic to the prevailing character and appearance of the rest of the conservation area.

53. In order to create the proposed additional flat within the roof space, the ridge height of the building would be raised to approximately 10.4m, marginally higher than the adjoining property, which measures approximately 10.1m in height. The shape of the roof would also be altered, with the existing hipped roof being removed and replaced by a gable-ended roof, mirroring the roof form of the adjoining properties.

54. The new roof form would contain three dormers within the front roof slope and two within the rear. These windows are modest in size and sit comfortably within the roof area.

55. The other significant change is the addition of the stair tower to the rear elevation – this would provide the only means of access to the new flat, with the ground and first floor flats being served by the existing access from the front of the property.

56. The stair tower is, by necessity, three storeys in height, projecting approximately 2.2m from the rear elevation of the building, and measuring 9.3m in height. This new section of the building would extend out over the existing courtyard to the rear of the building, but given its size and position, is not considered to pose any risk of loss of light or amenity to the existing flats or adjoining property.

57. Changes are also proposed to the elevational treatment of the building. Where the building is all brickwork at the moment, the application includes a proposal to part render the building at first and second floor. These changes will help to break up the overall mass of the building, softening its appearance, and again, would result in a built form that is more sympathetic to its surroundings.

58. On balance, the proposals are considered to be sensitively designed, and offer a positive contribution and significant enhancement to the appearance of the building within the conservation area. The proposals are therefore considered to comply with the requirements of Policies 59.BE and 169.LB of the local plan, and are considered to enhance the conservation area setting, justifying an exception to the established policy framework which seeks to prevent new dwellings outside the urban edge.

Landscaping & Trees

59. The character of the Gaters Mill area is largely derived from the River Itchen that flows through the site, and the trees that line and overhang the riverbank. There is a large tree immediately adjacent to the front of the existing building and trees to the front of the site, adjacent to the parking area, which add to the setting and appearance of the site.

60. Whilst these trees are shown on the submitted plans, no details have been submitted in respect of the proposed works in relation to the trees. The Head of Countryside & Recreation has raised no objection to the proposals, subject to conditions being attached in respect of tree protection measures and details of the construction and surface treatment of the car parking areas.

61. No details in respect of landscaping have been submitted and it is therefore recommended that a condition be attached requiring a detailed landscaping scheme to be submitted, and requiring its completion within 12 months of the completion of the building works.

Nature Conservation

62. The site lies within an area designated as a Site of Special Scientific Interest (SSSI) and a candidate Special Area of Conservation (cSAC). The site abuts the bank of the River Itchen, which is covered by these designations, and is an area of significant ecological value and importance.

63. Policy 22.NC of the adopted local plan states that development which is likely to have an adverse affect on an SSSI will not be permitted, unless the Borough Council is satisfied that the reasons for the development clearly outweigh the harm to the nature conservation value of the site.

64. This is supported by Policy 24.NC of the adopted local plan which states that development will not be permitted where it would adversely affect species or habitats which are protected by legislation, unless appropriate measures are proposed which would acceptably mitigate the impact on those species.

65. The application is supported by a Bat Survey, which reports that it is unlikely that a bat roost exists at the current property, and that it is therefore unlikely that the proposals would result in any adverse affect on bats.

66. It is noted that Natural England and Hampshire County Council’s Senior Ecologist have raised no objection to the proposals, subject to an informative requiring the applicant to contact Natural England, should bats be discovered during the works.

67. The Head of Countryside & Recreation has also confirmed he has no objection to the proposals, subject to a condition being attached requiring drainage details in respect of the car park area.

68. The Environment Agency has also raised no objection, subject to a number of notes to applicants regarding the constructions process.

Parking & Access

69. Policy 59.BE(v) of the adopted local plan states that development proposals should have a satisfactory means of access and layout for vehicles, cyclists and pedestrians, and criterion (vi) requires provision of secure storage for cycles.

70. The application does not contain any proposals to alter the existing access from Mansbridge Road, and shows a total of 5 parking spaces to the front of the property. The layout of this area has been revised from the previous application, to address the concerns raised by Head of Engineering in respect of turning and manoeuvring space.

71. The Head of Engineering has now confirmed he has no objection to the revised proposals, subject to a condition requiring the parking to be laid out and available prior to the first occupation of the additional unit, and a condition requiring details of the proposed cycle storage provision.

Planning obligation /considerations

72. In accordance with the requirements of Circular 05/05 and Policies 101.T, 147.OS and 191.IN of the Eastleigh Borough Council Local Plan Review (2001-2011), this application is subject to the provision of developers’ contributions towards social and recreational facilities, off-site public space and transportation infrastructure in the local area.

73. The applicant has been informed of the level of contributions required in respect of these proposals and has stated that the contributions would be secured via a direct payment, should a resolution be made to grant planning permission.

74. These monies would therefore need to be secured within one month of the date of committee, which would be the 16 May 2007, otherwise it is recommended that planning permission be refused on these grounds.

Other material considerations

75. It is considered that there are no other material considerations to warrant a decision otherwise than in accordance with the Development Plan and / or legislative background.

Conclusions

76. On balance, it is considered that the proposals would result in a significant improvement to the character and appearance of the conservation area, without any detrimental impact to the qualities of the countryside and strategic gap setting, or to the nature conservation interests of the site.

77. It is therefore recommended that planning permission be granted, subject to the satisfactory provision of the required developers’ contributions for the additional residential unit. If these contributions are not secured by the 16 May 2007, it is recommended that planning permission be refused solely on these grounds.

y d B A U & t s n o C ro o B Sluices

FB

Pumping Station

Gaters Mill Cottage Sluice

Gaters Mill Rive FF r Itc hen

Mill House The Farmhous F W

2

3 1 2

n i a r

D 1

10.7m G ate rs H ill RH

D ef

H am ilto n Ho FW

G a te rs H ill

El Sub Sta

Hill Cottage Scale 0 10 20 30 40 50 m

Reproduced from the Ordnance Survey mapping with Scale 1:1250 the permission of Her Majesty's Stationery Office (C) Crown copyright. Unauthorised reproduction infringes Crown copyright and may lead to prosecution or civil Map Ref SU4515NW proceedings. Licence No. 100019622 (2007) Development Control Date 14/03/2007