AGENDA ITEM 7

COMMITTEE: DEVELOPMENT CONTROL

DATE: 31ST MARCH 2010

SUBJECT: HIGH SCHOOL, RIDDY LANE DEVELOPMENT OF LAND FOR EDUCATIONAL PURPOSES – DEMOLITION OF EXISTING SCHOOL AND NEW BUILD AND CO-LOCATED SEN SCHOOL WITH ASSOCIATED LANDSCAPING AND PARKING (APPLICANT: BOROUGH COUNCIL) (APPLICATION NO: 09/01350/OUT)

REPORT BY: INTERIM DEVELOPMENT CONTROL MANAGER

CONTACT OFFICER: DAVID GAUNTLETT 546317

IMPLICATIONS:

LEGAL COMMUNITY SAFETY

EQUALITIES ENVIRONMENT

FINANCIAL CONSULTATIONS

STAFFING OTHER

WARDS AFFECTED: ICKNIELD

PURPOSE

1. To advise Members of a current application for planning permission and to seek their decision

RECOMMENDATION(S)

2. That planning permission is granted subject to the following conditions: -

7/1

(01) In the case of any matter hereinafter reserved for the subsequent approval of the Local Planning Authority, application for this approval shall be made not later than the expiration of two years beginning with the date of this permission and the development hereby permitted shall be begun not later than whichever is the later of the following dates: (a) The expiration of three years from the date of this permission or (b) The expiration of years from final approval of the matters hereinafter reserved for the subsequent approval of the Local Planning Authority or in the case of approval on different dates, the final approval of the last such matter to be approved.

Reason: To limit the duration of the permission in accordance with the provisions of Sections 91-96 of the Town and Country Planning Act, 1990.

(02) Notwithstanding the submitted plans and drawings, full details and particulars of all buildings and other works hereby permitted in respect of the siting, design, external appearance, means of access and the landscaping of the site/development, shall be submitted to and approved by the Local Planning Authority before any development is commenced.

Reason: To enable the Local Planning Authority to exercise proper control over the details of development in the case of an outline planning permission granted under Article 3 (1) of the Town and Country Planning (General Development Procedure) Order, 1995.

(03) All planting included in the scheme(s) submitted in compliance with Condition No. 02 of this permission and approved by the Local Planning Authority shall be carried out by a date not later than the end of the full planting season immediately following the completion of that development. If within a period of five years from the initial date of planting of any tree or shrub, any such plant is removed, uprooted or destroyed or dies, or becomes in the opinion of the Local Planning Authority, seriously damaged, diseased or defective, another tree or shrub of the same species and size as that originally planted shall be planted at the same place, unless the Local Planning Authority gives its written consent to any variation.

7/2 Reason: To enhance the appearance of the proposed development. To accord with the objectives of Policy(ies) LP1 and ENV10 of the Borough of Luton Local Plan.

(04) Before any work on site is commenced, full details shall be submitted to and approved by the Local Planning Authority for the safeguarding of the trees, shrubs and/or hedges within the site. The safeguarding measures thereby approved shall be implemented prior to the commencement of any demolition works, removal of topsoil or commencement of building operations and retained in a position until development is completed. The land so enclosed shall be kept clear of plant, building materials, machinery and other objects and the existing soil levels not altered.

Reason: To safeguard the existing trees, shrubs and/or hedges on the site. To accord with the objectives of Policy(ies) LP1 and ENV10 of the Luton Local Plan.

(05) The area to be used for car parking in connection with the development hereby permitted shall not be used for any purpose other than for the parking of staff and visitors' cars and the standing of vehicles while servicing the premises and shall be ready for use prior to the occupation of the building(s) comprised in the development hereby permitted.

Reason: To ensure that adequate provision is made for vehicles to park clear of the highway in the interest of road safety. To accord with the objectives of Policy(ies) LP1, T3 and T13 of the Luton Local Plan.

(06) Details of the surfacing and drainage of all areas of hardstanding hereby approved shall be submitted to and approved by the Local Planning Authority before the development hereby permitted is commenced. The details thereby approved shall be installed prior to the occupation of any building on the site.

Reason: To prevent the increased risk of flooding and to accord with the objectives of Policy(ies) LP1 and ENV14 of the Luton Local Plan.

(07) No external lighting shall be installed on the site, other than in accordance with a scheme to be submitted to and approved by the Local Planning Authority beforehand. The scheme, lighting equipment and levels of illumination shall comply with

7/3 guidance issued by the Institution of Lighting Engineers in their publication "The ILE Outdoor Lighting Guide" and shall be accompanied by a statement from the developer confirming that compliance. The scheme shall thereafter be retained and maintained for so long as the development remains in existence and shall not be varied without the prior written permission of the Local Planning Authority.

Reason: To ensure a satisfactory standard of development and to safeguard the amenities of the surrounding area. To accord with the objectives of Policy(ies) LP1 and ENV9 of the Luton Local Plan.

(08) Notwithstanding the submitted plans, triangular pedestrian safety visibility splay(s) of 1.8 metres x 1.8 metres shall be provided on each side of the vehicle access points to the site. The splay(s) shall be positioned within the site at right angles to the highway (measured at the highway/site boundary). The visibility splay(s) so described shall be maintained free of any obstruction to visibility exceeding a height of 600mm above the existing ground level.

Reason: In the interests of highway and pedestrian safety. To accord with the objectives of Policy(ies) LP1 and T3 of the Luton Local Plan.

(09) Full details of a scheme for the secure parking of bicycles on the site shall be submitted to and approved by the Local Planning Authority before any development is commenced, and the scheme thereby approved shall be fully implemented before use of the development commences.

Reason: To ensure adequate provision is made for the accommodation of bicycles on the site, and to accord with Policies LP1 and T8 of the Luton Local Plan.

(10) Before the development hereby permitted is commenced a scheme detailing security measures across the site shall be submitted to and approved by the Local Planning Authority. The approved scheme shall be implemented in advance of the occupation of the building(s) and shall be retained thereafter.

Reason: To ensure a satisfactory standard of development and in the interests of security and the prevention of crime. To accord with the objectives of Policy(ies) ENV9 of the Luton Local Plan.

7/4

(11) A CCTV surveillance system shall be provided in accordance with a scheme to be submitted to and approved by the Local Planning Authority before the development hereby permitted is commenced and the approved system shall be installed and fully operational prior to the occupation of the buildings.

Reason: To ensure a satisfactory standard of development and in the interests of security and the prevention of crime. To accord with the objectives of Policy(ies) LP1 and ENV9 of the Luton Local Plan.

(12) The building(s) shall not be occupied until a means of access for pedestrians has been constructed in accordance with the approved plans.

Reason: In the interests of highway and pedestrian safety. To accord with the objectives of Policy(ies) LP1 and T3 of the Luton Local Plan.

(13) Full details of the proposed boundary treatment of the site shall be submitted to and approved by the Local Planning Authority before the development is commenced and the approved treatment shall be installed before the building(s) hereby permitted is/are occupied.

Reason: To ensure a satisfactory standard of development and to safeguard the amenities of the surrounding area. To accord with the objectives of Policy(ies) LP1 and ENV9 of the Luton Local Plan.

(14) Full details of the materials to be used in the construction of the walls, roof and fenestration of the buildings shall be submitted to and approved by the Local Planning Authority before the development is commenced.

Reason: To ensure a satisfactory standard of development and to safeguard the amenities of the surrounding area. To accord with the objectives of Policy(ies) LP1 and ENV9 of the Luton Local Plan.

(15) Before the development hereby permitted is commenced a scheme indicating the provision to be made for disabled people to gain access to all areas of the building shall have been submitted to and approved by the Local Planning

7/5 Authority. The agreed scheme shall be implemented before the development hereby permitted is brought into use.

Reason: To ensure a satisfactory standard of development and to provide an inclusive environment. To accord with Policy LP1 of the Luton Local Plan.

(16) Prior to the commencement of development, details of a scheme for renewable energy production equipment to provide at least 10% of the predicted energy requirements of the development shall be submitted to and approved by the Local Planning Authority, unless it can be demonstrated that there are overwhelming practical reasons why this is not appropriate. The scheme thereby approved shall be installed before first occupation or in accordance with a timetable agreed in writing by the Local Planning Authority and shall be used, retained and maintained thereafter for so long as the development remains in existence.

Reason: In the interests of sustainability. To accord with the objectives of Policy(ies) LP1 and U3 of the Luton Local Plan.

(17) 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 subsequently be implemented in accordance with the approved details before the development is completed. The scheme shall also include details of how the scheme shall be maintained and managed after completion.

Reason: To prevent the increased risk of flooding, to improve and protect water quality, improve habitat and amenity, and ensure future maintenance of the surface water drainage system. To accord with Policies LP1 and ENV14 of the Luton Local Plan.

(18) Prior to the commencement of development approved by this planning permission (or such other date or stage in development as may be agreed in writing with the Local Planning Authority), the following components of a scheme to deal with the risks associated with contamination of the site shall each be submitted to and approved, in writing, by the Local Planning Authority:-

7/6 (i) A preliminary risk assessment which has identified:-

(a) all previous uses; (b) potential contaminants associated with those uses; (c) a conceptual model of the site indicating sources, pathways and receptors; (d) potentially unacceptable risks arising from contamination at the site.

(ii) A site investigation scheme, based on (i) to provide information for a detailed assessment of the risk to all receptors that may be affected, including those off site. (iii) The site investigation results and the detailed risk assessment (ii) and, based on these, an options appraisal and remediation strategy giving full details of the remediation measures required and how they are to be undertaken. (iv) A verification plan providing details of the data that will be collected in order to demonstrate that the works set out in (iii) are complete and identifying any requirements for longer-term monitoring of pollutant linkages, maintenance and arrangements for contingency action.

Any changes to these components require the express consent of the Local Planning Authority. The scheme shall be implemented as approved.

Reason: To ensure protection of controlled waters, the site is in an area of high groundwater vulnerability. To accord with Policies LP1 and ENV14 of the Luton Local Plan.

(19) If, during development, contamination not previously identified is found to be present at the site then no further development (unless otherwise agreed in writing with the Local Planning Authority) shall be carried out until the developer has submitted, and obtained written approval from the Local Planning Authority for, an amendment to the remediation strategy detailing how this unsuspected contamination shall be dealt with.

Reason: To ensure protection of controlled waters. To accord with Policies LP1 and ENV14 of the Luton Local Plan.

7/7 (20) The development hereby permitted shall not be commenced until such time as a scheme to dispose of foul and surface water has been submitted to, and approved in writing by, the Local Planning Authority. The scheme shall be implemented as approved. No infiltration of surface water drainage into the ground is permitted unless where it has been demonstrated that there is no resultant unacceptable risk to controlled waters.

Reason: To ensure protection of controlled waters and that the surface water discharge from the site shall not be detrimental to the existing sewerage system. To accord with Policies LP1 and ENV14 of the Luton Local Plan.

(21) Prior to the commencement of the development, details of the design and layout of the sports hall, ancillary hall, all weather pitch and multi-use games areas, shall be submitted to and approved in writing by the Local Planning Authority in consultation with Sport and thereafter constructed in accordance with the approved design details.

Reason: To ensure the proposed sports facilities are fit for purpose, subject to high quality design standards and sustainable and to adequately compensate for the impact of the development on the playing field and (if applicable) to accord with Policy LC1 of the Luton Local Plan.

22 (i) A detailed assessment of ground conditions of the playing fields shall be undertaken (including drainage, topography and maintenance) to identify constraints which could affect playing field quality; and (ii) Based on the results of this assessment to be carried out pursuant to (i) above of this condition, a detailed scheme to ensure that the playing fields will be provided to an acceptable quality shall be submitted to and approved in writing by the Local Planning Authority in consultation with Sport England.

The approved scheme shall be complied with in full prior to the completion of the development unless otherwise agreed with the Local Planning Authority (in consultation with Sport England).

Reason: To ensure that site surveys are undertaken for enhanced playing fields and that any ground condition constraints can be and are mitigated to ensure provision of an

7/8 adequate quality playing field. To accord with Policy LC1 of the Luton Local Plan.

(23) Prior to the commencement of development, details for the phasing of development, including the enhancements to the grass playing field, shall be submitted to and approved in writing by the Local Planning Authority in consultation with Sport England. The development shall be carried out in accordance with the approved details.

Reason: To ensure the satisfactory quantity, quality and accessibility of compensatory provision which secures a continuity of use of the playing field. To accord with Policy LC1 of the Luton Local Plan.

(24) Prior to the commencement of any development on the playing field, a scheme for temporary replacement playing field provision during the construction period, shall be submitted to and approved in writing by the Local Planning Authority in consultation with Sport England. The development shall be carried out in accordance with the approved scheme.

Reason: To secure continuity of use of playing field provision for existing users. To accord with Policy LC1 of the Luton Local Plan.

(25) Prior to the completion (or first occupation) of the development, a Community Use Scheme shall be submitted to and approved in writing by the Local Planning Authority in consultation with Sport England. The Scheme shall include details of pricing policy, hours of use, access by non-school users/non-members, management responsibilities and include a mechanism for review. The approved Scheme shall be implemented upon commencement of use of the development.

Reason: To secure well managed safe community access to the sports facility and to ensure sufficient benefit to the development of sport. To secure continuity of use of playing field provision for existing users. To accord with Policy LC5 of the Luton Local Plan.

(26) Prior to commencement of the development a Sports Development Programme shall be submitted to and approved in writing by the Local Planning Authority which provides details of the proposals for sports development. The

7/9 Programme shall be carried out and implemented in full in accordance with the approved Programme.

Reason: To secure sufficient benefits to the development of sport and (if applicable) to accord with Policy LC5 of the Luton Local Plan.

(27) The all-weather pitch facility and floodlights hereby approved shall not be operated outside the following hours: Mondays to Thursdays, 07:30 to 22:00; Fridays, 07:30 to 19:30; Saturdays, 09:00 to 19:00; Sundays and Bank Holidays, 10:00 to 17:00.

Reason: To protect the amenities of neighbouring properties. To accord with the objectives of Policy(ies) LP1 and LC5 of the Luton Local Plan.

(28) Prior to commencement of the development a scheme setting out the type, design, lux levels and measures to control glare and overspill light from floodlighting and measures to ensure lights are switched off when not in use shall be submitted to and approved in writing by the Local Planning Authority. Thereafter the floodlighting shall be operated in accordance with the approved scheme and maintained in accordance with manufacturer's instructions.

Reason: To minimise light pollution in the interests of amenity and sustainability and to maximise opportunity for community use and/or secure the viability of the development. To accord with the objectives of Policies LP1, ENV5 and LC4 of the Luton Local Plan.

(29) Full details of a scheme for habitat enhancement in accordance with the recommendations set out in the submitted Ecological Appraisal shall be submitted to and approved in writing by the Local Planning Authority in liaison with the Natural and Built Environment Officer before the development hereby approved is commenced. The development shall subsequently be implemented entirely in accordance with the approved details and permanently retained and maintained thereafter.

Reason: In the interests of the protection and enhancement of nature conservation interests. To accord with Policies LP1 and ENV5 of the Luton Local Plan.

7/10 (30) Before the development hereby approved is occupied, a scheme providing for an integrated package of transportation measures to accord with the principles set out in current guidance to reduce car travel to the site (a School Travel Plan) shall be submitted to the Local Planning Authority for approval and in consultation with the Local Highway Authority, and the details thereby approved shall be implemented prior to the use of the extensions to which this permission refers.

Reason: In the interests of sustainability and encouraging reduced car travel. To accord with the objectives of Policies LP1, T2 and T3 of the Luton Local Plan.

(31) A scheme for the monitoring of the Travel Plan referred to in Condition 31 of this permission shall be submitted to and approved in writing by the Local Planning Authority in consultation with the Local Highway Authority.

Reason: In the interests of sustainability and encouraging reduced car travel. To accord with the objectives of Policies LP1, T2 and T3 of the Luton Local Plan.

(32) The development hereby approved shall not be commenced until any necessary off-site highway works required as a result of the development have either been installed or programmed for installation, at the developer's expense, in accordance with a timetable agreed with the Council's Highway Development Manager. Written notification of the completion of the required works shall be provided to the Local Planning Authority before the development hereby approved is occupied.

Reason: In the interests of effective traffic management in the surrounding area and to accord with Policies LP1 and T3 of the Luton Local Plan.

REPORT

The Site and Surroundings

3. The application site is an area of land measuring 12.2 hectares and is located approximately 1.9 miles north of Luton town centre. The site comprises single and two-storey school buildings and associated car parks on its southeastern side, hard surfaced tennis courts adjacent to its eastern boundary and grassed playing fields to the north. The school’s main frontage addresses Riddy Lane with its vehicular and primary pedestrian access leading from this highway. A secondary pedestrian access can be obtained from Birdsfoot Lane

7/11 via the area of open space to the west of the playing fields. Part of this open space is designated as a County Wildlife Site (CWS), as is the area of land adjoining the northeastern boundary (Cowslip Meadow). The former is home to a number of plant and wildlife species amongst its grassland, hedgerows and scattered trees including the rare and protected plant species, the Great Pignut.

4. The wider area is served by a number of amenities comprising a small parade of shops directly opposite the school on Riddy Lane, the Icknield Primary School to the western end of Riddy Lane and the central Campus to the immediate southeast of the site across the A6 New Bedford Road highway. Notwithstanding those land uses, the site is set within predominantly residential surroundings.

Relevant Planning History

5. The site has been subject to a number of applications for extensions to the existing school buildings.

The Proposal

6. Outline planning permission is sought to demolish the existing school buildings on the site and erect a new single school building to accommodate and Woodlands Secondary School, which is a Special Educational Needs (SEN) facility currently located on Northwell Drive in . The proposed development is part of the Building Schools for the Future (BSF) programme, and is aimed at improving the delivery of education within the town. Four high schools have already been through the planning process and are under construction on-site (Barnfield South and West Academies, High School for Girls and ).

7. This application has been made in outline form with all matters being reserved for future approval. Therefore at this stage, only the principle of the development is being sought within the context of the following parameters:

• An increase in the school role from 1,455 to 2,426 pupils for Icknield High School (an increase of 971 places (67%)). • The co-location of Woodlands Secondary School onto the site resulting in a further 210 pupils. • An increase in staff numbers from 250 to 576 (including staff for Woodlands School). • Relocation of the existing car park for Icknield High School and an increase in parking from 160 to 213 spaces and a new separate car park for Woodlands Secondary School comprising 70 spaces. • Separate vehicular and pedestrian accesses for both schools with parent drop-off facilities. • A scale of single to three-storey building heights.

7/12 • Re-grading of the playing fields and extensive landscaping.

Planning Policy

8. The majority of the site that is to be developed has no designation on the Local Plan Proposals Map. However, as previously mentioned, part of the site (playing fields) falls within a CWS. The relevant policies and their assessment are dealt with in the ‘Main Planning Considerations’.

Consultation Responses

9. Highway Development Manager: Has acknowledged the current extensive problems concerning traffic and parking surrounding the site at peak times and that whilst the problems only occur for short periods throughout the day, the proposed increase in pupil numbers have the potential to result in a significant impact on Riddy Lane and the adjoining roads both in terms of additional traffic and parking demand. Advises that the proposed drop-off facilities will provide some mitigation to the situation, but confirms that it does not provide a comprehensive solution to the problems. There are problems with respect to extending the existing waiting restrictions in Riddy Lane as this would have a knock on effect to all of the side roads leading off this highway (Rosslyn Crescent, Broughton Avenue, Rackham Drive and Truro Gardens).

10. Sport England: Has no objection to the proposed development subject to conditions being attached to any approval to secure detailed design of the sports facilities, an assessment of the quality of the playing fields, details of the phasing of the development, details of the available playing field provision during construction works, a Community Use Agreement and a Sports Development Programme.

11. Police Architectural Liaison Officer: Has no objection to the proposed development subject to conditions being attached to any approval to secure further details relating to adequate lighting, secure access, CCTV details, boundary treatments and cycle parking.

12. Environment Agency: Has no objection to the proposed development subject to recommended conditions being attached to any approval.

13. Thames Water: Advise that it is the responsibility of the developer to make proper provision for drainage to ground, water courses or a suitable sewer.

14. Veolia Water: No response has been received. Any comments made will be reported at the Meeting.

15. Strategic Planning: No response has been received. Any comments made will be reported at the Meeting.

7/13

16. Environmental Protection: Has put forward concerns about the increased facility and the potential for this to impact on adjoining residential areas. Accordingly conditions have been suggested, which would control the external floodlighting and the noise levels emanating from the site.

17. Parks (TREES): Raises no objection to the principle of the redevelopment given that the current site frontage is fairly poor in terms of quality existing landscape value. However as there will be an inevitable loss of the few large feature trees presently in existence at the site it is recommended that formal and informal landscaping, particularly at the front of the site, becomes a material consideration of any subsequent detailed application for redevelopment.

18. Regeneration Service: Provides views and advice connected to the landscaping and ecology proposals of the redeveloped site.

19. Capital & Asset Management: No response has been received. Any comments made will be reported at the Meeting.

20. Waste Management: Would require further details regarding the waste management aspects of the development.

21. Statutory Publicity: The application has been notified to 615 local occupiers adjoining the site with site and press notices also being issued. The Council has received 130 separate letters of representation, all objecting to the development.

22. The majority of these representations (95) are on an individually signed standard pro-forma letter. This standard pro-forma raises objections for the following reasons:

• Development of this magnitude will be profoundly detrimental to the quality of life of residents in the area. • Anti-social behaviour by undisciplined pupils, parents and drivers • Traffic congestion and associated obstruction. • Illegal parking and associated damage to pavements footpaths and private property. • Excessive litter within the public realm and private property (the take-away units in parade appear to be the target of this).

23. Of those representations not on the standard pro-forma, the objections raised relate to the following:

7/14 Traffic and highway related Issues

• Existing traffic chaos in the area and there is inadequate infrastructure to cope with increase in staff/pupils. • Detrimental impact on the streets adjoining Riddy Lane by reason of traffic and drop-off. • Increased demand for car parking as a result of the increase in staff numbers. • Inconsiderate parking during school rush hour. • Impact on highway and pedestrian safety. • Access for Emergency vehicles is restricted. • Inadequate on-site parking being provided. • Access points are too close together.

Other Issues

• Impact on pupils in terms of delivery of education as a result of the 89% increase in pupil numbers (reference is made to a review by University of London concerning ‘ideal pupil numbers per classroom in order to achieve optimum academic standards). • High levels of litter already experienced will be made worse. • Vandalism currently experienced will be made worse. • There are more suitable sites for such a drastic increase (Lea Manor and cited). • Negative impact created by the existing take-aways. • Increased noise and general disturbance associated with the increased pupil numbers.

24. In addition to the public consultations undertaken as part of the planning application statutory procedures, public meetings and exhibitions, leaflet drops and questionnaire forms formed part of the pre-application consultations undertaken by the applicant as part of the community engagement process. In addition, at the request of Ward Councillors at the January meeting of the relevant Area Committee, a public meeting was organised by the Council’s Children and Learning Service - the meeting was held at Icknield School on 3rd March.

Policy Implications

25. The Policies that are relevant to the proposal are LP1, ENV5, ENV9, ENV10, LC1, LC4, LC5, T2, T3, T8, T13 and U3.

26. Policy LP1 sets out a sustainable development strategy for developments within the borough.

7/15 27. Policy ENV5 is concerned with the protection and enhancement of nature conservation. This policy states that planning permission will not be granted for development that, amongst other things, would have an adverse effect on County Wildlife Sites (CWS) or areas of biodiversity value, including trees and hedgerows.

28. Policy ENV9, amongst other things, expects proposals to respect the character and appearance, existing landforms and natural features, and the scale and proportion of existing buildings.

29. Policy ENV10 is concerned with landscaping proposals for all new developments and states that development will not be approved unless adequate provision is made for landscaping.

30. Policy LC1 seeks to protect existing green space across the borough from unnecessary development.

31. Policy LC4 states that new and extended community facilities will be granted planning permission provided that there is a demonstrable local need, it would not adversely affect viability and vitality of a shopping centre, and there would be no unacceptable effect on the amenity of adjoining dwellinghouses.

32. Policy LC5 is associated with the dual use of educational facilities, and states that permission will be granted for this unless the use would have an adverse impact on the educational use of the facility, and would have an excessive adverse impact on the character of the area or the amenity of nearby residential and other properties.

33. Policy T2 relates to developments with the potential to have significant transport implications and states that development will not be permitted unless the site is adequately served by public transport.

34. Policy T3 is concerned with the traffic implications of development and seeks to minimise additional traffic associated with new development..

35. Policy T8 requires developments to take into account the needs of pedestrians and cyclists and stresses the need to promote walking and cycling.

36. Policy T13 is concerned with parking, stating that developments will only be permitted where the proposed parking provision is necessary and does not exceed the approved maximum standards set out in the Local Plan

37. Policy U3 states that all proposals for new buildings totalling 1000 sq. metres floor space or more will be required to incorporate renewable power generation equipment to provide at least 10% of the predicted energy

7/16 requirements of those buildings, unless it can be demonstrated that there are overwhelming practicable reasons why this is not appropriate.

MAIN PLANNING CONSIDERATIONS

38. Issues relating to access, scale, appearance, layout and landscaping have been provided in indicative form only; it is only the principle of development that is being sought at this stage.. Therefore, on the basis that all matters of detailed design are reserved for future approval, the main planning considerations relate to the issue of the need for the expanded form of development proposed and its potential impact on the surrounding highway network and local residential amenity..

Indicative Access, Scale, Appearance, Layout and Landscaping parameters

39. The outline parameters that have accompanied the application indicate that the two schools will be accommodated within a new building to be situated on the front of the site, covering land currently occupied by the car park and the existing school building. The playing fields are to remain in their current location with no encroachment occurring from the new building. On the northeastern side of the site, two new Multi-Use Games Areas (MUGA’s) will be provided together with a senior-sized floodlit all-weather pitch. The schools will benefit from separate vehicular and pedestrian access points on Riddy Lane, which will provide some distinction between the two schools despite being on the same campus. It is understood that they will be physically separated although the main benefit of co-locating both schools on the same site is that some facilities can be shared.

40. In order to achieve appropriate floor areas without encroaching on existing playing field provision, the building containing facilities for Icknield High School will achieve a three-storey height in places, but it is envisaged that the areas of three-storey development can be accommodated in locations which will have the least impact on adjoining occupiers in terms of visual intrusion. Given the openness of the site, the principle of three-storey development is considered acceptable.

41. The application indicates that vast landscaping improvements will be carried out, which will aim to improve the quality and gradient of the playing fields and to enrich areas of grassland with a species mix to match the adjacent CWS. There is a commitment from the applicant to ensure that the development does not adversely affect the status of the CWS and on assessment of the proposals, there are no evident concerns that could not be overcome prior to the submission of detailed landscaping proposals. A surface water attenuation pond is also proposed to mitigate flood risk on the site, which will be securely enclosed. Whilst it is essential for the Council’s Ecology and Arboriculture Officers to be included

7/17 at any detailed stage of design in relation to these matters, no initial objections have been raised as a matter of principle in this regard.

Need for the Development

42. Luton has a growing pupil population, which requires a significant expansion of school places. Current pupil projections show that an additional 3,393 secondary-aged pupils will require a school place between 2008 and 2018, which represents a 28% growth in pupil numbers in that 10 year period. The predicted growth in pupil numbers is not however, spread evenly across the town. The area experiencing the highest level of growth is Central Luton, the area defined by the Saints, and Wards. There is an increase in the birth rate in the catchment areas of the primary schools at Denbigh, William Austin, Norton Road and Beechwood. Of those schools, Denbigh is a feeder school for Denbigh High; William Austin is a feeder school for Icknield High and Denbigh High; Norton Road is a feeder school for Icknield High; and Beechwood is a feeder school for Challney High. The Council’s Education Service has indicated that within these areas there are pupils on a waiting list for their catchment schools at Reception and Infant level and up to 75 primary school age children being transported to schools on the periphery of the borough because the Council cannot currently offer school places within 2 miles of their home addresses. Notwithstanding the problems experienced with primary school places, Denbigh and both Challney High Schools have had to refuse up to 71 catchment area pupils for transfer in September 2010 because they are oversubscribed with existing catchment pupils.

43. Through the BSF programme, the Council has been provided with funding to expand the existing secondary schools in order to improve existing facilities and create the required additional school places. The Council’s Education Service consider the expansion of the Icknield site to be a unique opportunity to provide an outstanding co-located, inclusive learning community, whilst ensuring that children will be able to access a school within walking distance of their homes. Within the BSF programme, both Challney High Schools and Denbigh High School are being expanded to their maximum extent and as far as existing site constraints allow. Both of the Challney High Schools will accommodate a combined 2,100 pupils with Denbigh accommodating 1,200 pupils but this is still insufficient to accommodate the growth in the pupil population within these specific areas of the town.

44. The nearest and most accessible school to Denbigh High School is Icknield High School, which is 1.29 miles away and within what is considered to be a suitable walking distance for pupils. Together with the proposed increase at the Icknield High School site, the combined expansion of the aforementioned schools will result in a 32% increase in pupil places compared to the total capacity increase across the borough (28%). A breakdown of existing and proposed expansion at school sites can be found in the table below:-

7/18 Existing Proposed Increase % School capacity capacity in places Increase Ashcroft 1170 1350 180 15% Barnfield South 900 1450 550 61% Barnfield West 915 1450 535 58% Cardinal Newman 1450 1800 350 24% Challney Boys 825 1050 225 27% Challney Girls 910 1050 140 15% Denbigh 1120 1200 80 7% Icknield 1455 2426 971 67% Lea Manor 1200 1208 8 1% Lealands 910 1050 140 15% 1215 1380 165 14% Stopsley 990 1358 368 37% Woodlands 145 210 65 45%

45. In addition to its accessibility with respect to the increasing population, a reason for such a vast increase to occur at the Icknield site could also be attributed to the fact that it is the largest school site in the borough and it has the physical capacity to accommodate the increased expansion, in contrast to the other high schools that act as feeder schools to the primary schools whose catchment areas are experiencing the highest level of birth rate growth. An expansion of other schools within the Borough to accommodate date the growth within Central Luton, would result in the provision of facilities that would not be as well related to the area they were intended to serve as the Icknield School site. Hence, the Icknield School site offers the optimum sustainability credentials to accommodate this growth.

46. A catchment review of all schools is planned to commence in the summer of 2010, which will require a widespread consultation, and the Education Service anticipates that the recommendations of this review are likely to include changes to the boundaries between Denbigh High School, Challney High School for Boys, Challney High School for Girls and Icknield High School.

Parking and Highway Implications

47. A large proportion of the representations received from local residents relate to traffic and parking issues and it has to be acknowledged that the general traffic and parking problems associated with the picking-up and dropping off of school children have an inevitable impact on neighbouring residential properties. In its consideration of proposals of this nature, the need to meet the demand for school places in the Borough, created by the long term population growth of the town, has to be balanced against the need to ensure that adequate safeguards are in place to mitigate the effects of the expansion of local schools

7/19 on their neighbours. In relation to school travel, the aims of both national and local planning and transport policy is to maximise accessibility by public transport, walking and cycling and widespread use of travel plans is seen as the primary means by which the delivery of sustainable transport objectives can be delivered. That is not to say that the Council is insensitive to the problems created by traffic generation around schools, hence the reason why travel plans also need to examine the mitigation that may be achieved through other transport measures such as the restriction of parking and access around schools.

48. The submitted Transport Assessment indicates that the majority of pupils (87%) walk to and from school whilst 10% of pupils travel by private car. Whilst in percentage terms the level of trips by private car seems low, the actual impact on the highway is quite evident on site. Riddy Lane and the surrounding highways suffer significant traffic and parking problems during the school’s peak opening and closing times. However, this is not solely attributed to the High School as a higher percentage of children attending the primary school at the other end of Riddy Lane (due to their age) may be more reliant on their parents using cars instead of walking.

49. The situation in Riddy Lane sees cars lining both sides of the highway and into Rosslyn Crescent and Broughton Avenue, resulting in difficult manoeuvring and traffic being brought to a standstill. Local residents have in the past become inconvenienced by the haphazard and inconsiderate parking of parents across driveways making access to their homes difficult during these periods. These issues were raised at pre-application stage through a public consultation event carried out by the applicants, and they were further reinforced at the recent public meeting with local residents and in the high-level of feedback received from the statutory public consultation carried out by the Council.

50. Following the public consultation with residents and various meetings with Development Control and Highway Officers at pre-application stage, the applicants are aware that the proposed additional pupil numbers will increase the problem and that in order for the development to be considered acceptable they will require a solution to alleviate the traffic concerns. The following design proposals have been identified in the outline application as a means of addressing the transport and access issues associated with the site:

• A dedicated pedestrian access from Riddy Lane to the main School entrance, which will separate vehicles and pedestrians. • Cycle parking provision in close proximity to the main school entrance. • A dedicated vehicular entrance for Icknield High School car parking accessed from Riddy Lane. • A dedicated pupil drop off for Icknield High School. • Increased staff and visitor car parking for Icknield and Woodlands School.

7/20 • A dedicated vehicular entrance for Woodlands Secondary (SEN) School car parking accessed from Riddy Lane. • A dedicated pupil drop off for Woodlands Secondary (SEN) School.

51. From a highways perspective, the separate vehicular and pedestrian entrances is favourable as it removes the conflict between the two and reduces the concerns over highway and pedestrian safety. The separate vehicular entrances from the school may act as a filter and improve the flow of staff traffic away from the school site. However the main problem is created by parent’s vehicle movements and this is likely to increase by more than 300 daily trips (150 return trips (as predicted in the Transport Assessment)). A mitigation measure suggested in the application is the provision of a 16-bay parent drop-off facility contained within the site boundaries which will allow parents to pull off the highway.

52. The success of such a method is mixed in the town with the lay-by facility at Foxdell Junior School working well but the drop-off facility at Infants School failing to have any success. This scenario will be on a much larger scale than either of these two schools and given the problems occurring with parking in the highway, the question is raised as to whether or not 16 spaces would be sufficient. The Highways Development Manager has commented in his response that the provision of a drop-off layby may have some mitigating impact but it does not offer a complete solution to the problem. A further comment indicates that even if there was an opportunity to provide a larger drop-off facility within the site, there would still be some increase in traffic and queue lengths.

53. It could also be argued that the provision of a larger drop-off facility runs counter to transport policy objectives insofar as it could be seen as encouraging car usage for a facility that should be maximising accessibility by other modes of transport. To this end, it is considered essential that the resolution to these problems should be based on more integrated transport methods, which reduce the reliance on the use of private cars. The site is located within a highly sustainable location. As well as being within walking distance to its catchment area pupils, there is a bus stop located on New Bedford Road approximately 200 metres from the site entrance. Furthermore Riddy Lane is located on National Cycle Route 6 and good cycle infrastructure is in place around the site, which should encourage this type of transport mode. The submitted Travel Plan indicates that only 2% of pupils currently cycle to school but that 16% would like to cycle. Up to 232 secure cycle spaces are to be provided on the redeveloped site, which is in accordance with Luton Local Plan requirements and the redevelopment would result in improved storage and shower facilities to cater for this type of transport mode. Any future Travel Plan submitted on this school site will have to be robust in terms of encouraging people away from car travel and it may be that any such plan for the Icknield site has to look into more radical and innovative sustainable transport methods than has previously been the case at other schools across the borough.

7/21 54. With respect to the car parking on site, Icknield High School is to accommodate 213 spaces (incl. 11 disabled bays) in a car park to the east of the proposed school buildings. Woodlands Secondary School is to accommodate 70 spaces (incl. 4 disabled bays) to the west of the school buildings. The total parking allocation proposed on the site is in accordance with the maximum standards of the Luton Local Plan.

Impact on the Adjoining Occupiers

55. Aside from the potential impact caused by the increased traffic to the site, there were two issues consistently raised in the representations received from local residents. Firstly, litter in the area appears to be a major problem, with residents claiming that this is caused by the presence of a takeaway unit in the nearby parade of shops serving Riddy Lane. An excessive level of litter (particularly chicken boxes from the said takeaway) is evident along Riddy Lane and whilst not exclusively related to pupils attending the High school, residents indicate that they do contribute to the problem. The increase in pupil numbers is considered to worsen the situation as it is perceived by the residents as having the potential to result in an increase in the level of littering being experienced.

56. The submitted Design & Access Statement indicates that appropriate provision will be made to address the management of litter within the school site through the school’s future recycling strategy, but the concern of the residents relates to the level of litter outside of the school boundaries. Providing additional litter bins within the highway would not offer a complete solution to the problem. Firstly, residents do not want additional bins outside their homes and secondly, there are existing bins along Riddy Lane and New Bedford Road, which are not used. It may therefore be more of a management issue for the school, requiring it to take a more proactive role in the local community to address this problem.

57. Secondly anti-social behaviour caused by large groups of pupils is said to intimidate some residents and has allegedly resulted in vandalism to residential properties in proximity of the school. This issue was raised at the recent public meeting with residents and whilst the Head Teacher sympathised with the complainants, there was no evidence of who the perpetrators were and that they actually attend the High School. Nevertheless the perceived problem of anti- social behaviour will be increased as a result of the additional pupil numbers attending the site. Again the school could be proactive in this instance to manage the dispersal of pupils from the school site as a means of limiting the impact on existing residents.

58. The site is subject to a complete redevelopment and so it is clear that there will be some impact on the environment surrounding the site. However as the detailed matters of the development are indicative only at this stage and can therefore be subject to change in the submission of any subsequent application

7/22 relating to detailed matters of design, the physical impact of the development on the adjoining occupiers of the site is not in a position to be assessed at present.

CONCLUSIONS

59. The planning issues to be considered are finely balanced. The limited capacity at schools is at a critical point, particularly in the centrally located wards of the town and the proposed expansion of Icknield High School provides some solution to this problem. It will provide much-needed school placements which are well related to the area they will serve. The issue of need is therefore established. However, the predicted increase in trips to the site will have an impact on the surrounding highways unless satisfactory safeguards are in place to mitigate this expansion through the adoption of integrated transport solutions consistent with national and local planning and transportation objectives. Hence, it is only on that basis, that the issue of need issue becomes an overriding and extenuating factor in support of the determination of this application.

LIST OF BACKGROUND PAPERS LOCAL GOVERNMENT ACT 1972, SECTION 100D

60. Luton Local Plan 2001-2011.

7/23