Former Highbury Vale Police Station, 211 Blackstock Road London N5 2LL Change of Use of Upper Ground Floor to Retail (Use Class A1) and the provision of a loading bay on Blackstock Road Planning Statement Former Highbury Vale Police Station, 211 Blackstock Road, London N5 2LL
Change of Use of Upper Ground Floor to Retail (Use Class A1) and the provision of a loading bay on Blackstock Road
Planning Statement
May 2018
Indigo
Aldermary House 10-15 Queen Street London EC4N 1TX
T 020 3848 2500 E [email protected] W indigoplanning.com
Former Highbury Vale Police Station, 211 Blackstock Road, London N5 2LL
Change of Use of Upper Ground Floor to Retail (Use Class A1) and the provision of a loading bay on Blackstock Road
Planning Statement
Contents Page
1. Introduction 1
2. Relevant context 2 Site and Surroundings 2 Relevant Planning History 2 Areas of agreement with the Council 3
3. Proposed development 4
4. Relevant Planning Policy Framework 5 The National Planning Policy Framework 5 Development Plan for LB of Islington 5 The London Plan 6 Local Plan Allocation 6
5. Planning Assessment 8 The Principle of Retail 8 Vitality and viability of Finsbury Park Town Centre 8 Job Creation 9 Energy and Sustainability 9 Noise 10 Heritage 10 Access, Servicing and Parking 10 Summary 12
6. Conclusions 14
Former Highbury Vale Police Station, 211 Blackstock Road, London N5 2LL
Change of Use of Upper Ground Floor to Retail (Use Class A1) and the provision of a loading bay on Blackstock Road
Planning Statement
Appendices
Appendix 1 Site Location Plan
Appendix 2 Officer’s report for application P2016/1249/S73
Page 2
2. Relevant context
Site and Surroundings
2.1. The site, 211 Blackstock Road, comprises an area of approximately 0.139ha. A plan showing the site is enclosed at Appendix 1. The existing building on the site was historically used as a police station by the Metropolitan Police (Highbury Vale Police Station) until 2012. The station was no longer required by the Metropolitan Police and the building was sold to Indra Services Ltd to be redeveloped for other uses The LB Islington has designated it as a locally listed building.
2.2. The building comprises a four-storey red brick building, with the fourth floor containing a mansard roof with projecting dormers. It is an L-shaped building fronting onto Blackstock Road with car parking to the rear.
2.3. The site is served by several bus routes and has excellent overall accessibility with a PTAL rating of 6a. The nearest underground station is Arsenal, which is on the Piccadilly line, approximately 600m to the west of the site. The nearest National Rail station is Finsbury Park, which is approximately 700m to the north west.
2.4. The site is located within Finsbury Park Town Centre. It is not located within or close to any conservation areas.
2.5. In terms of the surrounding area, as is expected of a town centre location, Blackstock Road primarily comprises retail or other commercial uses at ground floor level with residential or office development on upper floors. The wider surrounding area is dominated by residential development.
Relevant Planning History
2.6. Planning permission (Application ref. P2014/1294/FUL) was granted on 9 April 2015 for:
“Change of use from Sui Generis (police station) to part D2 (gym) use at upper ground floor level, four (4) flexible A1, A2, D1 and B1 use commercial units at lower ground and upper ground floor levels and eight (8) residential units at upper floors, alterations to the rear including ground floor extension, new stair core and lift shaft, new balconies and other alterations to roof and rear façade”.
2.7. This permission has been implemented and works are substantially completed at the site.
2.8. A Section 73 application (LPA Ref. P2016/1249/S73) to vary condition 2 of planning permission ref: P2014/1294/FUL to allow a change of use of the upper ground floor from Class D2 to Class A1 use and the provision of a loading bay on Blackstock Road was refused on 9 February 2017 for two reasons relating to:
• the scale of the retail unit and harm to the vitality, viability and vibrancy of the town centre, and; • an inadequate provision for the necessary off-street loading, unloading and servicing for the A1 food retail use.
2.9. An appeal was submitted to the Inspectorate on 12 May 2017 to be determined by Written Representations (Appeal Ref. APP/V5570/W/17/3175635). The Inspector considered that the scale of the retail unit was acceptable, that it would improve the shopping offer, encourage linked trips and therefore retain more expenditure within the centre. The
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Inspector dismissed concerns raised about the potential impact on Highbury Barn local centre and taking all of these factors into account, concluded that the proposal would not harm the vitality or viability of the Finsbury Park Town Centre. The appeal was, however, dismissed on 17 October 2017 as the scheme was considered to have a materially adverse effect on highway safety due to inadequate servicing arrangements. The revised proposals address these concerns.
Areas of agreement with the Council
2.10. Despite the reasons for refusal for the Section 73 application (LPA Ref. P2016/1249/S73) to vary Condition 2 of planning permission P2014/1294/FUL, which sought a change of use to the upper ground floor to A1 retail use, there were significant areas of agreement between the applicant and the Council. These issues, as identified from the Officers Report were as follows:
• The site is located within a Town Centre as allocated within Islington’s Development Management Policies (paragraph 6.2). • The site is also allocated within Islington’s Site Allocation document, allocation FP5 specifies the importance commercial and employment generating uses which contribute to the vitality of the town centre, with active uses encouraged at ground floor level (paragraph 6.3). • It is not uncommon to have A1 retail units in the Town Centre (paragraph 6.5). • Refusal of the application on the grounds of noise and disturbance is not warranted (paragraph 6.13). • The proposal is not considered to harm the character of the locally listed building (paragraph 6.15). • The site has very limited space towards the rear for car movements and deliveries and, therefore, off street servicing opportunities cannot be provided in relation to the proposed use (paragraph 6.18). • The site is constrained and there are no loading bays within reasonable distance of the site (paragraph 6.19). • A1 (retail) use is welcomed in the town centre (paragraph 6.24). • The principle of an A1 unit in this location is considered acceptable and would accord with Town Centre uses (paragraph 7.1).
2.11. A copy of the Officers delegated report for application P2016/1249/S73 is at Appendix 2.
2.12. It is clear that the main issue relating to the proposed change of use is the servicing arrangements. SSL have had discussions with Council officers and reached an agreed solution. Section 3 provides more details on the proposals and the concepts and benefits of a Sainsburys Local store.
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3. Proposed development
3.1. Planning permission P2014/1294/FUL was granted in April 2015 for the change of use of the former Sui Generis Highbury Vale Police Station to a part D2 (gym) use at upper ground floor level, four flexible A1, A2, D1 & B1 commercial units at lower and upper ground floor levels and eight residential units at upper floors. This consent has largely been implemented, therefore, the previous Sui Generis use has ceased. The upper ground floor D2 use has, however, not been implemented, as such, it has a ‘nil use’.
3.2. Planning permission is therefore sought for a change of use of the upper ground floor from a nil use to retail (Use Class A1) and the provision of a loading bay on Blackstock Road. The change of use of the upper ground floor to A1 would allow it to be occupied by SSL as a Sainsbury’s ‘Local’ convenience store.
3.3. The proposed convenience store will have a gross floor area of 382sqm and a net sales area of 235sqm.
3.4. The rear of the building will accommodate a refuse storage area and mechanical plant equipment for the store. Additional plant would be accommodated within the light well at the front of the building.
3.5. Separate applications will be submitted to the London Borough of Islington in respect of the proposed plant equipment, the shop front and advertisements in due course.
3.6. In terms of store servicing, a 24m servicing bay is proposed on Blackstock Road. This will be recessed into the public footway by 0.49-metres in order to retain the existing highway width. There will be up to six deliveries per day to the retail unit between the hours of 07:00 to 10:00 and 16:00 and 19:00. The servicing bay will only be in operation during these hours and outside of these periods it will be available for public parking. Servicing matters are addressed in more detail within the Statement prepared by Vectos and in Section 5 of this Statement.
The Concept and Benefits of a Sainsbury’s Local Store
3.7. The proposed Sainsbury’s Local store is intended to function as a small, local convenience outlet meeting the day-to-day needs of the local walk-in catchment population. It will provide a range (limited in number) of groceries and will include ready meals, sandwiches and snacks, wines and spirits and a range of fresh fruit and vegetables. In addition, it will sell a small amount of newspapers, magazines, flowers and the type and range of associated goods. Customers will be able to do a top-up shop and get quality products without the need to go to the bigger stores in the area. Customer feedback from these stores has helped to inform Sainsbury’s decision to locate a Local in this location.
3.8. The proposed store will result in a number of economic and social benefits including investment in the town centre and the provision local employment opportunities.
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4. Relevant Planning Policy Framework
4.1. The following section sets out the relevant planning policy background with regard to the proposed development.
The National Planning Policy Framework
4.2. The National Planning Policy Framework (NPPF) sets out the Government’s position with regard to national planning policy.
4.3. Paragraph 6 of the NPPF confirms that the purpose of the planning system is to contribute to the achievement of sustainable development.
4.4. Paragraph 14 states:
“At the heart of the National Planning Policy Framework is a presumption in favour of sustainable development, which should be seen as a golden thread running through both plan-making and decision-taking.”
4.5. For decision taking, this means approving development proposals that accord with the development plan without delay.
4.6. The NPPF also sets out a number of core planning principles which underpin plan making and decision taking. This includes an emphasis that planning should proactively drive and support sustainable economic development. For example, paragraph 19 states that:
“Planning should operate to encourage and not act as an impediment to sustainable growth. Therefore, significant weight should be placed on the need to support economic growth through the planning system.”
4.7. In terms of retail matters, the NPPF seeks to ensure the continued vitality of town centres, by promoting competitive town centre environments through the ‘town centre first approach’. Council’s are encouraged to recognise town centres as the heart of their communities and pursue policies to support their viability and vitality.
4.8. Furthermore, paragraph 23 states that competitive town centres should be promoted which provide customer choice and a diverse retail offer.
4.9. The NPPF highlights that transport policies have an important role to play in facilitating sustainable development.
Development Plan for LB of Islington
4.10. The Development Plan for the LB of Islington consists of the following documents:
• London Plan (March 2016) • Islington’s Core Strategy (February 2011) • Islington’s Local Plan: Development Management Policies (June 2013) • Islington’s Local Plan: Site Allocations (June 2013) • Finsbury Local Plan Area Action Plan for Bunhill & Clerkenwell (June 2013)
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The London Plan
4.11. Finsbury Park is identified as being a District Centre in the London Plan’s town centre network with District Centres defined as providing convenience goods and services for more local communities and accessible by public transport, walking and cycling.
4.12. Providing the basis for the continued growth and economic development of all parts of London is the key theme of the London Plan. The Mayor supports bringing forward capacity for retail development in town centres and a proactive approach to improving the quality of retail floorspace within town centres.
4.13. Policy 4.7 of the London Plan relates to retail and town centre development. Part B of this policy addresses decision-making and states that the following principles should be applied:
• The scale of retail, commercial, culture and leisure development should be related to the size, role and function of a town centre and its catchment.
• Retail, commercial, culture and leisure development should be focused on sites within town centres, or if no in-centre sites are available, on sites on the edges of centres that are, or can be, well integrated with the existing centre and public transport.
• Proposals for new, or extensions to existing, edge or out of centre development will be subject to an assessment of impact.
4.14. Policy 4.8 seeks to support a successful and diverse retail sector which promotes sustainable access to the goods and services Londoners need, especially in town centres.
4.15. The London Plan is clear that a vibrant, diverse retail sector is essential to London’s success.
Local Plan Allocation
4.16. The site is subject to a specific site allocation within LB Islington’s Development Plan. Site FP5 of the Site Allocations DPD (2013) identifies that the site is allocated for:
“Refurbishment of existing building and sensitive development on the remainder of site to provide mixed-use development. The site is at the edge of the proposed town centre boundary for Finsbury Park, therefore commercial and employment generating uses which contribute to the vitality of the town centre are important. Conventional residential accommodation on the upper floors and to the rear of the site is likely to be acceptable depending on the design of the scheme.”
4.17. Furthermore, the allocation states that:
“Active uses are encouraged at the ground floor level, in keeping with the streetscene on this stretch of Blackstock Road.”
4.18. The Council has identified only two Local Plan policies, Policies DM 4.4 (Promoting Islington’s Town Centres) and DM 8.6 (Delivery and servicing for new developments) of the Development Management Policies DPD, as being relevant to the reasons for refusal of planning permission P2016/1249/S73. The subsequent appeal (APP/V5570/W/17/3175635) against this refusal concluded that the proposed scheme accords with DMP Policy DM4.4. Section 5 of this Statement demonstrates that the proposal complies with policy at local and national level and that the servicing solution complies with DMP policy DM 8.6.
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Finsbury Park Town Centre Supplementary Planning Document
4.19. As identified at paragraph 2.4, the site is located within the defined boundary of Finsbury Park Town Centre.
4.20. Islington, Hackney and Haringey Councils adopted a Supplementary Planning Document (SPD) in June 2014 with the intention of guiding and informing the continuing regeneration of the area. The document seeks to ensure that development proposals that come forward do so within an agreed framework, and that small-scale improvements are linked to an overarching area strategy.
4.21. Relevant elements of the document to this application are as follows (our emphasis added):
• Finsbury Park’s Town Centre is in urgent need of regeneration to reduce poverty and social inequality.
• Paragraph 1.4.2 states that a key objective of the Councils, through the SPD, is to enhance the vitality of the Town Centre as a retail centre;
• Paragraph 1.4.3 of the SPD states that the Councils are seeking to strengthen the existing retail offer in the town centre, including on Fonthill Road, Stroud Green Road, Blackstock Road and Seven Sisters Road, to include the strengthening of the specialist retail functions, diversification of the retail offer, promotion of creative industries and small and medium-sized enterprises (SMEs), and the improvement of shop fronts and the surrounding public realm.
• Paragraph 1.4.3 further seeks to promote mixed use development and employment and training opportunities around Finsbury Park Station, including: housing, employment (office, light industrial, storage and distribution, and affordable space for SMEs), retail, arts and leisure. This development and opportunities will be focused at a number of key sites, including allocated sites as set out in Section 3.6 and in detail in Appendix 1 Section A1.1.9. The detailed list of allocated sites includes the application site.
• Paragraph 4.2.2 of the document notes that proposals for development on Seven Sisters Road, Fonthill Road, Stroud Green Road and Blackstock Road should positively contribute to the intensification of retail uses in these areas.
4.22. It is, therefore, clear that the Council is seeking to promote the regeneration of the area to reduce deprivation and support the town centre’s economic, social and physical development. Within this context, it is also very clear that retail uses within Finsbury Park Town Centre are appropriate and should be promoted. The proposed change of use to retail complies with this.
4.23. This should hold significant weight in the determination of the application proposals.
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5. Planning Assessment
5.1. This section of the Statement identifies and addresses the planning issues that arise as a result of the proposed change of use and servicing solution. These include:
• The Principle of Retail; • The Vitality and viability of Finsbury Park Town Centre; • Job creation; • Energy and Sustainability; • Noise; • Heritage; and • Access, servicing and parking.
The Principle of Retail
5.2. The site is located within Finsbury Park Town Centre. Policy CS2 of Islington’s Core Strategy identifies Blackstock Road as one of the main retail frontages within Finsbury Park Town Centre.
5.3. The application site is also allocated under Site FP5 within Islington’s Site Allocations document to provide mixed-use development. The location of the site at the edge of the Finsbury Park Town Centre boundary means that the Council consider “commercial and employment generating uses which contribute to the vitality of the town centre” as an important part of the allocation. Furthermore, active uses are encouraged at the ground floor level, in keeping with the street scene on this stretch of Blackstock Road. In short, the policy allocation confirms that the site is, in principle, suitable for commercial uses. This includes retail uses. In general, it is accepted that an A1 retail use such as that proposed would deliver an active frontage. In this respect, there is no doubt but that the scheme achieves the aims of this site allocation.
5.4. Policy DM 4.4 of the Development Management Policies (DMP) recommends applications for more than 80sqm of floorspace for uses within the A Use Classes to be located within designated Town Centres. Therefore, Finsbury Park Town Centre presents the most appropriate location for the proposed 382sqm retail unit.
5.5. This conclusion was confirmed in the assessment of application P2016/1249/S73. Paragraph 7.1 of the officer’s report for application P2016/1249/S73 states that “the principle of an A1 use in this location is considered to be acceptable and would accord with Town Centre uses”. Furthermore, in assessing compliance with Policy DM4.4, the Inspector for appeal APP/V5570/W/17/3175635 notes that the Council does not dispute that the proposed retail unit would perform an appropriate function within a town centre and confirms that the proposal would accord with Policy DM4.4.
5.6. As such, the principle of a Class A1 retail unit in this location would fully accord with Core Strategy Policy CS2, Site Allocation FP2 and DMP Policy DM 4.4.
Vitality and viability of Finsbury Park Town Centre
5.7. Policy DM4.4 Part C of the DMP requires any proposal in Town Centres to be appropriate to the scale, character and function of the centre and contribute positively to vitality and viability of the centre. In determining application P2016/1249/S73, the Council considered that a Class A1 retail unit would be contrary to Policy DM4.4 Part C and this was cited as one of
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the two reasons for refusal by the Council. As such, this was a key part of the Inspectors assessment of appeal APP/V5570/W/17/3175635.
5.8. The Inspector considered that although the proposed retail unit would be larger than the average retail units in Finsbury Park Town Centre, there are examples of other larger existing retail units within the Town Centre boundary and more critically the Inspector confirmed that “as Finsbury Park Town Centre is a District Centre, a larger convenience store format would be appropriate to the scale of the centre”.
5.9. Furthermore, the appeal decision recognised that the Retail Impact Statement provided with application P2016/1249/S73 demonstrated that the site falls within an area with only 36% A1 uses, which is one of the lowest of all the identified main retail streets within the Town Centre. The Inspector highlighted that the proposed retail unit will improve the shopping offer and may encourage linked trips and thus assist in retaining more expenditure within the centre. Overall, the Inspector concluded that:
“the proposal would not harm the vitality or viability of the Finsbury Park Town Centre and would accord with DMP Policy DM4.4.”
5.10. This appeal decision clearly demonstrates that the proposed A1 retail unit is of an appropriate scale, character and function to Finsbury Park Town Centre and there is no conflict with Policy DM 4.4 of the DMP.
Job Creation
5.11. Once opened, the store will result in increased employment opportunities for the local community, with between 25-30 net new (in-store) jobs created in the short term in full and part time positions. Sainsbury's employ the majority of the new staff for their stores from the local area. In Sainsbury’s experience, around 90% of colleagues generally live within 1 mile of the store in which they work. As such, the scheme will result in increased employment opportunities for the local community. Employees will benefit from the quality of Sainsbury's range of training and skills qualification programmes offered to all employees.
Energy and Sustainability
5.12. Sainsbury’s has a corporate commitment to reducing their impact on the environment. New convenience stores use 50% less energy from the grid than 2005/2006 benchmark figure. This is achieved through various means, including a building management system which ensures all non-essential equipment turns off automatically. The refrigeration cabinets are also fitted with night blinds which help reduce energy consumption and weir screens are included on all chiller cabinets. This helps to retain cold air and in turn helps keep the aisles warmer. Store Managers also have access to an online portal that displays energy profiles, so that energy consumption can be managed, if necessary.
5.13. Sainsbury’s also proactively look for ways to reduce the amount of water used in convenience stores and the amount of waste generated. Sainsbury’s work to the waste hierarchy of ‘Reduce, Reuse and Recycle’ and focus particularly on food and packaging waste. Good stock control and accurate sales forecasting is key to reducing food waste, surplus food is also donated to charities and any food waste that cannot be donated is then sent to an anaerobic digester (which generates biogas). Surplus bread waste is separated and is recycled as animal feed. Packaging materials such as cardboard and plastic are recycled where possible. What waste remains is recycled in dry mixed recyclable. This waste is then collected and taken to a local materials reclaim facility, where all remaining good product is recovered and recycled. The remaining contaminated waste is shredded, baled and exported as a refuse derived fuel.
5.14. The proposal would, therefore, comply with the development principles set out in Policy CS 10 of the Core Strategy and Policy DM 7.2 of the DMP.
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Noise
5.15. In assessing the previous S.73 application (LPA Ref. P2016/1249/S73), the Pollution and Noise Officer considered that a number of standard conditions relating to sound insultation, details of plant, hours of operations of the condenser units and delivery’s and servicing can be applied to the permission to control the potential noise impact on the surrounding residential units.
5.16. The officers report for the S.73 application therefore concluded that any potential issues regarding noise and disturbance, could be mitigated by way of conditions and would therefore not warrant refusal of the application for this reason.
Heritage
5.17. The application site is a Locally Listed Building. The proposed scheme does not include any external alterations to the building. As such, the officer previously confirmed (in paragraph 6.15 of the officer’s report for P2016/1249/S7) that the proposal is not considered to harm the character of the Locally Listed Building. Therefore, the proposed scheme is in accordance with Policy DM2.3.
5.18. Separate planning applications will be submitted at a later date for the installation of plant equipment, a new shop front and advertisements for the store. This approach has previously been noted and accepted by the Council.
Access, Servicing and Parking
5.19. The application scheme proposes 24-metre on-street loading and servicing bay for the proposed retail unit. This will be recessed into the public footway by 0.49-metres.
5.20. At present, there is an 85-metre on-street parking bay situated between 195 and 215 Blackstock Road, with capacity for up to 14 vehicles. Two other parking bays of a similar length are located opposite, and to the south of, the site.
5.21. The site is within a Controlled Parking Zone (CPZ) which is in operation between 08:30 to 18:30 on Monday to Saturday. The Emirates Stadium is nearby and these parking controls are extended Mondays to Fridays on match days to 20:30.
5.22. Policy DM 8.6 of the DMP sets out the requirements for delivery and servicing for new developments and highlights a preference for the provision to be provided off-street. However, the policy goes on to state that where on-street servicing is proposed, details must be submitted to demonstrate the need for on-street provision and that off-street provision is not practical, and to show that arrangements will be safe and will not cause a traffic obstruction or nuisance.
5.23. In considering the previous application (P2016/1249/S73), the Council acknowledged (in paragraph 6.18 of the officer’s report) that the site has very limited spaces towards the rear of the site and therefore off-street servicing opportunities could not be provided for the retail store. As a result, an on-street bay was proposed.
Highway Safety
5.24. In determining application P2016/1249/S7, the Council concluded that the proposed development failed to make adequate provision for the necessary off-street loading, unloading and servicing for the A1 food retail use. It was therefore considered that the proposal would lead to congestion and obstruction on the highway to the detriment of local amenity and would have a detrimental impact on the safe and free flow of traffic and pedestrian’s, contrary to Policy DM 8.6.
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5.25. A particular concern raised by Officers and noted by the Inspector in the previous S.73 application was that the proposed loading bay would be unsafe as it would compromise the running lanes widths of Blackstock Road. It was considered that this could limit the ability of bus services to operate along this route and provide an issue for other commercial and larger emergency vehicles using the road.
5.26. This feedback has been taken into consideration and following extensive engagement with the Council, it is now proposed for the loading bay to be recessed into the pavement by 0.49m to enable the width of the bay in the highway to remain the same as the existing parking bay (2.21m). This means the highway width remains as 6.4m, which is sufficient room for two buses, or other large vehicles, to pass each other safely. This overcomes the highway safety concerns raised by Officers and the Appeal Inspector in relation to the proposals dismissed at Appeal. The principle of this approach has been agreed with the Council
Parking
5.27. In addition, Officers considered that the use of the on-street parking bays for servicing the site would reduce the current flexibility of the parking provision due to the frequency and size of deliveries for a store of this nature.
5.28. To rectify these concerns the proposed servicing bay will only be in operation between the hours of 07:00 to 10:00 and 16:00 and 19:00 each day (standard TFL loading times). This will allow the bay to be used, as it is currently, as 4 parking bays during the remainder of the day.
5.29. In regard to parking capacity the Inspector noted that:
“The parking survey carried out for the appellant found that there was spare capacity for at least 6 vehicles within this bay during the survey period, and that a similar number of spaces were coned off or taken up with skips during construction work. Nonetheless, the survey was carried out when the building was vacant, and no assessment has been provided of the likely parking demand associated with the proposed retail use.”
5.30. In response to this, Vectos has reviewed the anticipated parking demand associated with the proposed Sainsbury’s Local convenience store in the context of the existing parking demand within the vicinity of 211 Blackstock Road. The 85m metre parking bay outside 211 Blackstock Road has a capacity for 14 typical vehicles and the surrounding parking bays have a capacity for around a further 45 vehicles. Therefore, there is a total indicative parking capacity of at least 59 vehicles.
5 Day Survey Results 85m bay outside the site Parking bays in remainder of surveyed area
Approximate capacity 14 vehicles 45 vehicles
Peak average occupation 9 vehicles 29 vehicles
Average occupation 6 vehicles 27 vehicles
Average available bays 6 vehicles 16 vehicles
5.31. The survey demonstrates that there was spare capacity at all times within the continuous parking bay adjacent to the site (noting that 5 bays were unavailable to the public on weekdays and used only by construction vehicles). There was also ample parking availability in other parking bays on Blackstock Road and other local roads close to the site.
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5.32. Using data obtained from the existing Sainsbury’s Local convenience store at 29-31 Blackstock Road, Vectos have calculated that the maximum parking demand for the proposed store is likely to be 6 cars in any one hour. The Transport Statement sets out that this is a robust estimate formed from the worst-case assumption for parking demand that combines those that drive for the primary purpose of visiting the store with those that are passing.
5.33. This demonstrates that this additional demand could be comfortably accommodated in the available parking bays even when removing 4 existing spaces to allow for the proposed loading bay.
5.34. Furthermore, the site is within an accessible location with good public transport links and as the store would have a local catchment, cycling and walking would be practical for many customers and staff. The proposed development will provide six cycle parking spaces in accordance with the local policy requirement to provide a minimum of one cycle parking space per 60sqm of Class A1 floorspace. These spaces will be located at the site frontage on Blackstock Road. This will provide an alternative method of travel to the local store, reducing reliance on the car.
Safety
5.35. The Inspector raised concerns that if vehicles were parked within the servicing bay during delivery periods it was likely that large vehicles waiting in the road would cause an obstruction on the highway.
5.36. The removal of parking rights in the denoted delivery bay between the designated hours will ensure there is unconstrained access to the bay for safe deliveries and servicing for the store in the designated delivery periods.
5.37. Furthermore, the Transport Statement makes it clear that in the in the unlikely event that the servicing location is already occupied, the Sainsbury’s delivery vehicle will be required to find a suitable and legal stopping location elsewhere, only returning to the store when instructed. This is approach is common practice across London and the UK.
5.38. In terms of pedestrian safety, the Inspector considered that there would not be an unacceptable risk to pedestrians if the appeal were allowed.
Trees
5.1. In order to accommodate the inset of the service bay, two street trees will need to be removed. A Tree Survey has been undertaken by Treescene to assess the quality and arboricultural value of these two trees, as well as a further tree which does not require removal as part of the proposed development.
5.2. The survey found that two of the trees are Category U and are not suitable for retention due to poor health. The third tree is a C category tree, meaning it is of low quality and has very limited arboricultural or biodiversity worth.
5.3. Therefore, of the two trees which require removal, one is in such a condition that it cannot realistically be retained and the second is of low quality. As such, these trees should not provide a barrier to development and the proposed scheme is in accordance with Policy DM6.5 of the DPD.
Summary
5.4. We conclude that the proposed change of use and the provision of a loading bay on Blackstock Road accords with the planning policy and local and national level because:
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• A change of use to retail is supported and encouraged in the town centre;
• The proposed retail use will not harm the vitality and viability of Finsbury Park town centre;
• Between 25-30 new jobs will be created strengthening the local economy;
• The environmental impact of the proposal will be minimised through careful design and good practise; and
• A safe and agreed servicing solution will be provided which will avoid traffic obstruction or nuisance.
Former Highbury Vale Police Station, 211 Blackstock Road, London - Revised scheme rpt.001..24560048 Indigo on behalf of Sainsbury's Supermarkets Ltd Page 14
6. Conclusions
6.1. This application seeks a change of use of the upper ground floor of the former Highbury Vale Police Station to an A1 retail use together with the provision of a loading bay on Blackstock Road. The change of use of the upper ground floor to A1 would allow it to be occupied by SSL as a Sainsbury’s ‘Local’ convenience store. The proposed convenience store will have a gross floor area of 382sqm and a net sales area of 235sqm.
6.2. Our conclusion in respect of this application can be summarised as follows:
• The principle of retail use in this location is supported in planning terms;
• The prosed retail unit would not harm the vitality or viability of the Finsbury Park Town Centre in full accordance with DMP Policy DM4.4. This conclusion was confirmed by the Planning Inspector in appeal APP/V5570/W/17/3175635;
• The NPPF is clear in its support for economic growth and development and the scheme not only provides an opportunity to make the best use of a site which has been underutilised or vacant for a number of years.
• The proposals will also secure 25-30 FTE jobs with the majority of staff being recruited from the local area. Sainsbury’s also offer a range of training and skills qualification programmes to all employees;
• The revised delivery and servicing solution is acceptable and has been agreed upon by way of meetings with highways and public realms; and
• The proposal would not cause any adverse impacts on highway safety or congestion and has been agreed upon by way of meetings with highways and public realms;
6.3. Overall, the one outstanding issue following the Council’s consideration and subsequent appeal of application P2016/1249/S7 was whether the development could make adequate provision for loading and unloading, with regards to highway safety. This application has reconfirmed that all other policy considerations are satisfied and has demonstrated that the servicing and highway safety concerns have been addressed and an agreed solution provided. Consequently, the application for the change of use of the upper ground floor of the application site to an A1 use, is in full accordance with LB Islington Development Plan and there remains no outstanding issues preventing the grant of consent. Therefore, this application should be supported.
Former Highbury Vale Police Station, 211 Blackstock Road, London - Revised scheme rpt.001..24560048 Indigo on behalf of Sainsbury's Supermarkets Ltd Appendix 1 VALE ROW Notes: Contractors shall be responsible for the checking of all stated
dimensions, with any anomalies being identified to the originator 5 prior to any construction or fabrication works commencing.
N
BLACKSTOCK ROAD
5a 53
Heritage 199
Heights 8 24 172
CANNING ROAD 172a
174
174a 209 41
176 Elizabeth House
14
MAT 178
UP
3 1
ELIZABETH HOUSE 2
A 22.05.18 Red Line amended
-- 21.05.18 First issue
HURLOCK STREET Rev. Date Description
213
2 27 architects project managers cost consultants
215 2nd Floor 13 swan Yard PH Islington London
1 to 15 to 1 N1 1SD Blackstock tel: 020 7440 8640 Canning Status House PLANNING House Project Title SAINSBURY'S LOCAL 211 BLACKSTOCK ROAD
ISLINGTON, LONDON, N5 2LL 217
Drawing Title
196 LOCATION PLAN
LOCATION PLAN 13 Project Number Drawing Number Revision 1:500 0 10 20 30 40 50m P-117356 P-117356-100 A
Drawn Checked Scale Date JN VA As indicated 21.05.18 @A3 SCALE 1:500 JLA Architects is a trading name of Company Ref: OC315606 registered in England and Wales Registered Office: Euro House, 1394 High Road, London, N20 9YZ. Any reproduction of all or any part of this drawing without formal consent of the copyright owner, Company Ref: OC315606, is prohibited. The content of this drawing is the property of the Company Ref OC315606. Appendix 2
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