PLANNING APPLICATIONS BOARD 25 FEBRUARY 2021

ERECT 34 DWELLING HOUSES WITH NEW ACCESS AND SERVICES AT ,

Report by Head of Economic Development and Planning

PURPOSE

1.1 Since the planning application has received in excess of 6 representations, the application cannot be determined under delegation and is presented for decision.

EXECUTIVE SUMMARY

2.1 20/00424/PPD – Planning application for demolition of two existing buildings. Erect 34no. dwelling houses including service connections, new access and landscaping. install air source heat pumps on land adjacent to Airport, Melbost, Point, Isle of Lewis

2.2 This is an application for planning permission to erect 34no. houses with air source heat pumps and allied construction of roads, footpaths and car parking, landscaping, public open space, drainage and service connections on a brownfield site, formerly an RAF base station. Located to the west of the - road, it sits on the boundary of the Stornoway Airport site, beyond the edge of the main settlement of Stornoway.

2.3 Representations were received from 11 parties raising a wide range of similar issues, including, the setting of a precedent for future similar developments; a lack of public/community consultation; the site not one identified for housing in the Local Development Plan (LDP); impact on the character of the settlement; and concerns over road safety. There have been no consultee objections to the application.

2.4 The Comhairle is required to determine planning applications in accordance with the provisions of its Development Plan unless material planning considerations indicate otherwise. The assessment has concluded that the development of the site is considered to comply with the key strategic development policies of the Local Development Plan 2018, Policy DS1: Development Strategy - Rural Settlements and Policy PD1: Placemaking and Design, as well as the other relevant development policies relating to road safety and off-street parking, drainage and housing. The revised proposals are considered to be consistent with the advice on location and design of housing as set out in the Outer Hebrides Design Guide. Material considerations, including planning matters raised in representation, have been given due consideration and none individually or collectively indicate that a decision be taken other than in accordance with the Development Plan.

RECOMMENDATION

3.1 It is recommended that planning application be APPROVED subject to the conditions set out in Appendix 1 to the Report.

Contact Officer: Morag Ferguson, Planning Manager (Development Management) Telephone: 01870 604990 Email: [email protected] Helen MacDonald, Planning Officer Telephone: 01851 822690 Email: [email protected] Appendix 1: Schedule of Conditions Appendix 2: Selection of Plans Appendix 3: Consultation Responses Appendix 4: Representations Background Papers: None IMPLICATIONS

4.1 The following implications are applicable in terms of the Report.

Resource Implications Implications/None Financial None Legal None Staffing None Assets and Property None Strategic Implications Implications/None Risk None Equalities None Corporate Strategy None Environmental Impact None Consultation None

SITE CONTEXT AND PROPOSAL

Site Description

5.1 The application site is located to the west of the Branahuie-Stornoway Airport road, sharing a boundary with the Stornoway Airport site. It is located beyond the edge of the main settlement of Stornoway within the rural settlement of Branahuie. The site is brownfield comprising the former and now semi derelict RAF base. There are three derelict buildings on site, all of which are to be demolished as part of the development proposals. It is bounded by the main public road to the south; open ground and the airfield to the north and west; and the Branahuie village and road to the east.

5.2 The site levels fall away from the Branahuie road edge in a north-east to south-west direction across the site. The difference in site levels is illustrated by the finished floor levels (FFL) of the buildings: houses no.31-32 will have an FFL of 10.47m while house no.12 will have an FFL of 5.7m.

5.3 The area of site subject to the development of housing, roads and infrastructure, plus garden areas, recreation spaces and a surface water management basin is just under 2.3ha but a wider site area of just over 4ha hectares in size is identified as the subject of the application. The additional area comprises ground to the west of that proposed for the housing development, to accommodate any requirements for deposit of overburden or surface water management and accommodate a service access. The landscape of the site and surroundings is classed as Gently Sloping Croftland Landscape Character type. The site is not within any area designated for natural or built heritage. The site is within an aviation safeguarding zone.

Description of Development

5.4 The application seeks detailed planning permission to erect 34 semi-detached houses with air source heat pumps, as well as associated roads, foot paths, car parking, landscaping, public open space and drainage provision. The site will be served by an improved vehicular access taken from the unclassified but adopted road which serves Branahuie and Stornoway Airport.

5.5 This site will be serviced by one main vehicular access from the Branahuie-Stornoway Airport road. An additional haul road is proposed from the A866 to serve the development during the construction period. A pedestrian route will be provided linking the development site with the Branahuie road and footpath to the east, and with the footpath to the south of the site, which runs to Stornoway. A bus layby is also being provided to the north of the access to the village road, which will allow for passengers to be dropped off or collected on the bus route through the village. Two small informal footpaths run through the southern recreational space to link in with the footpath which runs from the south of the development site back towards Stornoway, and to the towards the beginning of the Braighe road.

5.6 The 34 houses will comprise of 17 semi-detached blocks, with a number of house designs, all single storey in height, varying in size from one to four bedrooms. Twelve of the houses are adapted in design to ensure they meet enhanced accessibility requirements. The houses will have a mixture of the walling materials: with 3no. drydash renders to the main walls and composite weatherboard cladding to porches. The roof material will be flat profile grey tiles with matching-coloured ridges. The composite weatherboard cladding used across the range of housing units will be burnt-red; white; blue-grey; and slate-grey. Windows, doors, fascias and soffits are uniform to each unit and are either dark grey or white.

5.7 The surface water generated from the site will be treated by a SuDS system in the south-west portion of the site. The SuDS basin is integrated within the proposed informal public open space and recreation area, which includes footpaths and planting.

LEGISLATIVE CONTEXT

6.1 Sections 25 and 37(2) of the Town and Country Planning () Act 1997 (the Act) require that planning decisions be made in accordance with the Development Plan unless material considerations indicate otherwise.

ADMINISTRATIVE PROCESSES

7.1 The application was registered as valid on 21 October 2020.

7.2 The development is classed as a Local Development under The Town and Country Planning (Hierarchy of Development) (Scotland) Regulations 2009. Circular 5: 2009 relating to the Regulations details that residential development consisting of 50 or more dwellings, or where the area of the site exceeds 2 hectares, is to be classed as a Major Development where the 2ha comprises land which is subject to the construction of buildings, structures or erections. This therefore excludes garden ground, landscaping and other green infrastructure from the calculation. The physical development site for this proposal – consisting of the development of housing, roads and hardstanding – sits at under 1.8ha.

7.3 An Environmental Screening Opinion for the current proposal plus an additional area of land with total capacity of up to 94 houses concluded that the development was not EIA development and therefore an Environmental Impact Assessment Report is not required.

7.4 The planning application was advertised for public comment in the public notices section of the Stornoway Gazette in the publications dated 29 October 2020, as required by regulations.

7.5 Notifiable neighbours were sent notice of the development on 22 October 2020. These neighbours and persons who had made representations were re-notified on 03 December 2020, subsequent to the submission of additional plans. Amended plans relating to house design improvements and the addition of a bus layby were submitted in February 2021, but no renotification was conducted as the changes did not relate to matters raised in representation.

PLANNING HISTORY

8.1 An in-principle planning application for a mixture of residential accommodation and serviced plots for housing was approved in October 2008 (application ref. 07/00669/OUT). This proposal covered a similar area of ground, with an indicative number of around 50 housing units.

8.2 A negative EIA screening opinion was issued on 22 December 2020.

8.3 The site is not currently safeguarded for housing in the current LDP (adopted 2018). Part of the site was previously included as a proposal site (Prop H1e) in the LDP (adopted 2012) and as a potential site in the Comhairle’s Strategic Housing Investment Plan (SHIP). While included in the Comhairle Outer Hebrides Housing Land Audit (HLA) (April 2018), it no longer identified on the SHIP.

RESPONSES TO CONSULTATION

9.1 The full terms of the responses to statutory and other consultations by the Planning Authority are set out in Appendix 3. The following is a summary of the advice of consultees.

Comhairle Building Standards

9.2 The SUDS system should be designed following the recommendations of the CIRIA document C753 with the detention basin having design capacity for all surface water discharge from the house roofs, car parking areas and the new roads layout. The gradient of the car parking space at any house should not be greater than 1 in 20.

Comhairle Roads, Bridges and Streetlighting

9.3 Comments. • The proposed [haul road] access on to the A866 enters the road in advance of the 40mph speed limit. If this access is to be used on a permanent basis the speed restricted area would require to be extended to include the new access. • This [haul road] access should have a visibility splay of 5m x 120m with minimum radii of 9m. Although this access is to be used initially for site works the first 3m should be surfaced with bitmac and the roadside drain crossed with a suitable culvert • The access on to the Branahuie village road should have a visibility splay of 3.5 x 90m with minimum radii of 8m. The footpath should continue beyond the bellmouth of the junction to allow safe crossing points. If the access crosses a roadside drain a suitable culvert, with head walls. should be installed. • Fences should be provided between the properties and the A866 and the Branahuie village road. • Road surface water drainage should be provided within the site. Measures should be taken to prevent surface water flowing from the accesses on to the A866 the Branahuie road or vice versa. • The layout shows a staggered junction with the junctions less than the standard minimum of 25m apart. Due to the layout within the scheme and relatively low traffic volume the distance of 19.5m is acceptable. • Junctions and centre lines should be marked and signed. Accessible crossing points should be provided through the scheme with dropped kerbs and appropriate tactile paving. • Consideration must be given to the provision of bus shelters/laybys in line with existing bus routes. • A Streetlighting layout should be provided and agreed with CnES Streetlighting section. • The roads network, associated drainage and lighting should be submitted for a Roads Construction Consent application to allow adoption by CnES following completion.

Comhairle Archaeology

9.4 The site is currently occupied by derelict buildings that were formerly associated with RAF. In archaeological terms the remains are of limited significance given the generic nature of their form and function and the fact that this standardised approach to base infrastructure will have been replicated across similar airfields. A condition allowing access for CnES Archaeologist is requested although the site appears to have a low potential for unknown buried archaeological deposits.

Comhairle Cleansing

9.5 The applicant will need to ensure that there is sufficient space / storage area given to each dwelling house to accommodate four receptacles, the standard issue is a 240 litre wheeled bin, and the requirements for roads, access and turning spaces to be designed and maintained to allow access and maneuvering by the relevant refuse vehicles.

Comhairle Environmental Health

9.6 There is a potential for noise disturbance from the demolition of the existing buildings and the construction of this development of 34 new dwelling houses, and from associated activities. Therefore, conditions are recommended relating to the construction period in relation to noise and dust. There is potential for the residential amenity of these new properties to be disturbed by noise associated with the Airport (aircraft movements, bird scaring etc), and it is recommended that the developer consider potential mitigating measures for these noise sources.

Comhairle – Flood Prevention

9.7 Surface water network and surface water retention pond – additional details would be needed to assess the situation regarding the management of surface water on site. If surface water run-off from future development phases is to be routed through this feature, then the basin sizing should take account of this.

Scottish and Southern Energy

9.8 All buried cables should be positively located before work commences both within and outwith the site. There may be existing underground cabling located within the site which are still in situ for which SSE do not hold any record.

Highlands and Islands Airports Limited

9.9 No objection – however, conditions are required in order to safeguard aircraft operations at Stornoway Airport. These relate to: • Bird Hazard and Landscape Management Plan • Lighting Scheme • Height Limitation on Trees & Shrubs.

Ministry of Defence

9.10 MOD has no safeguarding objections to this proposal.

Scottish Water

9.11 Scottish Water does not object to the planning application and advises:

Water - This proposed development will be fed from STORNOWAY Water Treatment Works. Unfortunately, Scottish Water is unable to confirm capacity currently.

Foul - This proposed development will be serviced by MELBOST Waste Water Treatment Works. Unfortunately, Scottish Water is unable to confirm capacity currently.

Infrastructure within boundary - According to our records, the development proposals impact on existing Scottish Water assets. The applicant should be aware that any conflict with assets identified may be subject to restrictions on proximity of construction.

SEPA

9.12 We have no objection to this planning application. We are content that the layout ensures that development is not located in areas at risk of flooding.

REPRESENTATIONS

10.1 Representations against the proposal have been received from 11 parties. The full terms of the representations can be read at Appendix 4. The key issues can be summarised as follows:

• Impact on the character of the village due to location and scale; • Impact on neighbouring amenity; • Site is not an identified housing site within the Local Development Plan. • Precedent of development to allow further development of a similar or larger scale; • Overdevelopment; • Not in line with Comhairle policy on Rural - Stornoway Housing Market Area split; • Lack of community consultation; • Area subject to flooding; • Additional traffic and road safety; • Capacity of school provision; • Impact on existing service infrastructure, such as water, sewer etc; and • Impact on aviation safety from increase in birds and debris.

POLICY CONTEXT

National Planning Framework 3 (NPF3)

11.1 The Scottish Government’s central purpose is to create a more successful country, with opportunities for all of Scotland to flourish, through increasing sustainable economic growth. NPF3 notes that successful sustainable well designed places with enough high quality homes is central to their vision for Scotland and that there will be a need for housing land in sustainable places where people want to live in order to support economic growth, or where there is a need for regeneration or to support population retention.

Scottish Planning Policy and Advice

11.2 The Scottish Government’s key policy document on the operation of the planning system is ‘Scottish Planning Policy’ (SPP) which was published in June 2014. This document provides a statement of the Scottish Government's policy on nationally important land use planning matters. The SPP introduces a presumption in favour of sustainable development.

11.3 Placemaking sits at the heart of SPP with Paragraph 36 noting that Planning’s purpose is to create better places. Placemaking is noted as being a creative, collaborative process that includes design, development, renewal or regeneration of our urban or rural built environments. The policy principles guide that Planning should take every opportunity to create high quality places and direct development to the right places.

11.4 The aims of Enabling Delivery of New Homes, including Affordable Housing, is a key component in SPP and relates to this proposal. The LDP reflects these aims within its policies.

Outer Hebrides Local Development Plan 2018

11.5 Strategic land use policy is set out in the Outer Hebrides Local Development Plan, adopted in 2018 (OHLDP). The OHLDP provides a framework to develop and sustain the communities of the Outer Hebrides and identifies considerations within its policies to deliver long term benefits to the communities of the Outer Hebrides through encouraging and facilitating sustainable economic growth and to help build confident and resilient communities. It seeks to ensure that our natural, marine, and cultural resources are valued and utilised efficiently and sustainably.

11.6 The Outer Hebrides Local Development Plan policies of particular relevance are considered to be:

− Policy DS1: Development Strategy– Rural Settlements − Policy PD1: Placemaking and Design − Policy PD2: Carparking & Roads Layout − Policy PD3: Housing − Policy PD4: Low and Zero Carbon Buildings − Policy PD5: Open Space and Outdoor Sports Facilities − Policy PD6: Compatibility of Neighbouring Uses − Policy EI 1: Flooding − Policy EI 2: Water and Wastewater − Policy El 4: Waste Management − Policy El 5: Soils − Policy El 9: Transport Infrastructure − Policy El 11: Safeguarding − Policy NBH1: Landscape − Policy NBH5: Archaeology

THE DEVELOPMENT PLAN

12.1 Sections 25 and 37(2) of the Town and Country Planning (Scotland) Act 1997 require that planning decisions be made in accordance with the Development Plan unless material considerations indicate otherwise. An assessment against the policies and provisions of the Development Plan is therefore made initially. This is then followed by an assessment of any other material planning considerations, prior to a conclusion and recommendation as to the determination.

PLANNING ASSESSMENT

Policy DS1: Development Strategy – Rural Settlements

12.2 The site is within the Rural Settlement of Branahuie, separated from the suburban fringe of the Stornoway main settlement by Stornoway Airport. The area is of a mixed character; while predominantly residential with agricultural elements, including croftland and grazings, the airfield dominates the land between the main and rural settlement. The site is bounded by the airfield to the north and west; the A866 road to the south; and the village of Branahuie / Stornoway Airport road to the east. The site will be intervisible with the large scale Parkend and Mackenzie Park housing developments.

12.3 The principal objective of Policy DS1 for Rural Settlements is to “accommodate development to meet sustainable growth for local needs, particularly for residential, agriculture, tourism and service activities. Housing clusters and economic development proposals will be supported provided they are of an appropriate scale and do not threaten residential amenity”. That objective is tested through a criteria-based policy which has a focus on a siting and design; appropriate density; and seeks that new development does not adversely affect the operational use and sustainability of croftland.

12.4 The character of the ‘Rural Settlement’ of Branahuie is influenced by the airfield to its west, and to its east, the Braighe, which links the peninsula of Point to the main Lewis landmass. In the area to the east of the Branahuie-Airport road the settlement pattern is on one side of the road and largely linear and with some modern backland development. Beyond the mini roundabout at the airport access housing development sits on both sides of the road. The area is within a rural settlement but remains intervisible with the main settlement of Stornoway, including the Melbost farm housing development which sits on the margins of the town, amongst the older croft houses and new individual house builds which have dominated new housing provision over the last 30 years.

12.5 The site for development is not easily comparable with the individual residential properties to the east of the Branahuie road. These houses have developed in a close-knit linear form due to the croft layout in the area. The proposed development mirrors the close grain of the existing housing, but it increases the depth of the settlement pattern by developing a depth of 4 house plots back from the road edge. This is possible due to the nature of the land available to the developer to layout the housing to ensure sufficient curtilage to each unit and undertaking a singular approach to the development of the comparatively large number of houses, which allows for the infrastructure to be designed and developed in a comprehensive fashion. The layout is on balance, considered to be compatible with and would not erode the surrounding built form and character.

12.6 The housing design and layout is considered in detail under Policy PD1 below, but is considered suitable for the site and surroundings, in line with the aims of Policy DS1. The site being bounded by the Stornoway Airport Road and Braighe Road sits on a key approach to the Main Settlement. The overall site layout, position, and design of housing, in relation to the view from the main A866, and the landscaping on this portion of the site, has been acceptably designed. It will be managed by condition to ensure that the development will create a positive contribution to the approach to Stornoway from the north and west of the island.

12.7 The site is not agricultural land and is a derelict brownfield site, and the development would not adversely affect the continuation of crofting.

12.8 For the above reasons it is concluded that the development complies with Policy DS1.

Policy PD1: Placemaking and Design

12.9 The surrounding area to the east is predominately residential, with a mixture of traditional and modern single to 1.75 storey houses. As the Branahuie-Airport road veers east, the development pattern stretches across the road to see development on both sides. The lack of housing on the west up until this point is a result of the area being under RAF use for almost 80 years ago. The land is now brownfield, with derelict buildings, and it would not be out of character to develop this site for housing.

12.10 The detailed considerations on the siting and design of development are addressed by Policy PD1. The policy seeks that developments demonstrate a satisfactory quality of placemaking, siting, scale and design that reflect positive local characteristics.

12.11 The proposed housing site is presented as a single phase, though it is noted the developer would wish to seek further consents for additional housing should there be demand. The proposed scheme will implement the access roads, houses, SuDs scheme, open space and landscaping together. As demonstrated in accompanying cross-sections (see Appendix 2) the housing is ‘tiered’ appropriately utilising the natural slope of the site, which drops away from the elevated Branahuie road down towards the lower levels of the airfield. The linear orientation of the four main ‘lengths’ of housing which run north-south will, particularly in wider views when approaching the area from the west, reflect the linear form of the Branahuie road to the rear of the site. The slight curve at the A866 edge does not detract from this. Rather, it serves to provide a visual ‘starting point’ for the development that is ‘softer’ and subservient to the main village entrance, than would a hard edge running with the Braighe Road orientation and against the grain of Branahuie village.

12.12 The orientation of the houses is well considered, with dual-frontage details included in properties visible in more than one direction from the public realm. It is assessed that the siting relates to the wider streetscape and landform and will not dominate the skyline. The orientation of the buildings where possible takes advantage of passive solar gain, while still relating to the dominant building orientation characteristic of the surrounding area.

Design

12.13 The design of the proposed buildings has a minimal variation in height and form, being single storey with a relatively even mix of hipped and gabled roof forms. This is not ideal typology for a larger scale development; however, the varied topography of this area of ground aids the visual effect such that when viewed in both long and short views the overall appearance is considered acceptable in this instance. A larger scheme across a wider site would require far more variation, however the localised positioning of these houses presents a situation where ‘nestling’ the housing down into the landscape is accepted as an appropriate way to ensure the development relates to the site and creates a positive visual relationship with the Branahuie village. There is a set colour pallet for the development which provides continuity but without mundane uniformity. Minor changes were made to the original submission of materials over the course of the application assessment to ensure the distribution of colours across the scale and location of individual units best ensured the visual relationship of the site with the existing built environment. The finalised proposals use of fibre-cement weatherboard cladding in 4 colours (burnt-red; white; blue-grey and slate-grey) will provide colour and texture and contrast with the main white, beige, and occasional Barleycorn, renders proposed for use throughout the development. The windows and doors are white or dark grey distributed across the development to provide interest over the breadth of the site. It is considered this will be a contextually appropriate pallet, with a nod to traditional rural colour choices, and will make a positive contribution to the area. The fencing in the site will be mostly post and rylock wire, with timber slatted fences to the front garden areas. There will also be a green wired fencing used to enclose some areas of public space from the main road. It is considered that both boundary treatments suitably reflect the location of the site in the rural settlement.

Topography

12.14 With a drop of 6 metres across the depth of the site, there is a requirement for areas of engineered ground levels to achieve the development as shown in the site layout plan. A number of cross-sections have been provided to demonstrate this, and the approach has demonstrated a well-considered balance between ensuring functional garden space for the properties on the more sloping sites while minimising the visual impact of the engineered groundworks. The development will be conditioned in accordance with these details.

Amenity Space

12.15 There is proposed public open space in the form of a landscaped area to the southern boundary of the site, including the SuDS basin. The area of open space should include public realm features such as seating and paths and full details will be required by condition. There is also a play area shown in the to the south-east corner of the development area. The detail of this has not yet been provided and as such would be required by condition. The pedestrian-only connection for the site will be to the south of the site through the landscape area and will connect into the Stornoway bound pathway, which also leads back towards the Braighe area.

12.16 In some plots, the 3 bed 5 person houses in particular, the private garden areas are slightly constrained but not unacceptable. Notwithstanding this the Developer will be invited to consider whether there is scope to improve upon the allocated area and the issue form an informative on any permission.

Neighbour Amenity

12.17 The nearest adjacent housing is the on the Branahuie village road, with the closest wall-to wall distance being approximately 21m from proposed house no.3 and the existing house no.3A Branahuie. The properties would be separated by the public road and the proposed house would sit approximately 2m lower than the existing house. Both properties are single storey. It is considered that there is sufficient distance and intervening ground between the two properties that the development would not result in an unacceptable impact on neighbouring amenity. In terms of the proposed housing, discussions with the agent for the development resulted in the proposal of suitable planting to be used on the eastern boundary of the development site which separates the proposed housing from the main village road. In terms of internally to the site, the overall layout and house design serves to minimise the potential for house-to-house overlooking – the rear elevations of units 19 -24 and 25 - 30 are the closest to each other and a scheme of planting and/or screen fencing will be sought to minimise the potential for undue privacy impacts between the new housing.

12.18 In terms of noise and disturbance, there will potentially be some loss of amenity during the construction phase of the development to the neighbouring residential properties, but it is considered that this can be minimised by use of conditions relating to construction hours, noise and dust.

12.19 Having assessed the development against these key development policies, it is considered, that the proposal complies with the intentions of Policy PD1.

Policy PD2: Carparking & Roads Layout and Policy EI9: Transport Infrastructure

Car parking

12.20 Appendix 3 of the Outer Hebrides Local Development Plan states that the appropriate car parking provision is 2 spaces per dwelling house. The development provides two car parking spaces for each house. The number of car parking spaces and turning provision in the development will be controlled by condition. Space has been provided for a bus layby to the north of the vehicular access to the main development site. This will ensure a safe stopping point to allow alighting from the bus and has a connected footpath back to the development site. This will be required and managed by condition.

Road Layout

12.21 CnES Roads section has advised that a Road Construction Consent (RCC) application will be required to allow the road and footpath to become adopted. While the overall roads layout is suitable, slight changes to radii and lanes to allow for vehicle turning may, if required, be dealt with the through the RCC process.

12.22 The development will utilise a Sustainable Drainage System which will be discussed further in Policy EI 2 below.

12.23 The application is assessed to comply with both Policies PD2 and EI 9.

Policy PD3: Housing

12.24 The application site is not an identified Proposal Site for housing within the Local Development Plan. It therefore requires to be assessed against the additional criteria in the policy. This includes that “housing development will be permitted where the development accords with the Policy DS1 Development Strategy: and … comprises redevelopment of land or premises; or… is for use of derelict land or gap sites…”. The proposed development site is derelict land which was previously used for RAF operations. The removal of the redundant buildings and redevelopment for housing is therefore supported by this policy, as the proposals have also been assessed to comply with Policy DS1. A site within a rural settlement should have a maximum housing density of 20 units/ha. The area for development, including garden areas, recreation spaces, SuDS and other green infrastructure, is approximately 2.3 hectares in size. If an allowance of 25% for amenity/servicing is given, the density works out at just over 17 units/ha. The development will provide 34 houses and will be conditioned to ensure a minimum 25% of these are affordable houses. It is considered that the application complies with this policy.

Policy PD4: Zero and Low Carbon Buildings

12.25 Information relating to Zero or Low Carbon Buildings would require to be attached as a condition to any consent in order to be submitted for assessment. The proposals detail the installation of air source heatpumps, which will support this submission. The development will also provide a car charging connection at each house, a positive future-proofing addition. The proposal would thus be able to comply with Policy PD4.

Policy PD5: Open Space and Outdoor Sports Facilities

12.26 The application site does not contain any existing functional open space. The application has very basic landscaping layout which details the areas to accommodate functional open space. A seating space and playing field park is identified to the north-west corner of the development area. This is an appropriate siting for children’s free play and ball games – within the site and away from the existing roads to the east and south of the site. The open space area at the south of the site includes the SuDS basin and is shown as being a planted green space for mixed amenity use, including a play park area. Details of the layout and content of the recreation space and playpark will be required by condition. There is a linking path network from this part of the site back into the formal footpaths which connect to the north of the site. Due to the linear layout and comparatively short length of the site, it is considered this is sufficient to ensure the open spaces are suitably interlinked. More detail on the informal southern open space, including details of seating and the path network will be required by condition.

12.27 It is assessed that the development provides a sufficient level of open space which is relative to the size of the development and the nature of the surrounding area. The application is thus in accordance with this Policy.

Policy PD6: Compatibility of Neighbouring Uses

12.28 The application is for residential use and will be sited within an area of predominantly residential and agricultural uses. However, Stornoway Airport is an established non-residential use to the west which required to be considered in relation to the proposed development. The scheduled use is relatively low intensity in comparison to large commercial or military airports, and there are also coastguard rescue helicopter operations, air ambulance flights and a number of small private aircraft which utilise the airport.

12.29 The nearest proposed house would be approximately 370m distant to the main runway. For context, the newest housing development at Melbost has a separation of 450m, and the nearest house in the village of Branahuie is ‘Bethel’ 9C Branahuie which is 400m away. Airport noise has not been a readily apparent nuisance for existing neighbours and the separation distance for the proposed housing is comparable with existing development. While CnES Environmental Health recommend that the developer consider potential options for mitigating noise emanating from operation of the airport, they raise no objection and seek no specific measures. As such, an informative is proposed recommending that the developer consider potential mitigating measures for noise associated with the airport.

Policy EI 1: Flooding

12.30 The physical development site is outwith the coastal flood risk area which infringes on the far south- western corner of the red-line planning boundary for the site where infrastructure connections are detailed adjacent to the A866. All house finished floor levels (FFL) are above the flood risk level and SEPA have stated they have no concerns relating to the development and flood risk. There is also egress to the higher ground of the Branahuie-Airport road and not solely to the A866 which has flood risk areas. As such, it is considered that there are no issues raised by the development in relation to flood risk.

Policy El2: Water & Wastewater

12.31 The water from roads, parking, hard-surfacing and roof drainage will be dealt with through a Sustainable Drainage System (SuDS). The SuDS system is partially detailed with the largest treatment area identified as being a basin in the south-west corner of the site. The detail of the wider system is currently relatively minimal in relation to the requirements for a development of this scale. To ensure compliance with the CIRIA SuDS Manual and the LDP, management of the detailed design of the system and its implementation will be addressed through conditions.

12.32 It is proposed to connect to the public water supply and wastewater treatment works. Scottish Water has advised that they are unable to confirm capacity in the Stornoway Water Treatment Works and Melbost Waste Water Treatment Works. The developer will be required by Scottish Water to undertake any necessary works to ensure the infrastructure can serve the new development. A condition would require to be attached to any consent to ensure the foul water connection.

Policy EI4: Waste Management

12.33 The policy deals with a variety of waste issues, but specific to the proposal being considered is the requirement to accommodate the provision of recycling facilities. The development details sufficient space for accommodating the 4-bin waste and recycling system which is operated in the area.

Policy EI5: Soils

12.34 The site is not identified as being within an area of carbon rich Soils by the Carbon and Peatland 2016 map. The site has previously been partially subject to development, but the proposal extends the developed area into some virgin ground; therefore, the proposed haul road may disturb peat soils which are the dominant soil type in the area. Most if not all excavated peat can be retained on site for dressing open areas and verges. It is therefore considered that by minimising and retaining any excavated peat on site, the application is able to comply with the Policy.

Policy EI 11: Safeguarding

12.35 The application site is within the Stornoway Airport safeguarding area and as part of the determination process HIAL were consulted. They raised no objection to the development provided compliance with conditions relating to: a Bird Hazard and Landscape Management Plan; a Lighting Scheme; and a Height Limitation on Trees & Shrubs. These will be attached to any consent.

12.36 Though not a statutory consultee, the MoD were consulted and raised no objections to the development.

12.37 There are no other consultation zones affecting the application and the application has been assessed to comply with this Policy.

Policy NBH1: Landscape

12.38 Development proposals should relate to the specific landscape and visual characteristics of the local area, ensuring that the overall integrity of landscape character is maintained. The application site is within the Gently Sloping Crofting Landscape character type. The landscape is generally characterised by long sweeping gentle slopes, often domed, ending in long curving beaches to the seaward, and merging evenly into boggy moorland elsewhere. It is a large-scale landscape with open views.

12.39 The site has a slightly perplexing element in how it is perceived and viewed as it abuts the airfield and is clearly intervisible with the Main Settlement of Stornoway, particularly the Melbost farm and Parkend housing developments. When considering the urban situation of Stornoway, the SNH National Landscape Character Assessment (Landscape Character Type 317) states: “Stornoway exhibits some of the characteristics of an urban, rather than a rural settlement, notably a higher density of population. Stornoway can be further broken down into two distinct areas, the original central core and the later area of urban expansion, or urban fringe. … Beyond the urban core is an area of urban expansion, characterised by a mix of Local Authority and private housing.” While not within the Main Settlement, and not assessed as such within the LDP policies considered in this report, the context of how the development would be viewed is important. The landscape character and how it is perceived across the stretch of ground from Melbost to Branahuie has suburban characteristics. While the proposed housing seeks to mirror and repeat the more linear pattern of Branahuie, the overall character of this larger housing development is not out of character with the wider views to and from Stornoway.

12.40 The siting and design of the development has taken into account the topography of the site which, combined with proposed landscaping, will minimise the visual impact of the development. It is assessed that the proposed housing site will not have a detrimental impact on the landscape character, and the overall integrity of landscape would be maintained. Thus, the application complies with this Policy.

Policy NBH5: Archaeology

12.41 There are no historic environment features recorded or evident on the site or in the vicinity of the development site. However, given a lack of survey of this area, there is the potential for undiscovered archaeology features or finds. A condition requiring access be given to the CnES Archaeologist will be attached to any consent.

Assessment against the Development Plan

12.42 An assessment against the Outer Hebrides Local Development Plan 2018, concludes that the proposed development meets the relevant policy aims for the development of new housing within the Rural Settlement of Branahuie; is acceptably sited and designed; provides appropriate access and parking to serve the development site; and that subject to management by conditions as discussed above, can achieve suitable drainage provisions for the proposals; meets the housing policy tests; has the capacity to meet the sustainability requirements for new houses; and will not affect the integrity of the landscape character. Considerations relating to Open Space, safeguarding, and amenity have shown that the development will not have an unacceptable impact, provided suitable management through conditions.

12.43 Therefore, following an assessment of the proposal against the Comhairle’s adopted planning policies, it has been concluded that the proposal is considered to accord with the provisions of the Outer Hebrides Local Development Plan 2018.

MATERIAL PLANNING CONSIDERATIONS

13.1 Having carried out an assessment against the Development Plan, the Planning Authority requires to identify and consider other relevant material considerations, for and against the proposal, and assess whether these considerations warrant a departure from the Development Plan. The weight to be attached to any relevant material consideration is for the judgment of the decision-maker. Two main tests are used when deciding whether a consideration is material and relevant:

• It should serve or be related to the purpose of planning. This means it should relate to the development and use of land. • It should fairly and reasonably relate to the particular application being determined.

Scottish Planning Policy (SPP)

13.2 SPP supports the proposal insofar as it would help to meet a local demand for housing and, thereby, support population retention and the sustainability of a remote island community.

13.3 The proposed development is assessed to comply with the policy principles relating to the following topics contained within the SPP: Sustainability, Placemaking, and Enabling Delivery of New Homes. As the Local Development Plan (LDP) has recently been adopted, the LDP reflects the policy contained within the SPP and this has been discussed in detail in the section above.

Matters raised in Representation

13.4 The matters raised in representation are set out below in italics followed by the planning assessment.

Street name

13.5 A request from a former RAF member to ascertain if there could be any way that the station could be remembered, such as a road name or similar.

13.6 The planning process for a local development cannot secure such a requirement but these comments have passed to the developer for their consideration.

Not an identified housing site

13.7 Site is not an identified housing site within the Local Development Plan; land is not allocated for development in the Outer Hebrides Local Development Plan 2018; Land allocated for housing development nearby has not yet been built upon; unfair on our community to impose a major development which does not feature in the local development plan; the terms of the development plan should be respected given that the planning process involved extensive consultation.

13.8 The site is not an identified housing site in the LDP Proposals Site, however, as detailed in the above assessment for Policy PD3: Housing, the site meets the policy test by presenting the opportunity for redevelopment of derelict land. The Comhairle endeavour to direct development to sites identified within the LDP in the first instance but must assess and determine any application presented to it in relation to the policies of the LDP and on its planning merits.

Comhairle policy on Housing Market Area split

13.9 Not in line with Comhairle policy on Rural - Stornoway Housing Market Area split.

13.10 The planning process assesses the acceptability of a proposal against the LDP, and other material planning considerations. Comhairle policies relating to allocation of funds or other matters are not planning considerations.

Sets precedent for further development

13.11 Precedent of development to allow further development of a similar or larger scale; we remain convinced that this development will be for the original 94 homes but phasing them in over a period of time in smaller developments seem to us to be a method of avoiding the need for public consultation [required for developments of over 50 houses].

13.12 National regulations, the Town and Country Planning (Hierarchy of Development) (Scotland) Regulations 2009, set out the thresholds for holding a formal Pre-Application Consultation. For a residential development, this is 50 houses or the aggregate area of physical development and engineering operations exceeding 2ha of development. The application meets neither of these thresholds. The development was advertised in the local press and neighbours were notified, in accordance with the Development Management Regulations.

13.13 All applications are assessed on their own merits. It is reasonable to suggest that the approval of 34 houses in a currently derelict site would set a precedent for future development of a similar nature in the area. While this is a material consideration the issue is whether it may set an undesirable precedent. The current proposal is assessed on its merits; all future development proposals would require to meet any contemporary policy tests; be assessed against any material considerations, such as representations; and will be considered cumulatively with any existing developments and consents in order to assess potential impacts or requirements collective to the developments.

Impact on the character of the village

13.14 Impact on the character of the village due to location and scale; scale of housing proposed, and its location would adversely affect the character of the village; proposal would bring a huge influx to a well-established, peaceful, crofting community, which would undoubtedly have an adverse effect on the nature and character of our village.

13.15 The site, as detailed in the above assessment for Policies DS1: Development Strategy – Rural Settlements and PD1: Placemaking and Design, is considered suitable in terms of its overall integration with the existing village and the character of the wider area. It is certainly an increase in house numbers from the current level of development within the village, but the impact of this will be largely within the development site, other than the use of the Branahuie-Airport road. In consultation with, Comhairle Roads, Bridges and Streetlighting, it is assessed that the road can accommodate the additional requirements of 34 houses without unacceptable adverse impacts.

13.16 The character of the village linear … the proposed development disrupts that, as its design, scale, form and mass does not respect the surrounding built and natural environment.

13.17 The development, as detailed in the above assessment for Policy PD1: Placemaking and Design, is considered suitable in terms of its overall layout, building design, scale, form and massing. Some of these were achieved through negotiation with the applicant and will be secured by condition.

Overdevelopment

13.18 The proposal would result in overdevelopment.

13.19 The density assessment in Policy PD3: Housing above shows a density level of 17 houses/ha – below the maximum of 22 units/ha. Coupled with an acceptable layout and provision of private and public amenity spaces, it is not considered that the proposals would result in overdevelopment of the application site.

Impact on neighbouring amenity

13.20 Impact on neighbouring amenity; concern raised re impacts on the house directly opposite the entrance of the housing site; loss of privacy from traffic leaving the development looking directly into [the] front windows – is there an alternative access? ; additional light pollution which would result from a development of this size affecting our home; privacy and nuisance issues which will be caused by the development, for example, noise, headlights of vehicles exiting the development overlooking into houses directly opposite the access road.

13.21 Neighbouring amenity, which includes reasonable privacy, is a material planning consideration. The development is not considered to have an undue impact on neighbouring amenity. Taking the points raised in turn, the concerns area assessed in the following paragraphs.

13.22 The existing vehicular access, which would be widened as part of this development, currently opens onto the road opposite the hedged garden of no.3B Branahuie. The driveway of ‘Glenesk’ at no.4 Branahuie would overlap with the ‘outlook’ from the access road once widened. The access would not sit directly in front of the property’s windows. It is still possible that the windows would be affected by intermittent oversight from those exiting the site and to occasional headlights from the same. However, the limited duration of any occurrence, and the driver’s focus on the road maneouvre is such that this would not result in undue overlooking of the public facing windows on ‘Glenesk’. In terms of potential impact from headlights, this would again be indirect, intermittent, and more likely to occur when curtains are drawn in the hours of darkness and thus unlikely to have any undue residential amenity impact.

13.23 The development site includes a haul access, which will ensure the majority of site traffic will be utilising the A866 access. When the development is completed this may be available for ocassional residential use, but it is not intended for adoption. The haul access and the Branahuie-Airport road access have been proposed by the developer and assessed as being acceptable from the planning perspective.

13.24 Concerns about general light pollution from the development are unlikely to be merited, due to modern external lights. This will be even more notable due to the Lighting Scheme which will require to be agreed to ensure that the development does not create a hazard to the adjacent airfield through light spill.

Lack of community consultation

13.25 Lack of community consultation; unfair on our community to impose a major development which does not feature in the local development plan.

13.26 As set out above, the development is termed a ‘Local Development in terms of the Planning Hierarchy. The consultation requirements for a development classed as Local extend to relevant neighbour notification and press advertisement. The site is not identified in the LDP, but this in itself does not preclude its consideration for development.

Flooding

13.27 Area subject to flooding;

13.28 The site lies outwith the mapped coastal floodrisk area (from data-set August 2020). The lowest finished floor level on the site is 5.7m – above the floodrisk level for sites outwith a mapped floodrisk area.

Road safety

13.29 Additional traffic and road safety; concerns about levels of traffic as the road does not cope now with existing traffic levels far less cope with any further increases; safety of residents and other road users.

13.30 The increase in house numbers for the village will undoubtedly increase the volume of traffic. The impact of this will be largely managed within the development site, however the first stretch of the Branahuie-Airport road will see increased use, but not unacceptably so. In consultation with, CnES Roads, Bridges and Streetlighting, it is assessed that the road can accommodate the additional requirements of 34 houses without unacceptable adverse impacts.

School provision

13.31 Capacity of school provision; schooling when the school that this catchment area of the proposed development falls under, I understand, is struggling to cope with current levels of pupils.

13.32 The school catchment area for the site would be Stornoway Primary School. At present the school is at 85% capacity. The construction of 34 houses of varying sizes, including 8no. 1-bedroom properties, is unlikely to result in an additional school population such that the school would have insufficient capacity. The provision of school capacity to meet likely pupil intake is reviewed on a regular basis by CnES education services.

Impact on infrastructure

13.33 Amenities and local infrastructure would be overwhelmed; impact on existing service infrastructure, such as water, sewer etc.

13.34 In relation to infrastructure enhancements, the developer will require to implement such service infrastructure works as are necessary to allow the development to proceed in compliance with conditions. There are no evident amenity provisions such as local parks or clinics which would be overwhelmed by the proposed development.

Impact on aviation

13.35 Impact on aviation safety from increase in birds and debris; risk of young children wandering close to the runway- high fencing and other measures are required to mitigate against this risk.

13.36 The application assessment included consultation with HIAL in relation to their requirements to secure the safety of the adjacent airfield. The response resulted in no objection from HIAL, provided conditions relating to management of Bird Hazards; Landscaping; Lighting Scheme; and a Height Limitation on Trees & Shrubs were applied. These are considered necessary and reasonable from a planning perspective and are contained in Appendix 1 to the report. The use of additional fencing has not been highlighted as a safety requirement. HIAL also has obligations and can install any required safety fencing under their own powers as a statutory undertaker.

Reason for lack of objection in the past

13.37 Only reason that no objection was made in the past by the village on the construction of the 2 former MOD buildings on the proposed development site, is that over the period of time that military development commenced on that site since the Second World War, the village displayed its loyalty to the national interests of our country by supporting military development.

13.38 This is noted, and residents have made representations which are considered in the above paragraphs.

13.39 Having considered all pertinent matters raised in representation, there are no material considerations that would lend weight to any decision other than in accordance with the Development Plan.

CONCLUSION

14.1 Planning Authorities are required to determine planning applications in accordance with the Development Plan unless material planning considerations indicate otherwise. It is considered that the proposed housing development on this site would be sufficiently in keeping with the character of the area, albeit introducing a variation on the settlement pattern through redeveloping brownfield land; it has sufficient capacity to accommodate required infrastructure; and would not unduly harm the amenities of neighbours or road or aviation safety, subject to relevant conditions. It is therefore concluded that the proposal accords with the OHLDP. The material consideration of SPP provides further weight in favour of the proposal. There are no material considerations of sufficient weight, including those raised in objection and discussed above, that justify a decision other than an approval subject to the planning conditions in Appendix 1 to this Report.