APP 01

Application Number: 15/02030/OUTEIS Major

Demolition of all existing structures (except part of the lifting shop building and the brick wall on Stratford Road which are partially demolished) and development to create a new employment floorspace (use classes B1/B2/B8), up to 375 residential units (Use class C3), a new foodstore (use class A1), a new community facility (use class D1 or D2) new hard and soft landscaping, open space and public realm, amended site vehicular access including alterations to junctions and pavements

AT Railcare Maintenance Depot, Stratford Road, Wolverton

FOR Mr Gary Morris

Target: 26th November 2015 (Extension of time until 15th December 2016)

Ward: Wolverton Parish: Wolverton & Greenleys Town Council

Report Author/Case Officer: Allen Sacbuker – Senior Planning Officer Contact Details: 01908 253101 [email protected]

Team Leader: Debbie Kirk Team - Development Management Manager South East Team Contact Details: 01908 252335 [email protected]

1.0 INTRODUCTION (A brief explanation of what the application is about)

1.1 The main section of the report set out below draws together the core issues in relation to the application including policy and other key material considerations. This is supplemented by an appendix which brings together planning history, additional matters and summaries of consultees’ responses and public representations. Full details of the application including plans, supplementary documents, consultee responses and public representations are available on the Council’s Public Access System www.milton- keynes.gov.uk/publicaccess. All matters have been taken into account in writing this report and recommendation.

1.2 The application is referred to Development Control Committee as a result of the level of opposition to the application.

2.0 THE SITE

2.1 The application site is defined by the Milton Keynes Local Plan 2001-2011 (hereafter referred to as the Local Plan) as an employment site. It is located within the civil parish of Wolverton and Greenleys and forms a part of the wider constituent town of Wolverton which is located to the north of Milton Keynes between Stony Stratford and Newport Pagnell. The site is located within the Wolverton Conservation Area.

2.2 The site comprises a 16.2 hectare parcel of land between Stratford Road to the south and the Grand Union Canal to the north and encompasses the Wolverton Railway Works site as well as the site of a car showroom along its southern boundary. The use of the site, whilst remaining in operational use, is substantially below the former capacity of the Works and has been predominantly consolidated at the western end of the site. The remainder of the site to the east is largely unoccupied as a result of the condition and form of the buildings. It is noted that the Works area of the site is currently occupied by Knorr-Bremse Rail Services Ltd.

2.3 The northern and western boundaries of the site are characterised by a line of mature landscaping and the eastern boundary comprises a 1.8 metre high close boarded fence and security fencing. Separating the site with the rest of the town to the south is a high perimeter brick wall, which stretches the length of Stratford Road from the south east corner of the site’s southern boundary and concludes at the main entrance to the west where a small paved area with landscaping lies.

2.4 The site is bounded by the Grand Union Canal to the north beyond which there is a large industrial estate. An active car showroom forms a part of the southern boundary of the site beyond which, on the opposite side of Stratford Road, is an area of Victorian terraced housing developed in a grid of streets. The site is otherwise bounded by a public right-of-way to the west beyond which is residential development dating from the 1980s and a Tesco store and car park to the east.

2.5 Given the nature of the site as an operational railway works there is currently no general public access. There is an existing rail access into the north east of the site, from the main line rail route where rail tracks branch out westward to cover the majority of the site. The principal access into the site is from two vehicular entrances on Stratford Road; the primary entrance found at the westernmost end of the brick boundary wall with a secondary entrance used for deliveries at the site’s western extent.

2.6 Details of the location of the site and its relationship to surrounding properties can be seen in the plans submitted in support of the application.

3.0 THE PROPOSAL

3.1 This planning application seeks outline planning permission to redevelop the site to provide new employment floorspace to accommodate buildings for rail- related operations at the eastern part of the site, which is where the access to the rail network is located. This will provide the operator of the Works with (approximately) half of the site to accommodate their required facilities as well as an allowance for future growth. It is proposed that the remainder of the site will be developed to provide up to 375 residential dwellings and associated open space and parking, a community facility, new small/medium employment units and a new foodstore.

3.2 It is anticipated that the redevelopment will take a number of years to complete given the complexity of accommodating a ‘live’ operating business throughout the consolidation and relocation process.

3.3 It is expected that the proposed development will be delivered in three distinct phases as follows:

PHASE 1 - Site clearance and construction of an approved foodstore; PHASE 2 - Construction of the employment buildings on the eastern part of the site following demolition works; and PHASE 3 - Construction of residential dwellings and heritage centre on the western part of the site following demolition works

3.4 The phasing of the works will allow for the continuation of operations of the existing occupier of the site throughout the construction period. The area of land where the foodstore will be located is currently vacant and is surplus to the operational requirements of the existing occupier and can therefore be released early in the development process as an independent plot.

3.5 To facilitate the second phase of the development it is proposed to relocate all existing operations to the existing buildings in the western area of the site where the majority of operations currently take place. The eastern area of the site would then be redeveloped to create new buildings and facilities. Following this redevelopment the remaining western area of the site would be released for the third phase of development for residential and community uses.

3.6 While phase 1 is included in the description of this development it nevertheless has full planning permission by virtue of an earlier decision made by the Development Control Committee (ref. 16/00360/FUL).

3.7 The detailed nature of the employment floorspace forming phase 2 has not been clarified. This is an outline application seeking permission for the principle of the demolition of the buildings and their replacement with up to 30,000 square metres of employment space with all other matters (apart from access) reserved for determination at a later date. It is noted that ‘reserved matters’ applications will be required before works can begin on site.

3.8 The application is supported with a Design Guide and parameter plans. The Design Guide will facilitate the consideration of the phase 3 section of the development and the parameter plans will guide all three phases. The Design Guide will inform the scale, form and character of the buildings and spaces and offers certainty as to the expected nature of future ‘reserved matters’ applications.

3.9 Access is not a reserved matter. Access points for the proposed development are:

Existing railway lines - to be retained to serve the employment rail- related operations; McConnell Drive - to be used for HGVs to serve the employment use; Existing service road from Stratford Road - to be used to access the foodstore and associated parking; Existing Railway Works access on Stratford Road – will be retained to serve the works, this will be the principal staff access point and will serve the residential development; and Additional Access point on Stratford Road at the western end of the site - additional access point to serve the residential development, this will be broadly located in the same position as the access point serving the existing car showroom.

3.10 In addition to the above proposed vehicle access points, it is proposed that there will be pedestrian and cycle access connections between the existing footpath that runs along the western edge of the site, and Stratford Road.

3.11 It is noted that the scheme has been amended following the original consultation exercise undertaken by the Council. The amendments centre around the residential development of the land, driven by the existing site arrangement and the requirement to maintain elements of historical significance. The key amendments to the residential phase of the proposal are summarised as follows:

A new masterplan that is influenced by the current arrangement of buildings on site and the completion of a Design Guide to guide reserved matters applications An increase in the retention of existing building fabric to better reflect the historic form of development The retention of building footprints and open working yards within the proposed masterplan The retention of the existing east-west route through the site The retention of existing railway lines in several locations within the public realm

Incorporation of almost 900 square metres of new business floorspace

intended for small and medium sized businesses

Relocation of the Heritage Centre closer to the main entrance of the

site

The formation of a new pedestrian route along the southern side of the canal The provision of a minimum of 14,260 square metres of open space and public realm Alterations to the access and egress from Stratford Road

3.12 The amended proposal is supported by a Design & Access Statement, A Design Guide, Heritage Statement, Transport Assessment, Landscape Strategy, Town Centre Use Assessment, Access and Parameter plans and an illustrative masterplan.

3.13 Details of the proposal as described above can be seen in the plans and documents submitted in support of the application.

4.0 RELEVANT POLICIES (The most important policy considerations relating to this application)

4.1 National Policy

4.1.1 National Planning Policy Framework 2012 Paragraphs 11-16: Presumption in favour of sustainable development Paragraph 17: Core Planning Principles Paragraph 49: Housing Section 1: Building a Strong Competitive Economy Section 2: Ensuring the Vitality of Town Centres Section 4: Promoting Sustainable Transport Section 6: Housing Section 7: Design Section 8: Promoting Healthy Communities Section 10: Meeting the challenge of climate change Section 11: Conserving and Enhancing the Natural Environment Section 12: Conserving and Enhancing the Historic Environment Paragraphs 187 &187: Positive approach to decision taking Paragraphs 196 & 197: Determining applications Paragraphs 203-206: Conditions and Obligations

4.2 The Development Plan

4.2.1 Adopted Milton Keynes Core Strategy 2013 Policy CSA: Presumption in favour of sustainable development Policy CS1: Milton Keynes Development Strategy Policy CS2: Housing Land Supply Policy CS3: Employment Land Supply Policy CS4: Retail and Leisure Development Policy CS10: Housing Policy CS11: A Well Connected Milton Keynes Policy CS12: Developing Successful Neighbourhoods Policy CS13: Ensuring High Quality, Well Designed Places Policy CS15: Delivering Economic Prosperity Policy CS16: Supporting Small Businesses Policy CS18: Healthier and Safer Communities Policy CS19: The Historic and Natural Environment Policy CS21: Delivering Infrastructure

4.2.2 Adopted Milton Keynes Local Plan 2001-2011 (Saved Policies) Policy D1: Impact of Development Proposals on Locality Policy D2A: Urban Design Policy D2: Design of Buildings Policy D3: Canalside Development Policy D4: Sustainable Construction Policy HE1: Protection of Archaeological Sites Policy HE6: Conservation Areas Policy NE2: Protected Species Policy NE3: Biodiversity and Geological Enhancement Policy NE4: Conserving and Enhancing Landscape Character Policy T1: Transport User Hierarchy Policy T2: Access for those with Impaired Mobility Policy T3: Pedestrians and Cyclists Policy T5: Public Transport Policy T10: Traffic Policy T11: Transport Assessments and Travel Plans Policy T15: Parking Provision Policy KS6: Wolverton Development Framework Area Policy H3-H5: Affordable Housing Policy H8: Housing Density Policy H9: Housing Mix Policy E1: Protection of Existing Employment Land Policy TC11-TC13: Wolverton Town Centre Policy L3: Standards of Provision Policy C1: Location of Community Facilities Policy PO4: Public Art

4.2.3 Supplementary Planning Guidance/Documents (SPG/SPD) Parking Standards for Milton Keynes SPD (2016) Affordable Housing SPD (2013) Residential Design Guide SPD (2012) Sustainable Construction SPD (2007) Planning Obligations for Leisure, Recreation and Sports SPG (2005) Social Infrastructure Planning Obligations SPG (2005) Planning Obligations for Education Facilities SPG (2004)

4.3 Neighbourhood Planning

4.3.1 Once a Neighbourhood Plan has been agreed at a referendum and is made (brought into legal force) by the local planning authority, it becomes part of the local planning authority’s development plan as an official development plan document which carries statutory weight. Applications for planning permission must be determined in accordance with the development plan, unless material considerations indicate otherwise. If a policy contained in the development plan for an area conflicts with another policy in a development plan, the conflict must be resolved by the decision maker in favour of the policy which is contained in the latest document to become part of the development plan.

4.3.2 Neighbourhood Plans therefore form part of the development plan for the relevant area. They will necessarily be in general conformity with the strategic policies contained in the development plan for the area. If they are the most recent document to become part of the development plan, they will attract statutory priority. Neighbourhood plan policies will also take precedence over non-strategic development plan policies where there is conflict.

4.3.3 Wolverton Neighbourhood Plan 2015-2025 Section 7 & Policy W3: The Railway Works Site

5.0 MAIN ISSUES (The issues which have the greatest bearing on the decision)

5.1 a) Application Submission b) The Identified Need for Housing c) Extent of Demolition and Resulting Impact on the Wolverton Conservation Area d) Design Guide and Parameter Plans e) Landscaping/Boundary Treatment f) Ecology g) Relationship with Canal h) Access & Other Highways Matters i) Community Safety j) Noise k) Sustainable Construction l) Surface Water Drainage/Flood Risk m) Contaminated Land n) Archaeology o) Viability/s106 Contributions p) Summary & Conclusion

6.0 RECOMMENDATION (The decision that officers recommend to the Committee)

6.1 It is recommended that outline planning permission be granted subject to a s106 agreement to secure the planning obligations as detailed in Section 7.15 of this report. It is also recommended that the granting of permission be subject to the planning conditions detailed in Section 8.

7.0 CONSIDERATIONS (An explanation of the main issues that have led to the officer Recommendation)

7.1 Application Submission

7.1.1 The application is submitted in outline form. An outline planning application establishes, in principle, that new buildings can be constructed. However, the type and size of buildings, the method of construction and materials used, would not generally be covered by an outline planning permission. The siting of buildings, their design and layout, orientation, access and landscaping are all contained in what is known as a 'reserved matters' application. The outline planning permission and the approved 'reserved matters' application together form the equivalent of a detailed planning permission.

7.1.2 The reason an outline application has been submitted in this instance is in part due to the unknown nature of infrastructure and building details required to meet the site’s principal occupier Knorr Bremse’s (hereafter referred to as KB) future requirements. The business at Wolverton is still developing after being acquired by KB in 2013 following Railcare going into administration. It is understood that the existing buildings are inefficient and not appropriate to support the business needs of KB. An outline planning permission, establishing the principle of demolition, would allow KB to commit to a programme of investment in the site which will likely secure the long term future of the historical rail related business.

7.1.3 Directly related to this, St. Modwen (as the site’s owner) needs to understand the development value of the residual land in greater detail to clarify how the new commercial buildings can be delivered. Therefore the potential extent of this residual land, in addition to details of quantum and density by land use and other development costs is another important principle that can be established by the use of an outline planning application.

7.1.4 At the time of the pre-application discussions and submission of the outline application, discussions with potential foodstore operators were at an early stage, hence the need for an outline approach to the foodstore element. Lidl were confirmed as the operator during the course of the application and a separate full application was pursued to enable this element to come forward. The foodstore forms the first phase of the comprehensive masterplan for the site and supports the scheme’s financial viability. Its early delivery will represent an important catalyst for the regeneration of Wolverton Works, whilst proposals for the employment and residential phases are developed.

7.1.5 The Council has discretionary powers to seek further details if it is considered that insufficient information has been provided to allow the determination of an outline application. In practice, such circumstances have normally been where a development is proposed in a visually sensitive or physically restricted situation where there is room for doubt that a development can be designed that would be acceptable. This is particularly the case in Conservation Areas.

7.1.6 With specific regard to the above, and to reflect the historic context of the site, the applicant has agreed in this instance to provide a significant level of detail to support the outline application in relation to the third phase of the development (residential). This comprises parameter plans showing layouts, uses, plots, routes and extent of building/façade retention.

7.1.7 A Viability Assessment was prepared to explore the possibility of converting the existing buildings in the western area of the site to residential use. The Assessment demonstrated that this would not be practically or financially viable. Through the course of the application the applicant has committed to enhance the retention of heritage assets in terms of façade and wall retention, artefacts saved and a comprehensive strategy to incorporate heritage into the public realm. A detailed Design Guide has been prepared to underpin the principles established in the outline application (discussed from para 7.4) when future reserved matters are submitted.

7.1.8 Officers consider that there is sufficient justification and information available to determine the application in outline form and the principle of an outline consideration is therefore accepted. The acceptability of the application in all other regards is discussed below.

7.2 The Identified Need for Housing

7.2.1 Paragraph 49 of the National Planning Policy Framework (NPPF) considers policies for the supply of housing to be out of date where the Council cannot demonstrate a five-year supply of deliverable housing sites. The Council can currently demonstrate a 4.8 year supply (representing a deficit of 479 dwellings). In such circumstances, the Council must rely on the provisions of Paragraph 14 of the NPPF which outlines a presumption in favour of sustainable development and provides that permission should be granted unless adverse impacts significantly and demonstrably outweigh the benefits of proposals.

7.2.2 Therefore, the starting point for the determination of this application is that the Council do not have a 5 year housing land supply, and the proposed development would contribute towards meeting the identified shortfall. The NPPF supports housing development through the presumption in favour of sustainable development. It advises that there are three dimensions to sustainable development: economic, social and environmental which are mutually dependent and should not be taken in isolation. The dimensions of sustainable development are considered further below.

7.3 Extent of Demolition and Resulting Impact on the Wolverton Conservation Area

7.3.1 Policy/Legislative Context

7.3.2 The Royal Train Shed, Triangular Building and Reading Room are all grade II listed buildings and the nearby railway bridge is grade II* listed. These are not located within the confines of the development area but the Council nevertheless has a statutory duty to give ‘special regard’ to the desirability of preserving the buildings or their settings or any features of special architectural interest which they possess under section 66 of the Planning (Listed Buildings & Conservations Areas) Act 1990. It is noted that there are no listed buildings within the confines of the development site. Historic England recently decided not to list the buildings and in doing so concluded, although clearly of strong local interest for the history of the town which grew as result of the Works, and of importance to the character of the Conservation Area, the buildings do not meet the criteria for listing.

7.3.3 In addition the Council has a statutory duty to pay ‘special attention’ to the desirability of preserving or enhancing the character or appearance of the Conservation Area under section 72 of the Town and Country Planning (Listed Buildings & Conservations Areas) Act.

7.3.4 These requirements are echoed in national and local planning policy guidance. The NPPF requires the decision maker to consider whether the proposal sustains and enhances the significance of the heritage asset, making a balanced judgement having regard to the scale of harm or loss and significance of the heritage asset (paras. 131 to 135). If the application would cause substantial harm, paragraph 133 sets out that consent should be refused unless specific requirements set within it are met.

7.3.5 Policy HE5 of the Local Plan considers the setting of listed buildings and Policy HE6 requires consideration of whether the proposal will preserve or enhance the character of the Conservation Area. Policy CS19 of the Core Strategy broadly requires development to protect and enhance the significance of the Borough’s heritage assets and Policy W3 of the Wolverton Neighbourhood Plan seeks to conserve the heritage of the site.

7.3.6 Historic Context

7.3.7 Both Historic England and the Council’s Conservation and Archaeology Manager have commented on the historical significance of the site as follows:

7.3.8 The works were founded in 1839 as the main locomotive and carriage works for the London to Birmingham Railway. When building and maintenance of locomotives transferred to Crewe in 1877 the site became a carriage works and reached its largest extent in the early 20th century. All the buildings on the site in question date from the later 19th and early 20th century and sit within the Wolverton Conservation Area.

7.3.9 The Wolverton Conservation area is primarily of significance in that it is a good example of a railway town. At its heart is the works, which was the main source of employment; to the south of this is terraced housing, much of it built directly by the railway company. As a whole the Conservation Area tells the story of industrialisation in Britain very well: it demonstrates the vast scale and complexity that heavy engineering took place on during this period and the paternalistic nature of the companies involved, which not only employed but housed their workers. The works are of particular importance to this significance as they are the reason for the existence of the rest of the Conservation Area: it cannot be understood without it.

7.3.10 The Wolverton Railway Works are also of historical interest in their own right. It is one of two examples (the other being Derby) of a large carriage works from the zenith of the railway age to survive reasonably complete and thus comparatively rare (of the other key sites Swindon has lost its carriage works whilst most of the historic buildings at Crewe have been demolished. Holgate Road, York is on a much smaller scale). The survival of specialist equipment, such as the traversers, is unusual. While very plain architecturally the use of standardised designs is interesting from a historical perspective. Their functional simplicity gives them a degree of handsomeness and monumentality; the combined architectural presence of the group is arresting.

7.3.11 The architectural simplicity of the buildings is also reflective of the ethos of the London and North-Western Railway as a whole; it applied the same Spartan aesthetic to everything from locomotives to stations. The importance of the works buildings are recognised in the Wolverton Conservation Area Review (April 2009) in which all pre 1906 buildings on the site are identified as being of local significance. A Heritage Assessment of the railway works was also prepared in by Baxters for Milton Keynes Council in January 2015. This contains a good summary of the site’s development and significance: concluding that the site is significant for communal, historical, aesthetic, and evidential reasons and for its visual, historical and spatial relationship with the surrounding town. It also highlights its importance as one of only two major carriage works which survives close to its maximum extent.

7.3.12 Extent of Demolition

7.3.13 In respect of the employment (eastern) half of the site, the proposals seek the demolition of all remaining railway works buildings. It is acknowledged that this would have an impact on the heritage significance of the site and Wolverton Conservation Area.

7.3.14 The residential part of the scheme proposes the demolition of the majority of railway buildings on the site, with selected gables and a façade retained. It is similarly acknowledged that this would have an impact on the heritage significance of the site and Wolverton Conservation Area, albeit to a lesser extent.

7.3.15 Both Historic England and the Council’s Conservation and Archaeology Manager have stated that the scale of demolition proposed, even accounting for recent amendments, would leave no complete building standing on the site with all of the historic works buildings on the site being completely or substantially demolished. They therefore conclude that the impact of this degree of demolition would be to cause substantial harm to the significance of the Wolverton Conservation Area.

7.3.16 Where substantial harm to a designated heritage asset will arise, The National Planning Policy Framework (paragraph 133) recommends that ‘local planning authorities should refuse consent, unless it can be demonstrated that the substantial harm or loss is necessary to achieve substantial public benefits that outweigh that harm or loss, or all the following apply:

the nature of the heritage asset prevents all reasonable uses of the site; and no viable use of the heritage asset itself can be found in the medium term through appropriate marketing that will enable its conservation; and conservation by grant-funding or some form of charitable or public ownership is demonstrably not possible; and

the harm or loss is outweighed by the benefit of bringing the site back into use.

7.3.17 This effectively presents two tests for consideration. The first test in the main body of the paragraph focuses on whether the harm is necessary, and by implication, whether the scheme delivers benefits that outweigh the harm or loss.

7.3.18 Necessity of demolition

7.3.19 The application submission contains a number of points regarding the lack of compatibility between the existing structures and those required for modern railway related business. The existing buildings at the Works were originally built for manufacturing rather than the more highly technical repair and maintenance processes which are the predominant operations now. The buildings have historically focused on a different product offering, and have been adapted over many years. The operation of the business is sprawled across the site in a number of buildings and yards in an inefficient manner.

7.3.20 Activity is currently largely concentrated within the existing buildings in the western area of the site and the buildings still occupied by KB throughout the site require considerable on-going maintenance to ensure their safety and to create as best a working environment as possible. Current issues include leaking roofs meaning costly repair, costly heating costs as a result of the condition of the buildings and floor levels which are no longer flat thus hindering operations.

7.3.21 In addition it is understood that the buildings present some fundamental challenges to modern railway-related operations including the existing building heights which prevent the use of more modern cranes to lift carriages from bogies; the fact that entire rakes of trains cannot currently be driven into existing buildings due to their orientation; insufficient height of buildings for double height offices which reduces efficiency; and inadequate interiors to enable effective movement of carriages as a result of columns and track layout.

7.3.22 There is a fine balance to be struck as to whether it should be accepted in principle that the demolition of the buildings as proposed is necessary. The points outlined above have been provided by the current occupiers and it is accepted that they represent some challenges to operations. Modest weight should therefore be attached to these constraints.

7.3.23 Division of the Site

7.3.24 In addition to the challenges outlined above, the applicant considers that the overall area of the site currently occupied by the railway works is too large for a modern rail business and several buildings in key locations are beyond their operational and economical lives. 7.3.25 It is estimated that by consolidating into approximately 6 hectares of the site this would provide sufficient space to deliver a successful, sustainable business from the site in a more efficient manner whilst allowing opportunity for continued growth of the business.

7.3.26 Having identified the need for approximately 6 hectares of the existing land for rail-related operations, the scheme seeks to ensure that the existing Works can be successfully accommodated within the eastern area of the site. There are a number of reasons why the proposed location of the consolidated works are proposed to be developed in the eastern area of the site:

The rail line enters the site only at one point; to the north of McConnell Drive. This rail access is fundamental to the successful operation of the business. The proposals will therefore utilise this existing rail line to service the site; Operations require frequent moving of carriages and materials to and from site. Locating operations in close proximity to the rail access point reduces the amount of shunting and movement within the site which will reduce costs and enhance efficiency; This arrangement will reduce the potential for noise and disturbance to existing and proposed residential properties; The east-west division will allow for a more successful phased relocation of operations for KB – allowing the business to operate in the western half of the site while new facilities are created to the east; The east-west division will provide flexibility as to the final apportionment of land between the rail-related use and residential, once KB have finalised their precise requirements; The proposals will enable the Works to utilise the existing brick wall along the Stratford Road frontage, providing its continued beneficial use in association with the Works. The re-use of this boundary wall will also help limit the new boundary required to separate the Works from the residential masterplan area; The east-west division of the site limits the extent of the boundary of new Works to the residential masterplan area and sensitive uses proposed within this area. This will help to limit the buffer required to protect amenity and will ensure efficiency of development; The proposal enables a new pedestrian route to be created along the bank on the southern side of the canal, leading to a new large area of open space, representing a significant public benefit from the proposed development.

7.3.27 Further Public Benefits

7.3.28 To accord with its statutory duty the Council must consider public benefits to be substantial and they must be facilitated by the ‘necessary’ demolition of the buildings (identified harm).

7.3.29 In addition to the factors outlined above the following are considered to represent significant public benefits that should be weighed against the identified harm:

The provision of new modern employment buildings offering modern and flexible accommodation to meet the needs of the business over the lifetime of the buildings; The retention of rail related employment in Wolverton whilst providing an opportunity for expansion in the future in response to demands; Floor space to support small and medium sized business to promote a mix of employment, and the locally economy; The provision of a mix of quality new homes in a sustainable and accessible location in Wolverton in order to meet an identified housing shortfall; The provision of a new heritage centre; An enhancement to the retailing offer to support the vibrancy of the town centre; Enhancing expenditure, contributing to the local economy through an increase in residential and employment population;

The provision of diverse employment opportunities;

The provision of new high quality public realm and open spaces with a minimum of 14,000 sqm of new open space created within the site which will be accessible to the wider community; An enhancement of nature conservation/biodiversity on the site; The creation of public access to the site and surroundings and the provision of a heritage interpretation strategy through the public realm, thus enhancing the residual heritage value of the site as an all-inclusive reference to the past. Accommodating the war memorial within the masterplan; and

Maximising the town’s accessibility and relationship with the Grand Union Canal. A full remediation of the site in regards to contaminated land

7.3.30 Impact

7.3.31 The railway works form an important part of the Conservation Area, however, it is noted that the Conservation Area extends far beyond the boundary of the Works to include a substantial area of housing. It is considered that the communal value of the site is one of the most important elements of the railway works and this communal value can be appreciated through the retention of a railway related use on a part of the site, as proposed, and through the retention of elements of the existing built form and in the form and design of the new scheme, as proposed. It is considered that the communal value of the site can be maintained without necessarily retaining all buildings on the site.

7.3.32 The part elevations to Buildings 1, 4 and 5 (carriage lifting shop, timber store, paint shed) are now proposed to be retained, which when combined with the boundary wall, will equate to approximately 370 metres of facade retention. This is a significant increase compared to the originally submitted scheme. These three buildings are considered to represent an interesting part of the built heritage on the site, with a limited amount of modern alteration and extension. They are also located within the centre of the proposed residential area, and therefore, will provide a focal point for the retention of the heritage interest as well as providing a framework upon which the proposed new buildings will be designed and developed. They also provide the enclosure and backdrop to new public areas which, in combination with the incorporation of rail tracks and trasversers, will provide a strong historical reference to the railway works.

7.3.33 It is acknowledged that the redevelopment will take a number of years to complete given the likely complexity of accommodating a ‘live’ operating business throughout the consolidation and relocation process. The detailed nature of the new rail-related business floorspace has not been clarified due to wider international review of the business. If permission is granted it is noted that the development of the site will be the subject of a further reserved matters applications whereby the extent, form and style of development can be strictly controlled.

7.3.34 The continuation of rail related use on the site is a very important consideration and one that should carry significant weight. All of the matters above contribute to a substantial public benefit that would be created by the proposed development. It is acknowledged that harm would be caused to the identified heritage asset but, in balancing that harm against the identified public benefits above, it is considered the harm is outweighed by public benefits.

7.4 Design Guide and Parameter Plans

7.4.1 In terms of policy context Policies D1(iii), D2 and D2A of the Local Plan and Policy CS13 of the Core Strategy require the decision maker to have particular regard to the design and visual impact of new development and to the context within which it is placed. Policy W3 of the Neighbourhood Plan requires any redevelopment to respect the historical context of the site while contributing to public amenity.

7.4.2 Section 72 of the Planning (Listed buildings and Conservation Areas) Act 1990 requires the Council to pay special attention to the desirability of preserving or enhancing the character or appearance of a conservation area. Furthermore, the core planning principles set out in paragraph 17 of the NPPF include the conservation of heritage assets in a manner appropriate to their significance.

7.4.3 Paragraph 132 of the Framework requires ‘great weight’ to be given to the conservation of the conservation area in weighing the harm against the benefits. This is echoed, albeit in different terms, under Policy CS19 of the Core Strategy and HE6 of the Local Plan.

7.4.4 In applying the above policy and guidance it is important to first understand the site context. The contrasting layout, density, variety, scale and appearance of Wolverton’s constituent areas creates a strong individual identity for the town. This is enhanced by the extent and the quality of the surviving Victorian/Edwardian domestic streets and the industrial railway works buildings. A collection of important buildings and structures from this period still survive in sufficient numbers to convey the historic scale and cohesiveness of the site’s functions, processes and purpose. Together, the repetition of forms, spaces and materials lend much of the Conservation Area a powerful and harmonious regularity. The general consistency of the built environment is balanced by a variety of uses and details which impart a subtle diversity to both individual buildings and groupings of buildings.

7.4.5 Paragraph 7.2 of the Wolverton Neighbourhood Plan states that the site has an identity and consistency of appearance stemming from its historic function as a Railway Works site, and the fact that it has survived relatively unchanged for so many years makes it nationally significant in terms of industrial heritage.

7.4.6 The 2009 Conservation Area review contains a useful assessment of the character of the Railway Works site, describing the way in which the Works buildings are “separated by the high perimeter wall from the town’s residential quarter, providing a striking contrast to the town.”

7.4.7 The Review highlights the specific characteristics of the site including long east/west linear views, the strong industrial character of the buildings, the cultural value of some of the structures and buildings and the proximity to the canal.

7.4.8 The Neighbourhood Plan consultation indicated that local people support the retention of employment use on the land, but that any redevelopment should include a mix of uses; that access to the Grand Union Canal from the town centre should be improved; that if housing is provided on the site it should make use of the existing heritage buildings; and that the range and style of housing available in the town should be improved.

7.4.9 In light of the policy context and site characteristics, the applicant has, in consultation with the Council and the local community, provided a detailed Design Guide for the residential phase of the redevelopment, accompanied with 8 parameter plans and an illustrative masterplan. Should outline planning permission be granted, any future reserved matters application would be tied to the provisions as set out in the design guide/parameter plans through the imposition of a condition on any planning permission.

7.4.10 The Design Guide has been amended several times to take account of Officer advice and local concerns. Specifically, the Code now includes a summary of the approach to the proposals and items mandatory for delivery, a series of strategic development principles, the approach to movement through and around the site, the approach to landscape and public realm and guidelines for materials and architectural/historic detailing.

Layout and Form of Development

7.4.11 The masterplan identifies the requirement for an east-west orientation of streets which will, it is considered, respect the scale and grid of the original railway sheds and their relationship to the railway tracks, traversers and working yards.

7.4.12 The plan also identifies that a network of streets will connect a sequence of public spaces and provides increased permeability to the northern edge of the site to a canal walkway. This is welcomed.

7.4.13 With such widespread demolition proposed it is essential that the form of any development responds to the heritage significance of the site, both in terms of retaining existing key features where viable and where new buildings/public realm is provided.

7.4.14 The masterplan considers the industrial nature of the existing site and, to some extent, proposes the retention of sections of the gable ends of the sheds, railway tracks and traverser tracks. This is intended to offer a Heritage Quarter at the heart of the masterplan which respects the historical character of the site.

7.4.15 The retained facades that form part of the proposed masterplan have a relationship with these areas and their retention will provide an understanding of the existing use of the site and how the spaces were historically used. The façades to be retained within the development are:

Lifting Shed - east and west gable elevation, their returns and a portion of exposed roof structure. Timber Store – east and west gable ends, their returns and a portion of exposed roof structure. West Paint Shed – west gable elevation South boundary wall fronting Stratford Road

7.4.16 The masterplan proposes a variety of different features including a Heritage Public Square, a green open space, a primary east-west route, Urban Mews Streets and a range of housing typologies. There will however be a requirement for the development to have a coherent identity and provide a sense of place which responds to the history of the site and this will be controlled through the careful design of features associated with the historical use of the site.

7.4.17 The masterplan proposes street and building layouts which aim to produce a new piece of townscape by providing a clear network of streets and frontages that reflects the previous east-west urban grain of the railway works site. This will be achieved by a clear set of entrances and routes, primary, secondary and tertiary streets, throughout the site.

7.4.18 In addition to the retention of key façades of the existing sheds, the masterplan proposes the reinstatement of several building lines. The combined retention of façades and reinstatement of the building lines, together with retention of the railway tracks and traverser tracks will set a defined layout for the proposed street network and this will form a mandatory requirement of any reserved matters applications.

7.4.19 To summarise, it is considered that the masterplan responds to the strong industrial character of the existing site and large working yards by retaining the scale of open spaces and adding housing typologies which follow the layout and character of the site.

7.4.20 Character Areas

7.4.21 The masterplan is arranged into five key character areas that are intended to respond to the existing urban character and site context:

7.4.22 Area 1 – South-East Quarter, Stratford Road Gateway

7.4.23 The South-East Quarter fronts Stratford Road and will provide a new entrance gateway. New residential units will be provided to the east entrance to the west side of the access road and an unobstructed view to the east-west boulevard will be provided.

7.4.24 The area will provide a Heritage Centre and small business units to the south east corner to present an entrance building with active frontages where possible. The building footprint of these uses will be defined by the building lines of the previous railway shed in order to conform to the grid and scale of the site and will thus provide a clear sense of place and signal an arrival onto the site, with clear interpretation and reference to the historic use of the site.

7.4.25 Area 2 - South-West Quarter, Secondary Gateway

7.4.26 Character Area 2, located to the south-west of the site, is largely comprised of land formerly used for car showroom purposes.

7.4.27 Mews housing will be provided in this area with the first block fronting Stratford Road, and the second accessed from the provision of a new mews street. The dwellings fronting Stratford Road could potentially be more reflective of the Victorian terraces that are characteristic of the wider Wolverton setting and the outline form of this application allows that element of flexibility in the determination of reserved matters applications provided the requirements of the Design Guide are met.

7.4.28 Area 3 – Central Quarter, Heritage Hub

7.4.29 Area 3 will form the largest and most significant character area and will establish the key heritage hub of the site by responding to the historical context of the site. This will be achieved through the retention of building facades, railway tracks and the scale of the open space. This character area will provide a clear sequence of spaces for an understanding of the site as a former railway works and is welcomed.

7.4.30 A Public Heritage Square will provide a public space that connects to east- west roads and open space. Clear views of the retained Lifting Shed and Timber Store gable ends, railway tracks and traverser tracks will offer a clear understanding of how these elements were connected to form a working yard and are similarly welcomed, representing a good example of urban design.

7.4.31 Area 4 – North Quarter – Canal Side

7.4.32 The northern edge of the site fronts the existing canal and this will form character area 4. The former railway works was a secure site and there are now pedestrian paths or clear views of the south side of the canal.

7.4.33 The masterplan proposes a new pedestrian path that will offer a new public experience of the canal. The path will also connect the green open spaces located to the east and west of the site.

7.4.34 Urban terrace and mews housing would be provided in this area and would follow the same orientation as the existing site with an intention to increase density to take account of the linear form of the existing railway building layout.

7.4.35 Area 5 – West Quarter – Urban Residential

7.4.36 Located behind the retained façade of the West Paint Shed, Area 5 will include four new urban apartment blocks, with terrace housing running north-south to each side.

7.4.37 The increased density in this location will provide a greater number of units which should be balanced against the retention of large open spaces. The height of the apartment buildings range from 4 to 6 storeys which, whilst higher than the existing sheds, will be sited at a lower level than Stratford Road, significantly reducing their visual impact.

7.4.38 To summarise, the masterplan proposals are considered to deliver a residential neighbourhood based on a network of streets and appropriate housing typologies to form the enclosure to the streets. Housing typologies are related in scale to the public space hierarchy in order to create a desirable level of enclosure and definition.

7.4.39 Heritage Centre

7.4.40 The proposed Heritage Centre and small business units are covered in the Design Guide and will be low rise to be in keeping with the scale of the existing railway sheds. The building footprint will follow that of the existing external built lines to reinforce the grid and scale of the former railway works which is welcomed and floor to ceiling glazing will be encouraged for the ground floor of the small business units in order to provide active frontages.

7.4.41 Heritage Public Square

7.4.42 A gateway square will be provided around a retained section of The Lifting Shed which will embed a sense of place with strong reference to the sites industrial rail heritage. To facilitate a link to the past, heritage interpretation boards, salvaged artefacts and public art will be provided to further reflect the history of the site.

7.4.43 The site wide approach to street furniture will be industrial in style and character, which will reinforce the railway heritage theme into the materiality of the public realm. Items such as salvaged railway track, timber sleepers and other railway artefacts will be incorporated into bespoke pieces of street furniture in key public areas to retain and celebrate its identity to Wolverton’s railway heritage.

7.4.44 The comments of the Council’s Conservation and Archaeology Manager, Historic England, The Amenity Societies and other consultees are noted and have been given considerable weight in concluding on this matter. Notwithstanding the negative comments that have been received there is a general acceptance that the scheme is vastly improved from its original iteration as a result of the introduction of a Design Guide and parameter plans which seek to maintain the form of built development, albeit incorporating significant demolition. On balance it is considered that the site layout and general development principles respond to the existing context and historical significance of the site. The Design Guide and parameter plans will offer assurance that any reserved matters applications will be carefully considered in the context of the design principles and assure compliance with the development plan policies outlined above.

7.5 Landscaping/Boundary Treatment

7.5.1 Soft landscaping, whether or not there is public access to it, is important for its contribution to the quality of urban life by providing important green lungs, visual breaks and wildlife habitats in built-up areas. As a result, there are various policies, both locally and nationally, that aim to protect and/or encourage the provision of important open spaces. Policies CS13 and CS19 of the Core Strategy require all development to make a positive contribution to the character of the area in which it is located. In addition, Policies D1(v) and NE4 of the Local Plan require the consideration of the natural landscape. The National Planning Policy Framework echoes this guidance.

7.5.2 The development proposes up to 375 residential units including soft landscaping, open space and public realm. Local Plan Policy L3 states new housing development will be required to provide new or improved recreational facilities in accordance with the Council’s adopted standards in Appendix L3.

7.5.3 Whilst landscaping is a reserved matter the applicant has committed to identifying an appropriate approach given the sensitivities and historical significance of the site. This is achieved through the submission documents including a landscaping strategy and the Design Guide referred to elsewhere in this report. As the Design Guide will be linked to any future reserved matters applications the approach to landscaping can be carefully considered and thereafter controlled.

7.5.4 As explained in more detail elsewhere in this report the landscape character of the site and immediate setting of Wolverton is that of industrial urban character which owes much, if not of all, to the Wolverton Railway Works.

7.5.5 The landscape strategy as outlined in the Design Guide and Landscaping Strategy has been conceived in close co-ordination with the heritage strategy, as integral to the masterplan to create a unified landscape setting to the whole development, with a distinct site specific identity.

7.5.6 There are a number of positive aspects included within the latest submission. Streets and public and private open spaces will be defined with amenity trees, which will include a number of ‘special/landmark’ trees to help with orientation, add character and help create a sense of place.

7.5.7 The landscape strategy proposes the inclusion of references to the site’s heritage as part of the hard and soft landscaping of the public spaces and squares and this is encouraged. The palette of hard landscape materials, street furniture and lighting, together with the construction detailing of the hard and soft landscape elements will be unique to this development as a reverence to the historical significance of the site. This will largely be formed by artefacts of the past including railway sleepers and other urbanising features. This is similarly encouraged.

7.5.8 The parameter plans demonstrate that a significant level of open space will be delivered through the proposed development. The precise quantum of open space and play space will be dependent upon the unit mix to come forward in the Reserved Matters phases of the proposed development, however the proposals will be required to respond to Policy L3 of the Local Plan and the associated guidance. The open space will also be required to reflect the previous use of the site through the innovative use of rail artefacts in, for example, play equipment and street furniture.

7.5.9 In light of the above comments, and subject to conditions, the proposed development is considered to be sympathetic in terms of existing landscaped features and will incorporate several links to the historical past of the site. The proposed scheme would therefore accord with development plan policies D1(v), NE4, L3 CS13 and CS19.

7.6 Ecology

7.6.1 A primary aim of the NPPF is to contribute to and enhance the natural and local environment and requires decision makers to not only conserve but enhance biodiversity. Policies NE3 of the Local Plan and CS19 of the Core Strategy reflect this national guidance locally by requiring net gains in biodiversity.

7.6.2 An Ecological Constraints Assessment was produced by in September 2014. The Assessment concluded that the buildings within the site had a combination of negligible and low potential of supporting roosting bats. It was thus recommended that a precautionary method of working be applied with regards to bats during demolition of buildings with low potential, and that a detailed pre-demolition survey should be undertaken to check for any bats prior to the commencement of works.

7.6.3 The Council’s Countryside (Ecology) Officer originally commented that the submission did not adequately demonstrate that European Protected Species would not be harmed by the development and that it would be essential that the presence or absence of European Protected Species to be established prior to the determination of the application.

7.6.4 As a result of those comments a Bat Survey Report was commissioned by the applicant in September 2016. The report provides up-to-date survey information regarding bat activity at the site and sets out the findings and recommendations following a back-to-back dusk emergence and dawn re- entry survey carried out in September 2016, and static monitoring from two recording devices positioned within specific buildings.

7.6.5 The results from those surveys establish the presence of bats and a number of mitigation measures are therefore recommended. The Council’s Countryside Officer has been re-consulted in this regard and considers the results, evaluation and mitigation recommendations to be acceptable.

7.6.6 Provided the mitigation methodologies are followed the proposed development will conserve existing biodiversity on the site, partly complying with development plan policies NE3 and CS19. This can be controlled by conditions requiring the Mitigation Strategy and Conclusions/Recommendations of the Bat Survey Report to be fully carried out.

7.6.7 With regard to ecological enhancements it is recommended that a condition is imposed on any permission requiring details of a biodiversity enhancement scheme, management plan and lighting scheme. This will ensure the proposed development will enhance biodiversity and therefore fully accord with development plan policies NE3 and CS19 and the NPPF.

7.7 Relationship with Canal

7.7.1 The application site is bounded to the north by the Grand Union Canal which links London to Birmingham and is the longest canal in the portfolio of the Canal & River Trust. The canal forms an important wildlife and recreational corridor and is a landscaped feature of historic value. Care must therefore be taken to ensure it is not degraded as a result of the proposed development.

7.7.2 Policy D3 of the Local Plan requires development alongside canals to meet a number of key objectives including, amongst others, improved public access, the protection of wildlife habitats and the presentation of a public face to the canal in keeping with local character. In addition, Policy W3 of the Neighbourhood Plan seeks to maximise opportunities to access the canal from the town centre, encouraging recreation and tourism. Ecological matters are considered under section 7.6 of this report.

7.7.3 The masterplan proposes a new pedestrian path that will offer a new public experience of the canal. The path will also connect the green open spaces located to the east and west of the site and the proposal will thus create new views of the canal which will offer an enhanced level of permeability.

7.7.4 In accordance with Policy D3, which promotes developments to positively address the canal, the residential development is likely to maximise the relationship with the canal through enhancing views of the canal from street and public space and also enhancing accessibility along the southern side of the canal. The railway works are currently a private and secure site and the proposed development will add pedestrian paths or clear views of the south side of the canal. It is considered that this will rejuvenate the area and successfully integrate the canal corridor into the fabric of the development.

7.7.5 The Canal and River Trust originally raised no objection to the scheme subject to the imposition of conditions. This recommendation is unchanged aside from a request for s106 funding for canal improvements, as a result, in their view, of the impacts that will be caused by the proposed development. This request is noted but it is not considered reasonable to seek these contributions due to the on-site improvements through links to the canal that are proposed and which will be secured by condition. It is further noted that additional on-site improvements will benefit the canal network, full detail of which is not yet known. As a result, it is not considered that further contributions for the canal network would be fairly and reasonably related in scale and kind to the development.

7.7.6 For the reasons outlined above, the proposed development is considered to be acceptable with regard to its impact on the Grand Union Canal and is thus in accord with development plan policy D3.

7.8 Access & Other Highways Matters

7.8.1 Access is not a reserved matter. It must therefore be given full consideration under this application.

7.8.2 Saved policies D1 (i) and (vi), T10 and T15 of the Local Plan and CS13 of the Core Strategy require the decision maker to have particular regard to any additional traffic generation a development may cause and the resulting impact on the surrounding road network/parking provision/access. Policy W3 of the Neighbourhood Plan requires proposals to improve linkages and movements to, from and within the site. In addition, the Milton Keynes adopted Parking Standards SPD sets out the development related parking standards for Milton Keynes and should be read in conjunction with these policies.

7.8.3 The planning application has been the subject of detailed negotiation over a long period of time. As a result, a number of alterations have been made to it from the highway perspective and this has also resulted in amendments to the highway supporting documentation. The application is supported with a Transport Assessment, Transport Modelling Figures and access plans. In addition, Framework Travel Plans have been prepared for the foodstore and employment uses, setting out how the occupiers will promote sustainable travel.

7.8.4 The McConnell Drive access will be used for HGV access to the planned employment areas of the proposed development. It is clear that smaller commercial vehicles will be able to access the employment area via the primary residential access but these will be limited to a size commensurate with those vehicles that require access to residential areas on a daily basis.

7.8.5 Access to the consented food store is to be taken from the existing access that currently serves the Wolverton Community Centre.

7.8.6 The Council’s Highways Engineer has examined the submitted transport assessment (TA) and raises no objection to the applicant’s assessment of traffic flows on Stratford Road through Wolverton. The flows are variable through the day with greater concentrations of traffic in the town during the morning and evening peak hours of 0800-0900 and 1700-1800.

7.8.7 The applicant has assessed the main junctions as follows:-

Great Monks Street/Old Wolverton Road/Stratford Road (Old Wolverton roundabout). Western Development Access/Stratford Road. Central Access/Stratford Road. Radcliffe Street/Stratford Road. Community Road Access/Stratford Road. Creed Street/Stratford Road. Newport Road/Grafton Street (Stantonbury roundabout)

7.8.8 The first iteration of the TA included traffic generated by the proposed Tesco development for a larger food store on their current site. However, since that time the consented outline planning permission (12/01551/OUTEIS) has expired. As a result the applicant has taken the opportunity of re-visiting the junction analyses.

7.8.9 The results of the re-working of the junction capacity of each junction without inclusion of the Tesco development do, as expected, show less impact. All junctions, other than the Great Monks Street/Old Wolverton Road/Stratford Road junction, are shown to operate within capacity.

7.8.10 The Old Wolverton Road approach to Old Wolverton roundabout shows a moderate increase in RFC and queue length in both the am and pm peak hour periods with smaller increases for the Great Monks Street approach. However, the increases are largely due to an increase in background traffic growth.

7.8.11 Stantonbury roundabout shows an improvement in capacity as a result of the removal of the Tesco development traffic generation and operates within capacity.

7.8.12 Access Arrangements

7.8.13 The applicant has submitted plans showing layouts of the proposed junctions and the Councils Highways Engineer raises no objection to the detail. It is noted that further detailed approval will be required under S278 of the Highways Act.

7.8.14 Throughout the processing of the application details of traffic calming on Stratford Road have been requested as a result of inappropriate speeds on this road.

7.8.15 The applicant has submitted plans showing the western access and the main access delivering a form of traffic calming and like the junctions themselves, the details can be considered as part of a reserved matters application.

7.8.16 Notwithstanding the above it is noted that the signalised crossing approved as part of the application for the new food store will also deliver a form of traffic calming.

7.8.17 Pedestrian access into the development is shown at all the vehicular access points, which is considered acceptable as is access at locations to coincide with convenient points within the built form of the proposed residential layout. A pedestrian access is also shown to emerge on the western boundary to the existing redway facility which is similarly welcomed by the Highways Engineer.

7.8.18 Only one specific point of access for cyclists is shown on parameter plan 5. This is not convenient for cycling trips further east along Stratford Road and whilst cyclists could make use of the vehicular accesses to gain entry to the proposed development it would be advantageous if additional points of access were made available at other locations along Stratford Road and at a more northerly location, to the existing redway between Stratford Road and Old Wolverton Road. The provision of these will be dependent on site levels and can be addressed in detail as part of any reserved matters application.

7.8.19 Parking

7.8.20 Whilst this application is outline with determination of access only, it is timely to state the expectation that parking for all vehicle types will be expected to comply with the current Milton Keynes Parking Standards SPD 2016.

7.8.21 In summary, the site itself, in terms of capacity to host the development, is considered to be acceptable with regards to layout and access arrangements. The proposed development is considered to be acceptable with regard to its impact on the local road network and as a result therefore accords with Policies D1 (i) and (vi), T10 and T15 of the Local Plan, CS13 of the Core Strategy and Policy W3 of the Neighbourhood Plan.

7.9 Community Safety

7.9.1 Policy CS18 of the Core Strategy requires new development to be designed to the highest standards in terms of safety and security and Policy D2(vi) of the Local Plan sets out a number of criteria to ensure the impact of development on a locality is minimised.

7.9.2 Secured by Design (SBD) is the title for a group of national police projects focusing on the design and security for new developments as well as the acknowledgement of quality security products and crime prevention projects. It supports the principles of ‘designing out crime’ through physical security and processes.

7.9.3 The applicant has engaged in substantive discussions with the Council in composing the Design Guide and in particular to ensure any reserved matters applications reflect the key principles of ‘Safer Places: The Planning System & Crime Prevention’ and section 4.3 of the Milton Keynes Council Supplementary Planning Document ‘New Residential Development’.

7.9.4 The principles set out in those documents aim to design crime out of development proposals by ensuring natural surveillance of public and semi- public spaces, by clearly defining public and private spaces, by designing car parking that is secure and overlooked and by ensuring good lighting and adequate maintenance. These principles are reflected in the Design Guide which ensures any future reserved matters applications will be tied to delivering a development that will achieve Secured by Design accreditation.

7.9.5 It is nevertheless recommended that a condition is imposed to secure this and also for the approval of lighting details to reduce the fear of crime.

7.9.6 In light of the above comments it is considered that the proposed development adequately considers community safety in accordance with Policies CS18 and D2(vi) and the Council’s Supplementary Planning Document ‘New Residential Development’. The application is thus acceptable in this regard.

7.10 Noise

7.10.1 Paragraph 123 of the NPPF requires development plan policies to adequately consider the noise implications of new development proposals. Policy D1(iv) of the local Plan states that planning permission will be refused for development that would be harmful by virtue of its noise generation or conversely whether a site is appropriate for its intended use based on the existing noise environment.

7.10.2 The application is supported by an Environmental Statement that is accompanied by a Noise Survey. The reports conclude on the matter of construction noise that a potential impact is identified along Stratford Road due to demolition activities but that this impact can be mitigated through best practicable means such as temporary noise screens/enclosures, the sensitive siting of construction compounds and sensitive working and operating hours. The Council’s Environmental Health Officer agrees with this conclusion and the development therefore accords with development plan policy D1(iv) in terms of construction noise nuisance.

7.10.3 It is anticipated that on site operations of the employment facility will be no worse than the existing noise environment and therefore noise levels incident upon existing residential receptors along Stratford Road, adjacent to the eastern half of the proposed development and proposed receptors within the site, would not be worse than existing ambient noise levels.

7.10.4 The final layout and design of the employment buildings are not yet known. The layout of the proposed development and the orientation and design of individual buildings must take into account the need to minimise noise transfer from activities associated with the employment facility to the residential phase of the development. Should permission be granted it is therefore recommended that a condition be imposed requiring a noise impact assessment and mitigation measures to be agreed prior to the commencement of phase 3 (residential) development.

7.10.5 In light of the above comments the proposed development accords with development plan policy D1(iv) in terms of noise nuisance.

7.11 Sustainable Construction

7.11.1 Policy D4 of the Local Plan requires all new development exceeding 5 dwellings or 1000sq metres of floor space to include sustainable construction methods and the policy is supplemented by the Council’s adopted SPD on Sustainable Construction. In addition, Policy W3 of the Neighbourhood Plan requires a particular emphasis to be placed on sustainable construction, subject to viability.

7.11.2 In order to accord with Policy D4 it is recommended that a condition be imposed, in line with guidance from the Sustainable Construction Officer, requiring 10% of the total CO2 emissions to be reduced through renewable energy processes.

7.11.3 In addition, Policy D4 requires a financial contribution to be made to the Carbon Offset fund which shall be secured via a s106 legal agreement.

7.12 Drainage and flood risk

7.12.1 The NPPF states that inappropriate development in areas at risk of flooding should be avoided by directing development away from areas at highest risk, but where development is necessary, making it safe without increasing flood risk elsewhere. This guidance is echoed under Policy D1 of the Local Plan which advises that planning permission will be refused where inadequate drainage is identified. In addition, the NPPF and Planning Practice Guidance requires all applicants for major developments to give priority to the provision of sustainable drainage systems unless demonstrated to be inappropriate and this is echoed by Policy CS13 of the Core Strategy and W3 of the Neighbourhood Plan.

7.12.2 The Environment Agency’s (EA) flood zone map identifies the site within Flood Zone 1 although areas approximately 800 metres north of the site are located within Flood Zone 3, associated with the River Great Ouse.

7.12.3 The ‘Risk of Flooding from Surface Water’ mapping, available through the Environment Agency website, indicates that there is a high risk from surface water flooding in the eastern part of the site and a medium risk in the western part of the site. The site lies within the Wolverton Critical Drainage Area (CDA), as identified through the Milton Keynes Surface Water Management Plan (SWMP) but no historic incidents of flooding have been recorded within a 1km radius of the site.

7.12.4 The proposed site area is over 1 hectare, and therefore under the NPPF (and NPPG) requires a site Specific Flood Risk Assessment (FRA) to be provided, outlining how flood risk will be managed now and over the development’s lifetime, taking climate change into account, and with regard to the vulnerability of its users.

7.12.5 The application is supported with a Flood Risk Assessment (FRA) and Drainage Strategy Report (DS) which have been assessed against the SuDS Non-Statutory Technical Standards, the drainage requirements of the Milton Keynes Core Strategy and the MKC Local Guidance.

7.12.6 The FRA&DS demonstrate how the proposed development will meet all requirements set out for outline planning applications in the drainage requirements of the Milton Keynes Core Strategy. As a result, the Lead Local Flood Authority (LLFA) raises no objection to the application subject to the imposition of a condition requiring the submission of a detailed drainage strategy.

7.12.7 In terms of foul drainage the site is within the catchment of Cotton Valley Water Recycling Centre and Anglian Water have confirmed that the Centre will have available capacity for the flows that would be generated by the proposed development. Anglian Water nevertheless recommend that if permission is granted, a condition is imposed requiring details of a foul water drainage strategy to be submitted.

7.12.8 In light of the above comments the proposed development accords with development plan policy D1 and the principles outlined in the NPPF in relation to drainage and flood risk.

7.13 Contaminated Land

7.13.1 The NPPF requires development plan policies to adequately consider whether application sites are appropriately located for their intended use in relation to ground contamination. Policy D1(iv) of the local Plan states that planning permission will be refused for development where unacceptable levels of pollution are identified.

7.13.2 This site is located above Principal and Secondary Aquifers, and is adjacent to the Grand Union Canal. The previous railway land use is considered to be potentially contaminative and the site is considered to be of high sensitivity which could present potential pollutant/contaminant linkages to controlled waters.

7.13.3 As a result of the historical industrial use of the site the application is supplemented with a preliminary Geo-Environmental Interpretive Report.

7.13.4 As expected for a site of this nature with a significant history of industrial use, evidence of contamination was discovered and it was established that the site is not currently fit for its proposed purpose. Furthermore the site investigation was limited due to various restrictions on the site including existing buildings and existing operations on site.

7.13.5 Whilst there is evidence of contaminative historical uses on the site, the Council’s Environmental Health Officer and The Environment Agency have raised no objection to the proposed development subject to the risks on site being further investigated and remediated as recommended in the submitted report. This can be controlled by condition, ensuring compliance with Policy D1(iv) of the Local Plan. It is noted that without these conditions, the proposed development would pose an unacceptable risk to the environment and the application could not therefore be supported.

7.14 Archaeology

7.14.1 Policy HE1 of the Local Plan seeks to protect unscheduled archaeological sites by requiring archaeological surveys and, in appropriate circumstances, mitigation measures.

7.14.2 The Council’s Archaeological Officer has been consulted and has assessed the proposal against the known archaeological resource as contained in the Milton Keynes Historic Environment Record (HER). The Officer concludes that the proposed development is not regarded as being of significant potential impact on important below ground archaeological remains and therefore considers it unnecessary to conduct any pre-determination archaeological investigation or recommend an archaeological condition in respect of the site.

7.14.3 However, should permission be granted it should be noted that it will be necessary for a detailed record to be produced over and above the existing assessments and an appropriate condition applied.

7.15 Viability/s106 Contributions

7.15.1 Policy CS21 of the Core Strategy and Policy PO4 of the Local Plan require that development of this scale adequately off-set the impacts of the development on local infrastructure. The calculations for these impacts are derived from the Councils Adopted Supplementary Planning Documents/Guidance Notes.

7.15.2 Based on the size of the development financial contributions would typically be sought for social infrastructure, education, leisure recreation and sports and the carbon offset fund. In terms of viability it is accepted that the approach to the bespoke design for the scheme, façade retention and remediation costs will represent unusually high costs for the site which will impact on the overall financial viability of the scheme. This has been independently verified. As a result, careful consideration has been given to the requirements to ensure that the facilities deemed as essential to support this development are safeguarded whilst providing an acceptable level of affordable housing.

7.15.3 On balance, it is considered that the impacts of the development can be sufficiently mitigated by applying the Section 106 requirements as set out in the table below and by requiring the provision of affordable housing units at a ratio of 10%. As such, subject to a s106 Legal Agreement to secure these contributions and affordable housing, no objections are raised by Officers with regards to Development Plan Policies CS21 and H4 and associated SPDs and SPGs.

7.15.4 It is noted that the contributions sought are considered necessary to mitigate the impact of the development and are considered to be in accordance with Regulations 122 and 123 of the Community Infrastructure Levy Regulations. The calculations are based on the development of the site for 375 dwellings.

Contribution Amount Allocation Education £3,051,501.97 Early Years provision, Primary Secondary and Post 16 Education provision. Neighbourhood £250,000 The development does not have Play the capacity to deliver its own neighbourhood play District Parks £150,000 The development does not have the capacity to deliver its own neighbourhood play Allotments £29,591.25 Expansion of local provision to cater for increased population Library £78,120.90 Expansion of local provision to cater for increased population Crematorium/Burial £31,564.00 Improvements to existing burial Grounds grounds to cater for increased population Heritage Centre Up to Provision of space on site will need £125,000 to be supplemented for fit-out and maintenance Waste £89,168.30 Waste Management to deal with Management the initial start-up costs associated with the waste generated by the development Waste Receptacles £37,500 To cater for the proposed development Emergency £17,360.20 To cater for increased population Services Carbon Offset £20,000 To offset carbon emissions

Public Art £77,000 To contribute to the provision of public art Overall Total £3,956,806.62

7.15.5 Some contributions have not been sought in this instance due to the overall viability of the scheme as well as consideration of provision for on-site facilities that can be controlled by condition. For example, contributions towards local play is omitted as a result of it being provided on site. Other contributions towards, for example, museums, University and College have been removed to ensure the critical and necessary infrastructure items as identified in the table above are safeguarded whilst maximising the level of Affordable Housing that can be viably accommodated by the scheme.

7.15.6 It is further noted in this regard that, due to a number of indefinable factors, the s106 requirements will be the subject of a review mechanism to be agreed. In terms of assurance, the review mechanism will be controlled through the legal agreement and will be applied in an upward trajectory only, i.e. the 10% affordable housing figure could not be reduced. Finally, it is noted that the contributions will be sought on a pro-rata basis (based on number of dwellings to be bought forward).

7.16 Conclusion/Summary

7.16.1 In concluding on the matters outlined above a balanced approach must be taken in order to ensure local and national planning policy guidance, legislation, and the statutory duties of the Council have been fully considered in reaching a recommendation/decision.

7.16.2 That balance begins with the status of the Council’s five year housing land supply. The Council cannot currently demonstrate a five year supply of housing and must therefore rely on the provisions of Paragraph 14 of the NPPF which outlines a presumption in favour of sustainable development. In light of the comments outlined in the main body of this report it is concluded that the proposed development would be sustainable in terms of the social, environmental and economic threads as set out in the NPPF. This weighs significantly in favour of the proposed development.

7.16.3 The proposal has been the subject of much assessment and review in terms of its impact upon the significance of identified heritage assets, including the provision of a Heritage Statement and a Built Heritage Assessment. These assessments have, along with previous consultation responses and input from Historic England, substantially amended the scheme. The proposal has been the subject of a major design review, including the retention of existing structures or parts thereof, a far more contextual design, and the integration of numerous historical references. The buildings and the planned linear form of the site is representative of its function, collectively and individually, and the nature of the industry. These matters weigh in favour of the proposed development.

7.16.4 The original iteration of the scheme garnered a high level of opposition with 51 representations received objecting to the application and no support. As a result of the proposed amendments public opposition has been reduced with a total of 16 objections received (from only 8 individuals) and significantly, 26 representations received in support of the application. This level of support, particularly in comparison to the previous level of objection, weighs in favour of the application.

7.16.5 Notwithstanding the positive aspects outlined above it is fully acknowledged that there is a degree of harm that would be caused by the proposed development. That harm is primarily based on the loss of the railway works as an entire entity and the ‘unjustified’ loss of several buildings that make up the works. The harm is considered substantial by the Council’s Conservation and Archaeology Manager, Historic England and The Victorian Society. This weighs significantly against the application and must be weighed against any identified public benefits.

7.16.6 A number of public benefits are considered to offset the identified harm. These include; the provision of new modern employment buildings offering modern and flexible accommodation to meet the needs of business over the lifetime of the buildings; the retention of rail related employment in Wolverton whilst providing an opportunity for expansion in the future in response to demands; the addition of floorspace to support small and medium sized business to promote a mix of employment, and the local economy; the provision of a mix of quality new homes in a sustainable and accessible location in Wolverton in order to meet an identified housing shortfall; the provision of a new community facility; an enhancement to the retailing offer to support the vibrancy of the town centre; the creation of greater public access to the site and the provision of a heritage interpretation strategy through the public realm, thus enhancing the residual heritage value of the site as an all-inclusive reference to the past.

7.16.7 In balancing the above matters, and considering the statutory duties placed on the Council, the harm identified by the Historic England, the Conservation Officer and the Victorian Society (amongst others) is acknowledged. However, the positive elements of the scheme outlined above (including substantial public benefits) are considered to weigh substantially in favour of the application. The identified benefits are considered to support the application in terms of its assessment against the social, environmental and economic threads of sustainable development as outlined by the NPPF and thus tip the balance in favour of a recommendation to approve the application

7.16.8 Arguments that the application is premature would not justify a refusal of the application given that it has been concluded that the harm would not outweigh the benefits of the proposed development. This conclusion would accord with the presumption in favour of sustainable development as outlined by the NPPF. It is recommended that outline planning permission is granted subject to the completion of a s106 for the items identified in paragraph 7.15.4 and subject to the conditions set out in section 8 of this report.

8.0 CONDITIONS (The conditions that need to be imposed on any planning permission for this development to ensure that the development is satisfactory. To meet legal requirements all conditions must be Necessary, Relevant, Enforceable, Precise and Reasonable )

1. Approval of the details of the siting, design and external appearance of the buildings and landscaping of the site (hereinafter called "the reserved matters") shall be obtained from the Local Planning Authority.

Reason: Outline Planning Permission only is granted in accordance with the application submitted.

2. Application for approval of all the reserved matters must be made to the Local Planning Authority before the expiration of five years from the date of this permission.

Reason: To comply with Section 92(2) of the Town and Country Planning Act 1990.

3. The development within any phase or part of the development hereby permitted shall be begun on or before the expiration of three years from the date of the approval of the last of the reserved matters of that phase or part.

Reason: To comply with Section 51 of the Planning and Compulsory Purchase Act 2004.

4. All reserved matters applications shall accord with the principles as set out in the Design Guide (Revision B) by Purcell dated October 2016.

Reason: In order to clarify the terms of this planning permission and ensure that the development accords with the principles submitted in support of the outline planning application in accordance with Policies CS13 and CS19 of the Milton-Keynes Core Strategy 2013 and Saved Policies D1(i, iii, v, iv), D2, D2A, D3, HE6 and NE4 of the Milton-Keynes Local Plan 2001-2011.

5. No demolition works shall take place until a method statement, outlining the processes for the protection and consolidation of the retained structures as well as their long term maintenance, has been submitted to and approved in writing by the Local Planning Authority.

Reason: To ensure the long term protection of elements of built heritage that contribute to the character of the Conservation Area in accordance with Policy CS19 of the Milton Keynes Core Strategy 2013 and Policy HE6 of the Milton Keynes Local Plan 2001-2011.

6. The hours of working on any phase or part of the development during the construction period shall be restricted to 08:00-18:00 Monday to Friday, 08:00-13:00 on Saturdays and no working shall take place on Sundays and Public Holidays. For the purpose of clarification of this condition, the term 'working' means the use of plant or machinery (mechanical or other), the carrying out of any maintenance/cleaning work on any plant or machinery, deliveries to the site and the movement of vehicles within the curtilage of the site.

Reason: To minimise disturbance to occupiers of completed and nearby dwellings.

7. Prior to the commencement of development of any phase or part of the development, a Construction Environmental Management Plan (CEMP) shall be submitted to and approved in writing by the Local Planning Authority. The CEMP shall include Noise Action Levels (based on a noise survey) and site procedures to be adopted during the course of construction including:

working hours intended routes for construction traffic details of vehicle wheel washing facilities location of site compound lighting and security control of dust and other emissions

The development shall be carried out in accordance with the approved CEMP.

Reason: To ensure there are adequate mitigation measures in place and in the interests of amenities of existing and future residents.

8. Reserved matters applications for each phase or part of the development shall incorporate measures to minimise the risk of crime in accordance with Secured by Design principles. All dwellings shall achieve Secured by Design accreditation as awarded by Thames Valley Police. The development shall be carried out in accordance with the approved measures prior to the occupation of the residential dwellings.

Reason: To design out crime and promote well-being in the area.

9. All existing trees and hedgerows to be retained shall be protected in accordance with the latest British Standards (currently BS 5837:2012 'Trees in relation to design, demolition and construction-Recommendations') at the time construction begins. All protective measures must be in place prior to the commencement of any building operations (including any structural alterations, construction, rebuilding, demolition and site clearance, removal of any trees or hedgerows, engineering operations, groundworks, vehicle movements or any other operations normally undertaken by a person carrying on a business as a builder). The Root Protection Area (RPA) within the protective fencing must be kept free of all construction, construction plant, machinery, personnel, digging and scraping, service runs, water-logging, changes in level, building materials and all other operations. All protective measures shall be maintained until all equipment, machinery and surplus materials have been removed from the site.

Reason: To protect significant trees and hedgerows, safeguarding the character of the area and preserving habitat and to minimise the effect of development on the area in accordance with Policies D1 and D2A of the Milton-Keynes Local Plan 2005 and Policy CS13 of the Milton-Keynes Core Strategy 2013.

10. Prior to the commencement of the development hereby permitted a Biodiversity Enhancement and Management Scheme detailing specification and locations of biodiversity enhancements and their longer term management including bird and bat boxes incorporated into the development shall be submitted to approved by the Local Planning Authority. The approved scheme shall be implemented prior to the first occupation of the development and retained thereafter.

Reason: To ensure development includes biodiversity enhancement measures in accordance with saved Policy NE3 of the Milton Keynes Local Plan 2005.

11. All recommendations made under Chapters 5: Mitigation Strategy and 6: Conclusions & Recommendations of the submitted Bat Survey Report dates 19 October 2016 and the mitigation recommendations set out from pages 186 to 192 of the submitted Environmental Statement dated July 2015 shall be fully implemented at the associated stage of development.

Reason: In order to ensure appropriate protection of protected species in accordance with Policy CS19 of the Milton Keynes Core Strategy 2013 and Policy NE2 of the Milton Keynes Local Plan 2001-2011.

12. No development (including demolition) shall take place until details of the protective fencing to be erected to safeguard the waterway (canal) infrastructure during construction of the development have been submitted to and approved in writing by the Local Planning Authority. The development shall thereafter be implemented in accordance with the approved details.

Reason: In order to allow for appropriate ecological protection in accordance with Policy NE3 of the Milton Keynes Local Plan 2001-2011.

13. A lighting plan shall be submitted to and approved by the Local Planning Authority prior to the commencement of each phase or part of the development. If any lighting is required within the vicinity of current or built-in bat features, it shall be low level, with baffles to direct the light away from the boxes and units, thus preventing severance of bat commuting and foraging routes. The approved scheme shall be implemented prior to the occupation of each associated dwelling in that phase or part and thereafter maintained.

Reason: In order to comply with saved policy NE2 of the Milton Keynes Local Plan 2001–2011

14. Prior to the commencement of each phase or part of the development a scheme showing the proposed boundary treatments for that phase or part shall be submitted to and approved in writing by the Local Planning Authority. The approved boundary treatments shall be in accordance with the approved details for that phase or part and be completed prior to the first occupation of each dwelling or first use of such phase or part of the development.

Reason: To ensure a satisfactory appearance for the development in the interests of visual amenity and privacy in accordance with Policy CS13 of the Milton-Keynes Core Strategy 2013 and Policies D1 and D2A of the Milton- Keynes Local Plan 2001-2011.

15. No development shall take place in any phase or part of the development until a foul water strategy for that phase or part has been submitted to and approved in writing by the Local Planning Authority. No dwellings in that phase or part shall be occupied until the works have been carried out in accordance with the approved foul water strategy for that phase or part.

Reason: To prevent environmental and amenity problems arising from flooding.

16. No development shall take place in any phase or part of the development until a detailed design, and associated management and maintenance plan, for a surface water drainage scheme, based on sustainable drainage principles for that phase or part has been submitted to and approved in writing by the local planning authority. The management and maintenance plan shall include a detailed time table for the implementation of the surface water drainage scheme. The approved drainage scheme shall subsequently be implemented in accordance with the approved detailed design and in accordance with the approved time table for implementation and be retained thereafter. No dwellings in that phase or part shall be occupied until the works have been carried out.

Reason: To ensure satisfactory and sustainable surface water drainage to prevent the increased risk of flooding on or off site.

17. Prior to construction works (including demolition) commencing on the site the developer shall carry out an investigation of on-site contamination (including chemical, radiochemical, flammable/toxic gas, asbestos, biological and physical hazards and any other form of other contamination).

The results of this survey detailing the nature and extent of any contamination, together with a remedial strategy deemed necessary to bring the site to a condition suitable for its intended use, shall be submitted to and approved by the Local Planning Authority before construction works commence.

Any remedial works shall be carried out in accordance with the approved strategy and validated by submission of an appropriate verification report prior to first occupation of the development.

Should any unforeseen contamination be encountered the Local Planning Authority shall be informed immediately. Any additional site investigation and remedial work that is required as a result of unforeseen contamination will also be carried out to the written satisfaction of the Local Planning Authority.

Reason: To ensure that the site is fit for its proposed purposed and any potential risks to human health, property, and the natural and historical environment, are appropriately investigated and minimised.

18. No development shall take place in any phase or part of the development until the applicant has employed a competent archaeologist, surveyor or architect to record the buildings, structures and railway infrastructure to a specification agreed in writing with the Local Planning Authority for that phase or part. The record will comply with the standards set out by A Guide to Good Recording Practice, Historic England (2016). It will comprise a report with plans, elevations and sections of the building at a scale of 1:50, accompanied by a written description of the buildings and the sites development, together with a photographic record of the interior and exterior. All photographs will be dated and annotated. A bound hard copy and digital copy of the building recording report will be deposited with the Milton Keynes Historic Environment Record prior to building works or demolition commencing, and within three months of the recording survey being completed. Project Details and a digital copy of the report will be uploaded to the Archaeology Data Service OASIS website.

Reason: To ensure that affected heritage assets are adequately recorded pursuant to paragraph 141 of the National Planning Policy Framework

19. The employment land as outlined on the submitted phasing plan reference 209 rev C (excluding the additional space for small businesses) shall be restricted to rail-related employment uses.

Reason: In order to maintain a historical link to the past use of the site and preserve the character of the Wolverton Conservation Area in accordance with Policy CS19 of the Milton Keynes Core Strategy 2013 and Policy HE6 of the Milton Keynes Local Plan 2001-2011.

20. Should any vibro-impact equipment be used during the course of demolition/construction, a risk assessment and method statement shall be submitted to and approved in writing by the Local Planning Authority. The development shall thereafter be carried out in accordance with the approved details or particulars.

Reason: In order to prevent any piling works and vibration from de- stabilising or impacting the railway.

21. The development hereby permitted shall not exceed 375 dwellings (Use Class C3) and (shall not exceed) 30,000sq metres of employment floor space (Use Classes B1/B2/B8). The use classes are those set out in the Town and Country Planning (Use Classes) Order 1987 (as amended) or in any provision equivalent to that Class in any statutory instrument revoking or re-enacting that order with or without modification.

Reason: To ensure development conforms to the outline planning permission and avoid an overdevelopment of the site.

22. Reserved matters applications for each phase or part of the development shall be accompanied by a Sustainability Statement for that phase or part including as a minimum details required by saved policy D4 of the Milton Keynes Local Plan 2001-2011 and accompanying Supplementary Planning Document ‘Sustainable Construction’. The approved details shall be implemented for each dwelling prior to the occupation of that dwelling.

Reason: To ensure the development complies with saved Policy D4 of the Milton Keynes Local Plan 2001-2011.

23. No development shall take place with regard to the residential phase of development until a noise assessment has been submitted to and approved in writing by the Local Planning Authority. The assessment shall determine the impact that the employment and all other facilities will have on the internal and external noise levels at dwellings and shall include appropriate mitigation measures. The development shall thereafter be carried out in accordance with the identified mitigation measures.

Reason: In the interests of the amenities of future occupiers of the dwelling houses in accordance with Policy CS13 of the Milton Keynes Core Strategy 2013 and Policy D1 of the Milton Keynes Local Plan 2001-2011.

24. Notwithstanding the approved drawings, prior to the commencement of any works to the Stratford Road wall, detailed drawings shall be submitted showing the design of the retained and amended wall along Stratford Road with coping to match the existing corbelled (overhanging) brick courses. The development shall be carried out thereafter in accordance with the approved details.

Reason: To preserve the character and appearance of the Wolverton Conservation Area in accordance with Policy HE6 of the Adopted Local Plan, sustain the significance of the designated heritage asset in accordance with paragraph 131 of the National Planning Policy Framework.

25. Prior to the commencement of any works to the Stratford Road wall, detailed drawings shall be submitted to the local planning authority that show the extent of existing brick work to be retained and confirm the re-use of bricks from the dismantled upper sections of the wall to form the new, lower coping. Should any new brickwork be required, the applicant will construct a 1m2 sample panel of the proposed replacement brickwork to the local planning authority for approval prior to the commencement of any replacement work. The development shall be carried out thereafter in accordance with the approved particulars.

Reason: To preserve the character and appearance of the Wolverton Conservation Area in accordance with Policy HE6 of the Adopted Local Plan, sustain the significance of the designated heritage asset in accordance with paragraph 131 of the National Planning Policy Framework.

26. Following the completion and initial occupation of the foodstore hereby approved, no more than two Heavy Goods Vehicles shall access the site in any day.

Reason: To minimize the impact of the development upon highway congestion and the free flow of traffic in the vicinity of the site.

27. Prior to the occupation of the development hereby permitted a Traffic Management Plan (TMP) for phases 1 and 2 shall be submitted to and be agreed in writing by the local planning authority. The TMP shall include provisions to prevent parking and obstruction along the access road serving the development. The TMP so approved shall be fully implemented prior to the initial occupation of the development hereby permitted.

Reason: To prevent obstruction of the access resulting in traffic queuing back onto Stratford Road to the detriment of Highway safety and the free flow of traffic contrary to Policy T10 of the Adopted Local Plan.

28. No other part of the development shall commence until the new means of access and any necessary alterations to existing accesses in any phase or part of the development have been sited, laid out and constructed for that phase or part, in accordance with details to be approved in writing by the Local Planning Authority. The development shall thereafter be carried out in accordance with the approved details and constructed in accordance with Milton Keynes highway specification.

Reason: In order to minimise danger, obstruction and inconvenience to users of the highway and of the development.

29. No buildings or structures on the site shall be demolished until:

(a) A contract for the carrying out of works of redevelopment of the site has been made; and (b) Planning permission has been granted for the redevelopment for which the contract provides.

Reason: In order to avoid the unnecessary loss of important buildings and to ensure all reasonable steps are taken to ensure the new development will proceed after the loss has occurred.

LOCATION PLAN

PHASING PLAN – Residential (pink)/Employment (purple)/Foodstore (yellow)

RESIDENTIAL MASTERPLAN Appendix to 15/02030/OUTEIS

A1.0 RELEVANT PLANNING HISTORY (A brief outline of previous planning decisions affecting the site – this may not include every planning application relating to this site, only those that have a bearing on this particular case)

A1.1 04/01694/ADV one non-illuminated fascia sign, four non-illuminated panel signs and two non-illuminated information signs PEAVNZ 05.11.2004

A1.2 10/00379/FUL Relocation of the Bloomer Replica Locomotive on a plinth, and associated alterations to the adjacent car park including fencing PERMITTED 25.05.2010

A1.3 10/00380/CON Conservation area consent for the demolition of the frontage wall at the site of the Replica Bloomer Locomotive plinth PCONAZ 25.05.2010

A1.4 13/01002/FUL Extension of time to planning permission 10/00379/FUL for the relocation of Bloomer replica locomotive on plinth and associated alterations to the adjacent car park including fencing PERMITTED 11.07.2013

A1.5 13/01004/CON Extension of time to conservation area consent 10/00380/CON for the demolition of frontage wall at the site of the Bloomer replica locomotive plinth PCONAZ 11.07.2013

A1.6 16/00321/FUL Replacement of 6 windows in North side elevation REFUSED 04.04.2016

A1.7 16/00360/FUL Partial demolition of the Stratford Road wall, removal of two trees, and erection of a foodstore of 2,478 sqm GIA with associated access including new pedestrian ramp and steps, servicing, parking and landscape. PERMITTED 21.09.2016

A2.0 ADDITIONAL MATTERS

(Matters which were also considered in producing the Recommendation)

A2.1 None

A3.0 CONSULTATIONS AND REPRESENTATIONS (Who has been consulted on the application and the responses received. The following are a brief description of the comments made. The full comments can be read via the Council’s web site)

Comments Officer Response

A3.1 Wolverton & Greenleys Town Council Noted. Please refer to sections 7.2-7.4, 7.8.7.15-7.16 and conditions 4, 5, 19, 21, 24, 25 and 26 of main body of report Wolverton and Greenleys Town Council welcome the effort to respect the history of the site to a much higher degree in the Phase 3 residential area than did the original proposals.

Although much improved, the Town Council do not think it is yet the best that could be achieved. The Wolverton Neighbourhood Plan required the whole site to be considered at the same time.

The TC are firmly of the view that the requested outline permission should not be granted until there is considerable detail supplied about the central Knorr Bremse section. If this detail is not yet available, then the application should be withdrawn until it is. If not withdrawn, then the application should be rejected. It is completely unacceptable to TC to give any permission to a large blank space on such an important site.

If permission is granted the TC would like to see the proposed new road aligned with the McCorquodale road so that the element of the grid system is reproduced as per the neighbourhood plan.

The TC have concerns over the amount of housing that has been proposed. They seek assurances that healthcare and school places that are within this area will be accommodated without a having a huge impact on the current resources.

Concerns are also raised about 4-6 storey housing/apartments. They consider that this would represent an overdevelopment of the site and would not be in keeping with the area.

The retention of 350 meters of the wall along Stratford Road is welcomed by the TC, however the Neighbourhood plan indicates that “any proposed openings along the wall should be kept to a minimum….and to retain as much of the wall….integrity where it has to be removed ensure that it has replaced by structural features to reflect its industrial heritage” The plans state that Stratford Road wall will be mainly kept, in front of the employment land and lowered in height along the food store. The TC would like the existing two doors in the wall at the end of Cambridge Street to be retained in the wall as these are a historical feature.

Concerns are raised about the access from Stratford Road in to the small road behind the Old Bath House for heavy goods vehicles, the preference from the TC is that the new access road takes the HGV via north end of Tesco’s off McConnell drive to ensure that congestion on Stratford road is avoided. The TC are concerned that they have not seen the plans on the Bus Stop relocation on Stratford Road, nor have the local residents which are directly affected. They are concerned about the reallocation of this bus stop, specifically how this will impact on businesses through the loss of prime parking spaces.

A3.2 MKC Highways Development Control Noted. See section 7.8 of report

No objections subject to conditions

A3.3 MKC Conservation & Archaeology Noted. See sections 7.2-7.4, 7.16

Object on the grounds that the proposed demolition would cause substantial harm to the significance of the Wolverton Conservation Area. They are not convinced that demolition on this scale is necessary and therefore maintain their objection to the application.

A3.4 Historic England Noted. See sections 7.2-7.4, 7.16 and conditions

Historic England consider the proposals to have been improved significantly since the application was initially submitted. However, they consider that the proposal would still entail substantial harm to the significance of the Wolverton Conservation Area owing to the extent of demolition proposed. They are not convinced that demolition on this scale is necessary and therefore maintain their objection to the application.

A3.5 MKC Urban Design Noted

The following comments reinforce Urban Design’s support in principle for this proposal.

If the development of this site is delivered as suggested by the masterplan and the scheme is in accordance with the guidance provided, the development will be of a very high standard in terms of its urban form and character, but more importantly it will be a scheme that reflects the historical industrial layout of the site.

A3.6 MKC Countryside Officer Noted. See section 7.6 of report and conditions 10 and 11.

In line with recognised good practice and governmental policy on biodiversity and sustainability (National Planning Policy Framework 2012 & NERC 2006), all practical opportunities should be taken to harmonise the built development with the needs of wildlife.

Following the receipt of amended surveys which confirm the presence of bats the Countryside Officer is happy with the mitigation strategy approach suggested in the Bat Survey Report.

A3.7 MKC Archaeology Officer Noted and actioned as per condition 18

The Council’s Archaeological Officer has assessed the proposal against the known archaeological resource as contained in the MK Historic Environment Record (HER). In conclusion the Officer states that the proposed development is not regarded as being of significant potential impact on important below ground archaeological remains. As such it is, in the Officer’s view, unnecessary to conduct any pre- determination archaeological investigation nor is it recommended that an archaeological condition be imposed should permission be granted.

With regard to the existing structures on the site, the Officer states that it is widely acknowledged that these are largely of historic significance. Should permission be granted the Officer recommends that it will be necessary for a detailed record to be produced over and above the existing assessments and an appropriate condition imposed.

A3.8 Council of British Archaeology Noted

No comments received

A3.9 MKC Environmental Health Officer Noted and actioned as per condition 17

The Officer comments that for a site of this nature with a significant history of industrial use evidence of contamination was discovered and it was established that the site is not currently fit for its proposed purpose. Furthermore the site investigation was limited due to various restrictions on the site including existing buildings and existing operations on site. The Officer has no objections to the proposal on the basis that the risks on site are further investigated and remediated as recommended in the submitted preliminary Geo-Environmental Interpretive Report.

A3.10 MKC Landscape Services - Trees Noted

No comments received

A3.11 MKC Landscape Architect Noted. See section 7.5 of report

The Officer outlines a number of positive aspects to the scheme including references to the site’s heritage as part of the hard and soft landscaping of the public spaces and squares as well as the creation of small woodlands and a strong landscaped edge along the western boundary and redway route.

The Officer considers further work to be required in relation to the relationship with the Grand Union Canal Wildlife Corridor as well as additional tree survey work.

A3.12 British Waterways Noted and actioned under sections 7.4-7.7 and 7.12 of this report and conditions 4, 9, 10, 11, 12, 13, 14, 15, 16 No objection is raised by the Trust subject to the imposition of suitably worded conditions relating to ecological matters, contamination, boundary treatment, drainage, landscaping and lighting and the entering into a legal agreement to secure improvements to the canal towpath.

A3.13 Environment Agency Noted

No comments received

A3.14 Anglian Water Noted. See section 7.12 of report and conditions 15 and 16

The foul drainage from this development is in the catchment of Cotton Valley Water Recycling Centre that will have available capacity for these flows.

Anglian Water request that a condition requiring details of a foul water strategy to be imposed if permission is granted as well as a number of informative notes advising of the applicants responsibility with regard to Anglian Water infrastructure.

A3.15 Local Lead Flood Authority Noted. See section 7.12 of report and conditions 15 and 16

The Officer comments that the site is located in Flood Zone 1 with a areas approximately 800m north of the site within Flood Zone 3. The Officer confirms that no historic incidents of flooding have been recorded within a 1km radius of the site.

The Flood Risk Assessment & Drainage Strategy Report clearly demonstrates how the proposed development will meet all requirements set out for outline planning applications in the drainage requirements of the Milton Keynes Core Strategy.

The Officer does not object to the planning application subject to the imposition of conditions requiring a detailed drainage strategy

A3.16 Network Rail Noted and actioned under condition 20

Network Rail comment that there is a parcel of land which falls inside the applicant’s red line boundary but is within Network Rail ownership.

In addition, Network Rail comment that if vibro-compaction machinery / piling machinery or piling and ground treatment works are to be undertaken as part of the development, details of such should be controlled by condition.

Network Rail note the proximity to Wolverton Railway Station and ask that consideration is given to developer funding to enhance Wolverton Railway Station as a consequence of the potential for increased footfall.

A3.17 MKC Crime Prevention Design Advisor Noted

No comments received

A3.18 MKC Development Plans Manager Noted

No comments received

A3.19 MKC Economic Development Noted

The Council’s Economic Development Manager supports the application on the basis that the proposed development will create employment opportunities within the new food store and within the new employment floor space. In addition it is stated that the development supports the priorities of the Milton Keynes Economic Development Strategy 2011-2016 by creating an environment that will foster business and employment growth within a diverse, more knowledge based and competitive economy by encouraging innovation, enterprise and skills improvement.

A3.20 MKC Education Sufficiency & Access Noted

No comments received

A3.21 Housing Strategy (Affordable Housing) Noted

The development requires 113 (30%) Affordable Housing units based on a total of 375 properties as per the Local Plan Policy H4 and the Affordable Housing SPD 2013.

A3.22 Future Wolverton Noted. Please refer to sections 7.2-7.4, 7.8.7.15-7.16 and conditions 4, 5, 19, 21, 24, 25 and 26 of main body of report Future Wolverton wish to see employment uses on the site retained in accordance with the Milton Keynes Development Plan but welcome a number of the development proposals including the style of development and the links to the historic past. They do however have concerns about the lack of detail in the application regarding the retention of the railway employment on the site.

Specific concerns are raised about cycle and pedestrian links, particularly adjacent to the canal, the loss of important heritage features including the wall fronting Stratford Road and the buildings on site, the maintenance of retained structures and open space/public realm, vehicular speed limits within the heart of the site, the contribution to lifetime home standards and whether sufficient financial contributions will be provided.

A3.23 Ancient Monuments Society Noted

No comments received

A3.24 Twentieth Century Society Noted

No comments received

A3.25 The Georgian Group Noted

No comments received

A3.26 The Garden History Society Noted

No comments received

A3.27 Society For Protection of Ancient Buildings Noted

No comments received

A3.28 Victorian Society Noted. See sections 7.2-7.4 and 7.16

It is noted that no comments have been received from the Victorian Society in relation to the amendments made. However, comments were made in relation to the original submission.

The Society objected to the application on the basis of the level of demolition proposed with insufficient justification provided. The Society considered that the development represented substantial harm and therefore permission should not be granted.

A3.29 Ward - Wolverton - Cllr Marland Noted No comments received

A3.30 Ward - Wolverton - Cllr Middleton Noted No comments received

A3.31 Ward - Wolverton - Cllr Miles Noted No comments received

Local Residents Noted

The occupiers of 997 properties were consulted in relation to the originally submitted application. A total of 55 responses were received, summarised as follows:

4 representations neither objecting nor supporting the application. 51 representations (from 33 separate individuals) objecting to the application on the following grounds:

Premature submission of application Accuracy of plans Impact on local infrastructure Impact on Conservation Area Loss of heritage/buildings Scale of proposed buildings Lack of interaction with canal Impact on the presence of the Royal Train Overlooking Highway safety Traffic congestion Loss of parking Inadequate access Proliferation of supermarkets Contaminated land Impact on protected species Loss of jobs

A re-consultation exercise was undertaken following the receipt of amended and additional documents. A total of 44 have been received, summarised as follows:

2 representations neither objecting nor supporting the application. 26 representations supporting the application. 16 representations (from 8 separate individuals) objecting to the application on the following grounds: Impact on Conservation Area Loss of heritage/buildings Relocation of bus stop Highway safety Traffic congestion