APP
01
Application Number: 14/02799/FUL
Redevelopment of site to provide 73 dwelling units with associated car parking and new access from North Crawley Road (amended)
AT North Crawley Road, Newport Pagnell, MK16 9TG FOR Bellway Homes Ltd (North Home Counties) Target: 18th March 2015 Ward: Newport Pagnell South
Parish: Newport Pagnell Town Council
Report Author/Case Officer: Nicola Wheatcroft
Contact Details: 01908 253238 [email protected] Team Leader: Sarah Evans Team Leader Strategic Applications Team
Contact Details: 01908 253326 [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 consultee 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 Site
The site comprises 1.98 hectares of employment land on a small commercial estate on the eastern edge of Newport Pagnell. The site, now cleared, consisted of a group of warehouse buildings and a brick office block (Newport House) all with on-site parking, served from a shared access to North Crawley Road adjacent to its junction with Tickford Street. The site lies in a mixed use area of residential and commercial/employment uses.
1.3 The site is a distorted rectangle in shape and adjoins the Newport Pagnell household and commercial waste site to the eastern boundary; the northern boundary adjoins farmland whilst the western boundary adjoins two storey commercial buildings located within Vantage Court behind whilst the northern section of the western boundary adjoins residential bungalows in The Canons. To the southern boundary the site fronts North Crawley Road extending along the junction, for a short length with Tickford Street. The junction of these two roads is controlled by a mini-roundabout with an uncontrolled pedestrian crossing to the front of the site. Opposite are two storey dwellings, whilst Renny Park Estate is located opposite the site on North Crawley Road. An electricity sub-station is located on the site, accessed from Tickford Street and a footpath straddles the northern boundary. All boundaries are planted with trees and other planting with a more extensive treed area on the northern boundary with the adjoining farmland. The eastern boundary with the adjacent recycling centre is planted with mature trees and the western boundary comprises of mesh fencing inter-planted through to the first section of the boundary after which it converts to fencing and conifer planting.
1.4 The Proposal
This application seeks the redevelopment of the site for residential use with a total of 73 dwellings proposed (at a density of 37 dwellings per hectare) with a combination of apartments and a mix of house types and sizes, including terraced through to detached dwellings, with 30% affordable housing being proposed.
1.5 Access is proposed to be taken off the North Crawley Road/Renny Park Road roundabout and comprises a single major street which serves the development and terminates at the northern end of the site in a turning head. This road is sized to accommodate a bus route. A redway is proposed along the site frontage but without being connected beyond the site boundaries.
1.6 Internally the site is laid out in a series of cul-de-sacs and dwellings and apartments are located to front the main road and side streets. Dwellings and apartments front or are positioned side on to Tickford Street and North Crawley Road and are set behind a planted verged area with footpath links through to the development from the main roads. Within the site the houses extend to the side boundaries with a planted and treed buffer to the eastern boundary separating the site from the recycling facility adjacent.
1.7 The apartments and dwellings range between two and three storeys in height, including rooms in the roof space and are proposed to be constructed in brick and rendered or painted elevations under pitched tiled or fibre-cement slate roofs. Parking takes the form of predominantly on-plot parking with some grouped parking and a small element of grouped tandem parking. A 4 -4.5 metre high acoustic fence is proposed to separate the development from the recycling facility.
2.0 RELEVANT POLICIES
(The most important policy considerations relating to this application)
2.1 National Policy
National Planning Policy Framework paragraphs:
Paragraph 4:
Accordance with Development Plan
- Paragraph 14:
- Presumption in Favour of Sustainable Development
Paragraph 17: Paragraph 22: Paragraph 29: Paragraph 37: Paragraph 48: Paragraph 50: Paragraph 58: Paragraph 60:
Core Planning Principles Employment Sites Promoting Sustainable Transport Policies should aim for a balance of land uses in an area Windfall Sites Affordable Housing Design Planning should not impose architectural styles or tastes
Paragraph 69: Creating healthy and inclusive environments Paragraph 93, 99-103: Meeting the challenge of climate change and flooding
- Paragraph 98:
- Sustainability
Paragraphs 109 & 118: Natural Environment Paragraphs 120 -124: Pollution and Contamination
2.2 Local Policy
Core Strategy CSA: Presumption in Favour of Sustainable Development CS1: Development Strategy CS2: Housing Land Supply CS8: Other Areas of Change CS9: Strategy for the Rural Areas CS11: A Well Connected Milton Keynes CS12: Developing Successful Neighbourhoods CS13: Ensuring High Quality, Well Designed Places CS18: Healthier and Safer Communities CS21: Delivering Infrastructure
Adopted Milton Keynes Local Plan 2001-2011(Saved Policies)
- S1:
- General Principles
D1: D2a D2: D4: NE3: T1:
Impact of Development Proposals on Locality Urban Design Aspects of New Development Design of Buildings Sustainable Construction Biodiversity and Geological Enhancement Transport User Hierarchy
T3 & T4: Pedestrians and Cyclists T5: T9: T10: T15: T17:
Public Transport The Road Hierarchy Traffic Parking Provision Traffic Calming
EA4A: New Strategic Reserves H2: Priority Housing Requirements H3 & H4: Affordable Housing incl Thresholds H7: Housing on Unidentified Sites H8 & H9: Housing Density and Mix
- E1:
- Protection of Existing Employment land
L3: PO1:
Standards of Provision General Policies
- PO4:
- Percent for Art
Supplementary Planning Guidance Parking Standards (Jan 2005) and Addendum (2009) Education Facilities SPG (2004) Leisure, Recreation and Sports Facilities (2004)
Supplementary Planning Document Sustainable Construction (April 2007) Affordable Housing (March 2013) Social Infrastructure (2005) New Residential Development Design Guide (April 2012)
Newport Pagnell Neighbourhood Plan Newport Pagnell Neighbourhood Plan is an emerging Neighbourhood Plan which has been submitted to the Council (July 30) for publication. The publicity period closed on 18th November 2015 and Examination is expected early in the New Year. The Neighbourhood Plan is afforded significant weight as it has been through the publicity period.
The emerging Neighbourhood Plan identifies the application site and adjacent land, including the recycling facility and farmland to the rear, Tickford Fields Farm Strategic Reserve Site and Tickford Fields Farm East as a potential large Scale housing development area.
3.0 MAIN ISSUES
(The issues which have the greatest bearing on the decision)
- 3.1
- 1. The acceptability of the principle of development in terms of
sustainable location of the site, and the need for housing as a result of the need to consolidate the Councils five year land supply. Also in relation to the loss of employment land. The site is located within the urban area of Newport Pagnell and Saved Policy H7 (Housing on Unidentified sites) of the Milton Keynes Local Plan 2001 - 2011 is of relevance. Furthermore the site is part of the allocated strategic reserves in the Local Plan (Policy EA4A).
2. The acceptability of the design and layout, in relation to urban design matters and the context of the locality. The layout complies with the requirements of Policy CS13 of the Core Strategy, policies D2, D2A of the Milton Keynes Local Plan 2001 - 2011 and the New Residential Development Design Guide Supplementary Planning Document.
3. The relationship of the proposed development to neighbouring uses, the recycling facility and office block and sub-station and whether an acceptable standard of residential amenity can be achieved for future occupiers. Careful consideration has been given to the relationship of the application site and the adjoining Household Waste Site. On balance it is concluded that whilst the relationship between the two uses is not ideal however the mitigation measures proposed are adequate to ensure that the residential amenity of the proposed dwellings will not be adversely affected to a significant degree.
4. Highways and parking matters, including the provision of a redway to the site frontage, retention of a footpath link at the rear of the site, access into and through the site, with potential to link through to the land to the rear of the site (Strategic Reserve land). Proposed alterations may also be required to the existing roundabout to the front of the site.
5. S106 obligations including affordable housing and off-site contributions.
6. Status of the emerging neighbourhood plan in relation to the proposed development site.
4.0 RECOMMENDATION
(The decision that officers recommend to the Committee)
4.1 It is recommended that planning permission be approved subject to the completion of a S.106 legal agreement to secure the contributions set out in Paragraphs 5.25-5.28 and subject to the conditions at section 6 of this report.
- 5.0
- CONSIDERATIONS
(An explanation of the main issues that have lead to the officer Recommendation)
5.1
The National Planning Policy Framework and Housing Supply
In respect of strategic housing land supply within the Authority Paragraph 49 of the NPPF states that:
‘Relevant policies for the supply of housing should not be
considered up-to-date if the local planning authority cannot
demonstrate a five-year supply of deliverable housing sites.’
- 5.2
- In this regard, it has been accepted by the Council that it is unable to meet
this requirement and for this reason the Council must rely upon the provisions of Paragraph 14 of the Framework to consider the submitted application. This states that:
“… at the heart of the National Planning Policy Framework is a
presumption in favour of sustainable development…. Where the development plan is absent, silent or relevant policies are out-of-date” the Council must grant permission unless:
“any adverse impacts of doing so would significantly and demonstrably outweigh the benefits, when assessed against the policies in this Framework taken as a whole; or specific policies in this Framework indicate development should
be restricted.”
The starting point for the determination of this application is the fact that Authority does not have a 5 year housing land supply, and the proposed development would contribute towards meeting the housing needs of present and future generations. An assessment must therefore be made as to whether the proposal can be considered to be sustainable development in terms of the economic, social and environmental roles as set out in the
NPPF. The Council’s Housing Trajectory assumes housing could be
delivered on this site from 2016/17 based on developer intelligence.
5.3
Sustainable development
The site is located within the built up area boundary of Newport Pagnell, within an area indicated for large scale residential development in the future as part of the Strategic Reserve designation in the Local Plan. The site is close to public transport links, and facilities and services within the town, and therefore occupies a sustainable location.
5.4
5.5
As will be elaborated on later in this report, in terms of social issues, the development would provide additional dwellings to meet a recognised authority wide need as well as providing a contribution towards enhancing and improving the appearance of vacant employment site, for the benefit of the whole community.
In terms of economic issues, the construction activities associated with the development would potentially generate employment opportunities for the local community, and have associated benefits for local services and suppliers. In the longer term the development would also support the local economy in terms of the use of local shops, services and facilities, and potentially result in a significant level of new investment in the town.
5.6
Overall, having weighed these matters, it is considered that the
development would meet to the definition of sustainable development and therefore would comply with the provisions of paragraph 14 of the NPPF as the adverse impacts of the development would not significantly and demonstrably outweigh the benefits. The reasons for this conclusion are set out in more detail in the remainder of the key issues in this committee report.
5.7
5.8
The site is also a brownfield one and is in line with the strategic housing policies of the Local Plan Review. It is nevertheless necessary to have regard to the provisions of the NPPF and other material considerations before reaching a conclusion on the principle of development.
In particular Members need to be mindful of the following: . The presumption in favour of sustainable development as set out in the
NPPF which represents the most up to date Government policy on housing development.
. The conclusions reached regarding the sustainability of the site as set out in this report.The proposal is not considered to be premature.
Having regard to all the above matters in this section of the report and after balancing the weight to be attributed to each matter, I am satisfied that the principle of residential development on this site should be supported.
5.9
Loss of the Employment Use
The site is identified on the Milton Keynes Local Plan 2001 – 2011 Proposals Map as employment land and is therefore considered under saved Policy E1 of the Milton Keynes Local Plan 2001 - 2011 which seeks to protect and retain employment land in the Milton Keynes administrative area unless there would be no conflict with existing or potential neighbouring uses and the use would not significantly reduce the provision of local employment opportunities.
- 5.10
- The site prior to clearance contained an office building and freestanding
warehouse units all of which have been removed. The locality comprises commercial and residential development. The application is supported by a Marketing Exercise which seeks to demonstrate that the loss of the site for employment purposes will not adversely affect the overall supply of employment land in Milton Keynes. The Council has assessed report and is satisfied that the redevelopment of this site would not result in the loss of
important employment land nor would compromise the Council’s economic
development policies. The principle of development is not considered to raise any Local Plan Policy issues and is accepted.
- 5.11
- Saved policy H7 of the Milton Keynes Local Plan 2001 – 2011 states that
housing on unidentified sites are assessed against the following criteria:
i) Whether the site has been previously developed ii) Whether any buildings on the site are empty or under-used and suitable for conversion to residential use iii) The location and accessibility of the site to jobs, shops and services by means other than the car, and the potential for improving such accessibility. iv) The compatibility of housing development with existing land uses in the surrounding area v) Whether there is sufficient capacity in existing infrastructure, including water supply, drainage and other utilities, and community facilities (such as schools and health facilities) to serve the proposed development vi) Whether there are any physical and environmental constraints, such as
- contamination, noise and flood risk, affecting the site.
- 5.12
The application site has been previously developed and is currently cleared so there are no buildings suitable for conversion. It is located within a mixed area with some residential properties, commercial activities, schools and a swimming pool within the immediate vicinity. Together with a range of shops in the High Street within walking distance. There has sufficient capacity in existing infrastructure to accommodate the proposal and S.106 contributions will be made to mitigate the impact of the development in terms of school places and health facilities. The site is located adjacent to a household waste site, which can be a noisy activity. The applicant has undertaken noise surveys and proposed mitigation measures which will help to minimise any noise issues on residents of the proposed development. This matter is discussed in more detail in paragraphs 5.16 – 5.19 below. Overall it is considered that the proposed development complies with the requirements of saved Policy H7 of the Milton Keynes Local Plan 2001 – 2011.
5.13
The acceptability of the design and layout, in relation to urban design matters and the context of the locality.
The proposed layout has been the subject of detailed discussion and is
predicated on the Town Council’s view that access into the site should
extend into the rear of the site to enable access onto the strategic reserve area to the rear. The layout has been derived from this with the highway sized to accommodate a potential bus route in the future. Within the development are a series of shared surface cul-de-sac mews streets. A planted buffer area is proposed along the eastern boundary separating the site from the adjacent waste facility. Car parking is provided either on-plot or grouped and bike stores are also proposed.
- 5.14
- The buildings are shown up to three storeys in height with front corners
positioned with 3 storey key buildings fronting North Crawley Road and wrapping round into Tickford Street. The size of the units varies from 1 and
2 bed apartments and ‘flats over garages’ (FOG’s) to two –four bed houses
in detached and terraced arrangements. The design of the dwellings is traditional with brick and small areas of render with more contemporary design fronting North Crawley Road reflecting the modern development opposite whilst within the site a more traditional approach to house design is introduced. Dormer windows and chimney stacks/pots are provided on the dwellings. The majority of the development is two or two and a half storey in height with the apartment blocks three storey and a limited number of three storey dwellings. The overall design of the houses is considered reflective of the traditional Victorian and Edwardian appearance of development in Newport Pagnell and the affordable housing does not differentiate from the market housing in appearance.
- 5.15
- The layout to North Crawley Road and which laps around Tickford Street is
arranged as three storey key buildings either end of the frontage interspersed with detached dwellings. Within the site a traditional layout arrangement approach has been undertaken with houses fronting the roads with minimal set backs and laid out in pairs of dwellings with linked garages/carports to provide a continuous frontage to the street. Houses positioned to the eastern side of the site are separated from the waste facility by a road and planted buffer to the front of a 4 -4.5 metre high acoustic fence. The overall design of the layout and built development design is considered acceptable in urban design terms and is considered to provide a reasonable frontage to North Crawley Road which is varied in terms of its appearance and the scale of adjacent buildings both residential and commercial. There is therefore no over-riding defining design character to this part of North Crawley Road. It is considered that the proposal would respect the requirements of both the Core Strategy policy CS13 and saved Milton Keynes Local Plan 2001 – 2011 policy D2A together with the New Residential Development Design Guide Supplementary Planning Document.
5.16
The relationship of the proposed development to neighbouring uses, the recycling facility and office block and sub-station and whether an acceptable standard of residential amenity is achieved for future occupiers.
The site is located adjacent to a household waste site, which has potential noise implications for the residents of the eastern part of the site. The application is supported by a noise assessment and the Environmental Health Officer (noise) has analysed the assessment in depth. He has raised concerns that activities at the recycling which include the use of noisy equipment could have an adverse impact on the amenities of the residents of the development. The noise levels could potentially be significant and up to 7 days a week.