11/00860/PAC Officer: Mrs Sonia Bunn

DEVELOPMENT CONTROL BOARD

4 August 2011

Reference: 11/00860/PAC Officer: Mrs Sonia Bunn

Location: Dartford Railway Station Station Approach Dartford Kent DA1 1BP

Proposal: Application for prior approval for the erection of new station building pursuant to Part 11 Condition A1 of the Town and Country Planning (General Permitted Development) Order 1995

Applicant: Network Rail/H Milner

1 Eversholt Street London NW1 2DN

Target Date: 24/08/2011

Parish / Ward: Un-Parished Area Of Dartford / Town

RECOMMENDATION:

Prior approval be granted

SITE SPECIFIC POLICY

(1) This application relates to Dartford Station, the main building, the ancillary buildings to the south and its platforms and overbridge. The station is located on Station mound to the north of Dartford town centre and is accessed by road from the east and on foot from the west, east and south. The pedestrian footpath to the south directly links to the footbridge which crosses Home Gardens; this footpath is partly owned by Network Rail. The Civic Centre lies directly to the south east of the station and the application site also takes in part of the Civic Centre visitor's car park and staff parking area. The application site also includes the access road between the station building and the platforms.

THE PROPOSAL

(2) Members resolved to approve details for a new station building at the Development Control Board on 20 January 2011. Some Members may recall that there were some concerns with the detail of the proposal and further details were sought through conditions. The applicants have now got a contractor on board and a new architect who has assessed the details of the original design and found that it could be made more user friendly or easy to maintain by amending some details of the design. The current proposal therefore seeks approval for variations to the original approved design.

(3) The railways operator, Network Rail, has permitted development rights under Part 11, Class A of Schedule 2 to the Town and Country Planning General Permitted Development Order (GPDO), which is related to development authorised by a local or private Act of Parliament. Section 16 of the Railway Clauses Consolidation Act 1845 still appears to provide the power to carry out works to the station and railway and this means essentially that they may erect a station building under Part 11 without requiring planning permission. However, under the terms of Part 11 details must be submitted to the Council for prior approval of the detailed plans and specifications for the erection, alteration or extension of a building or bridge and for the formation, laying out or alteration of a means of access to any highway used by vehicular traffic.

(4) The proposal is to demolish the existing station building and adjacent staff accommodation buildings and provide an improved station interchange facility as a single building also containing new office accommodation for staff on the first and second floors.

(5) The new station building itself is a 3-storey building of a steel frame with cladding and glazing. It will have a double height booking hall, a curved façade with a sweeping feature canopy which encompasses the whole building. The existing overbridge is to be retained and refurbished. The staff accommodation will be relocated to the first and second floors of the station building.

(6) The principal changes to the approved design are that the canopy across the front of the building has been reduced in width so that it no longer oversails the Council owned land to the east and does not impinge on the path of HGVs to the west. The profile of the canopy has also been made more shallow to allow easier maintenance with access directly from the building. The door to the cycle store has also been moved and the canopy supports have been removed so that there is less obstruction of people walking around the building.

(7) The applicants have also provided details of the materials of the building and propose to clad the building in an iridescent cladding material so that it will change colour dependant upon how the light falls on it, appearing blue, purple or green. This will also shimmer in the sunlight. A standing seam grey membrane will be used for the canopy roof which will be faced with a stainless steel fascia. The windows will be colour coated metal framed units and curtain wall glazing will be used of the entrance area.

(8) The revised layout also allows for the replacement of some of the visitor parking for the Civic Centre once construction work has been completed. The current submission shows the change to the layout of the visitors and staff car park, so that 11 visitors’ car parking spaces and 2 motorbike spaces are provided. However, 7 staff car parking spaces are lost. The submission shows the provision 8 spaces for Council use within the adjacent station car park.

(9) The existing roundabout turning area will also remain unaltered now and there will be the creation of two formal pedestrian crossing points over the road to the north of the station.

(10) The removal of the existing staff buildings to the south of the station building also allows additional car parking spaces to be provided on the station car park.

RELEVANT HISTORY

(11) Whilst the new station building is under construction temporary access and ticket arrangements need to be put in place. These arrangements have also changed since Members were advised of them at the Development Control Board in January. Some Members will recall that the temporary ticket office was to be provided on a supported platform above the station access road. The stairs up to this platform and the existing overbridge were be located on the footway to the north of the road which resulted in a narrow pavement and users of the station arriving and leaving in a very constrained area. The temporary works also resulted in the closure of the footpath from the Home Gardens bridge to the station building. Access to the town centre was proposed to be via Station Approach Road in the interim period. The Council raised concerns about this.

(12) The applicants with their contractors have since looked at the proposals again and have put forward alternative arrangements. Network Rail has now decided that the previous temporary building solutions resulted in several issues that could not be readily resolved. They have decided therefore to erect a temporary overbridge from the north-east corner of the site, north of the Approach Road which will provide access to the platforms. The remainder of the Civic Centre visitor car park will be used to accommodate a temporary ticket office with office accommodation above. Approval for these temporary buildings was granted under delegated authority in June 2011. Work to facilitate these facilities is due to start on site imminently and the visitors car park to the Civic Centre is to be closed in the first week of August.

(13) The revised temporary arrangements will provide level access to the ticket office and in my opinion is a much better, less contrived solution which allows for queuing at the ticket office and should prevent some of the grouping of pedestrians at peak periods without impacting on highway safety.

(14) New platform canopies will also be constructed together with new staff accommodation and a waiting shelter on the central island platform and weather shields on platforms 3 and 4.

COMMENTS FROM ORGANISATIONS

(15) Kent Highways Services: Confirm that the revised layout is acceptable although they suggest an informative advising that the existing road hump north of the visitor’s car park will need to be removed.

(16) Environment Agency: No objection provided that a condition is imposed regarding the risk assessment of piling.

(17) Environmental Health: Confirm that they have no further comments to make that were considered with regard to the previous permission.

(18) Thames Water: No objection to the sewerage infrastructure and water infrastructure serving the development. They advise that the developer will require their consent for discharge of surface water if they intend to connect to a public sewer.

(19) Kent Fire & Rescue Service: Advise that the means of access is considered satisfactory.

NEIGHBOUR NOTIFICATION

(20) No response received.

RELEVANT POLICIES

Dartford Local Plan

(21) Policy T3 advises that the Council will promote the provision of integrated public transport facilities including interchange facilities for bus, road and rail transport.

(22) Policy B1 seeks to achieve a high standard of development and design and provides criteria for application to be considered against.

Dartford Local Plan Review

(23) Policy TC1 seeks to permit proposals for redevelopment in the town centre which sustain and enhance the vitality and viability of the centre, enhance the visual appearance of the town centre and are of a high standard of design.

Dartford Core Strategy Proposed Submission 2010

(24) Policy CS 2 of the emerging Core Strategy advises that the Council will work with partners to facilitate a new Dartford Station building and improved interchange facilities and through the redevelopment of the wider Station Mound site for mixed uses create a high quality gateway into the town centre.

South East Plan

(25) In my view, the policies in the South East Plan would have no material relevance in this case as the decision is of limited scale and impact in the regional context and the Council can rely on local statutory development plan policy alone

DEVELOPMENT CONTROL MANAGER’S COMMENTS

Key Issues

(26) Part 11 of the GPDO advises that the Council may not refuse prior approval or impose conditions unless they are satisfied that the development ought to be and could reasonably be carried out elsewhere on the land and that the design or external appearance of any building would injure the amenity of the neighbourhood and is reasonably capable of modification to avoid such injury.

(27) The principle of a station building in this location is clearly established by the presence of the existing station and I consider that the proposal to upgrade the rail transport interchange at this busy station is to be welcomed and encouraged. In my opinion the design quality of the building and its integration with its surroundings is a key consideration, particularly given the proposals for the wider development and improvement of the area.

Design quality of the new building

(28) Externally the building will have a modern glazed appearance with a canopy to provide comfort for users but also creating a feature on the prominent south face of the building. Although there is little overlooking of the drop off/collection area to the west from the building the sweep of the building ensures that the entrance will be visible from this area and the canopy will lead people to the station entrance. There are 2 entrance doors to the station concourse which face south-west and although perhaps not well related to the existing pedestrian accesses these should therefore relate well to the future development of the Station Mound area. The glazed curtain walling to the station concourse should be visible along the length of the footpath from the town centre making a very legible route to the station from the town centre. My only reservations about the entrance door location are that once the staff accommodation building is demolished these doors may be susceptible to prevailing south-westerly winds creating a poor micro-climate at the entrance to the station. However, this will be improved through redevelopment of the area and short-term solutions such as screening could be provided in the short term should this become necessary.

(29) The cladding material proposed on the building will provide interest and an element of surprise as it will change as the angle of view changes At the time of writing the report I am still waiting for a detailed specification of the materials and would therefore suggest a condition is imposed requiring submission of full material details for approval.

(30) The office entrance is to be at the eastern end of the southern frontage and will have windows at first and second floors facing this direction. The eastern elevation provides access to secure cycle storage within the building for approximately 20 cycles.

(31) It is still not clear from the plans submitted, what the height the building plinth is above the adjacent Civic Centre car parks and what the impact of any retaining walls will be. However, I am satisfied that the current layout is improved and there should be little impact from any level changes.

(32) Overall the building will provide much improved facilities for the station, and I consider that the building is of a good design appropriate for this main line rail station and will contribute to the creation of a high quality gateway to the town centre.

Temporary works

(33) This revised scheme also acknowledges the need to provide temporary access from the Home Gardens bridge from the town centre and stairs from the bus stops to the station area. The proposed temporary footpath is now proposed to go just inside the northern edge of the Civic Centre car park. Although 7 parking spaces will be lost in the staff car park the applicant is seeking to provide replacements within the Victoria Road car park. I consider that on balance this is acceptable in order to provide a safe pedestrian route and will also discourage station users from walking across the Civic Centre car park.

(34) The Borough Council, as landowner, previously raised concerns about the footpath route. But the revised temporary works have been discussed with the Property Manager and these are considered to provide a more suitable alternative. Car parking will be lost from the main staff car park but Network Rail are seeking to agree replacement spaces close by.

(35) However, it should be noted that Network Rail are still advising that there will be no access to the platforms for mobility impaired persons whilst the lift is refurbished. The anticipated duration of these works is 3 months. They advise that mobility impaired persons will need to use alternative stations, such as Slade Green, Barnehurst or Greenhithe. I am not happy with this element of the proposal but there does not seem to be an alternative and as this is not a full planning application I have little control over this, which is an operating decision by Network Rail, who will of course be subject to other legislation relating to disability access.

Impact on changes to the highway

(36) The demolition of the staff accommodation buildings allows for the station car park to be expanded and the proposals indicate a new access to be provided. The details of this layout have now been revised and are now considered acceptable in terms of highway safety. The taxi rank and waiting area now remain as existing to the north side of the turning circle, there will however be no opportunity for waiting directly outside the building.

(37) It is also proposed to create 2 pedestrian crossing areas to the north of the proposed building which in my opinion would appear to be on a sensible desire line for station users. However, the eastern crossing is on adopted highway and therefore requires a safety audit and Kent Highway Services approval. There is no guarantee that this is forthcoming but as this is not fundamental to the design, I consider that this is a matter for the applicant to pursue.

Impact on Civic Centre

(38) The revised proposal does allow for the replacement and rearrangement of the visitor parking area in order to provide 11 visitor spaces (as opposed to the 12 to be lost at the start of construction). I consider that the replacement of these visitors’ spaces is now a significant improvement upon the previous proposal.

(39) However, car parking spaces will be lost in the Council staff car park due to the external area for the new building and the proposed ramp and the rearrangement of the visitors’ car park. The applicant shows that 7 staff spaces will be lost (plus one visitor space) and they have indicated that these can be provided in the newly expanded station car park directly adjacent to the footway. The detail of this is a matter for the Council as landowner but I am satisfied that there will be no overall loss of car parking for the Civic Centre and therefore no detriment to highway safety.

External areas

(40) I have asked Network Rail to provide details of how the external forecourt of the station might be laid out, but I understand that these areas are still subject to design and therefore there are no details of how external cycle parking, street furniture and landscaping on the station forecourt might be provided. However, as the Councils remit is limited to the building and highways for this prior approval, in my opinion we have no powers to request these details as a condition, although in my opinion they are fundamental to the overall design and quality of the final station redevelopment.

Wider development of Station Mound

(41) As the objective is for the wider development of the whole Station Mound area I have considered the redevelopment of the Station within the medium and long-term context too. I am satisfied that the new building and its setting will not prejudice the wider redevelopment. The new building presents an attractive curved façade to the west, south and east which will in my opinion ensure that it integrates well with any form of the development and will allow an area of quality public realm to be created as a nodal point of activity.

Security

(42) As a busy main line railway station I have asked the applicant to consider the impact of the proposal with regard to security and terrorism. They have advised that the proposed building has been designed to address the level of security risk considered appropriate at this station. British Transport Police have jurisdiction for this building and have been consulted on the planning application but no comments have been received.

Other issues

(43) Members previously resolved to remove the proposed condition for hours of working on the basis that the site was away from any residential properties and it would be in the public interest to see the works completed as quickly as possible, which could potentially be facilitated by longer working days. I have therefore not suggested this condition below.

HUMAN RIGHTS IMPLICATIONS

(44) I have considered the application in the light of the Human Rights Act 1998. I am satisfied that my analysis of the issues in this case and my consequent recommendation are compatible with the Act.

CONCLUSIONS

(45) In conclusion I consider that the revised external appearance of the proposed station building and associated car parking is acceptable and will provide a welcome replacement for the ageing station building that is currently on site and will therefore create a more welcoming arrival and departure at Dartford. The changes to the design also enable an improved layout to the area of the around the station both during construction and after completion. I am satisfied that the proposed building will provide a high quality interchange facility which will be of an attractive and eye-catching design creating a gateway to Dartford town centre.

RECOMMENDATION:

Prior approval be granted subject to the following conditions:

01 The development hereby approved shall be carried out in full accordance with the details hereby approved.

01 In order to ensure a satisfactory external appearance.

02 Prior to the commencement of the development hereby approved plans showing the details of the retaining wall and the levels to the east and south of the building and the building’s relationship to the footways and adjacent vehicular accesses shall be submitted to and approved by the Local Planning Authority. Such works shall be implemented fully in accordance with the approved details.

02 In order to ensure the satisfactory detailing of these areas in the interests of ensuring a high quality useable design.

03 Before commencement of the development hereby approved, details and samples of all materials to be used externally shall be submitted to and approved in writing by the Local Planning Authority. The development shall be carried out in accordance with the approved details.

03 To ensure that the development does not harm the character and appearance of the existing building or the visual amenity of the locality in accordance with Policy B1 of the adopted Dartford Local Plan.

04 Before commencement of the development hereby approved, details of the piling and foundation design for the building and an assessment of the risk to groundwater shall be submitted to and approved by the Local Planning Authority. The details shall be implemented as approved prior to first occupation of the development.

04 To ensure the protection of the groundwater resources.

INFORMATIVES

01 The applicant is advised that they will need to liaise with the Council as landowner in order to gain consent for works on Council land.

02 The applicant is advised to contact the Council’s Environmental Health Environmental Protection team with respect to gaining prior consent for the programme of works under section 61 of the Control of Pollution Act 1974.

03 The applicant is advised that they will need to liaise with Kent Highways regarding the provision of a new pedestrian crossing facility on the adopted highway.

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Application No: : 11/00860/PAC

Address : Dartford Railway Station Station Approach Dartford Kent DA1 1BP

Date: 20 July 2011 Scale: Not to Scale