Danestone & Tillydrone, Junction of A90/Tillydrone

DANESTONE & TILLYDRONE, JUNCTION OF A90/TILLYDRONE AVE

CONSTRUCTION OF A NEW 2.4KM LONG, GENERALLY 7.5M WIDE SINGLE CARRIAGEWAY WIDE ROAD WITH ASSOCIATED FOOTWAYS, SEGREGATED CYCLEWAYS, VERGES & EARTHWORKS, ALSO CLEARANCE OF SOME

EXISTING VEGETATION, TREES AND CONSTRUCTION OF A NEW BRIDGE OVER THE RIVER DON, NEW PIPE DRAINAGE, ROAD SIGNS, STREET LIGHTING, LANDSCAPING AND ACCOMODATION

For: Aberdeen City Council

Application Ref. : P100135 Advert : Dev Plan Application Date : 29/01/2010 Dept/Section 60/65 Officer : Lucy Greene Advertised on : 17/02/2010 Ward: Dyce/Bucksburn/Danestone (R Clark/B Committee Date : Crockett/M McDonald/ G Penny); Bridge of Community Council : Don (M Jaffrey/G Leslie/J Reymolds/W Comments: Bridge of Don, Young); Tillydrone/ Seaton / Old Aberdeen (N Tillydrone, Old Aberdeen Collie/J Noble /R Robertson)

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RECOMMENDATION: That a Public Hearing be held DESCRIPTION The application site extends from the roundabout junction of the The Parkway A90(Trunk Road) with Whitestripes Avenue and Fairview Street southward across open space just to the east and parallel with the edge of Danestone. The site includes an approximately 27.5m wide section through the Danestone walled garden and runs to the east of Grandholm. The site crosses the River Don to join up with Gordon’s Mills Road and Tillydrone Avenue in Tillydrone and includes a strip of land centred on but wider than the existing roads. The southern most extremity of the site is the roundabout at the junction of Tillydrone Avenue, St Machar Drive and Bedford Road and short lengths along St Machar Drive. The site varies in width between 25m and approximately 120m adjacent to the River and 75m to the east of Grandholm.

The site includes open space adjacent to residential areas, a Category B listed walled garden, the River Don and includes residential land in the form of gardens and a disused house, as well as existing roads.

The site falls reasonably steeply from the north towards the River, rises slightly to the south of the River, before levelling off at St Machar Drive. The levels are approximately 60m AOD at the northern most point, falling to just below 6m AOD at the River, then rising to nearly 28m AOD in Tillydrone and around 20m AOD at St Machar Drive.

PLANNING HISTORY

An application for a similar proposal was submitted in early 2006 (ref. A6/0149). This was put on hold pending the outcome of the Public Local Inquiry into the Aberdeen Local Plan 2008. The application was withdrawn shortly before the current was submitted. The differences between the schemes is that the proposed route now takes a slightly different line to the east of Grandholm and the cycle paths are different.

PROPOSAL The application is for full planning permission to develop an additional Crossing of the River Don, together with a new stretch of road to join the bridge to the existing road network to the north of the Don. The existing roads to the south of the River would be altered to be slightly realigned, upgraded and cycle paths added. An Environmental Impact Assessment has been carried out and an Environmental Statement submitted. The route starts at the southern exit of the roundabout at the junction of Whitestripes Avenue, Fairview Street and the Parkway. The route runs south along Fairview Street for approximately 150m. From Fairview Street a new 7.3m wide carriageway would be constructed heading south for approximately 1km, partially in cutting and partially on embankment. The northern most 600m would be in a shallow cutting, whilst the 400m to the east of Grandholm would be on an embankment of between 4.5m and 5m high between the mill lade and the Don. A shared pedestrian and cycle path would follow a separate route off to the east, under Grandholm Drive and between Grandholm Drive to the east of the proposed road and Grandholm Crescent, to the west of the proposed road There would be a bridge over the River Don and this would join Gordon’s Mills Road. A shared pedestrian / cycle path would loop under the southern end of the bridge, linking into the riverside footpaths and providing a alternative to crossing the carriageway. The route to the south of the River would follow the line of Gordon’s Mills Road and then Tillydrone Road and Avenue. The current road would be slightly realigned in places and a separate cycle path provided to the west side. Separate pedestrian footpaths would be provided on both sides along all sections of the road, other an over the bridge, where pedestrians and cyclists would share the path to the east of the carriageway and there would be pedestrian crossings in a number of places.

The updated tree survey is to be submitted shortly, however, it is noted that a significant number of trees would be lost. A significant number of replacement trees would be replanted.

Further details of this and the proposal as a whole will be included in a future report to Committee, when a recommendation will be made.

REASON FOR REFERRAL TO SUB-COMMITTEE The application has been the subject of more than 5 objections, has been advertised as a departure from the development plan and is a Council development.

CONSULTATIONS

ROADS SECTION – satisfied that the proposal has been designed in accordance with the Design Manual for Roads and Bridges - DMRB ENVIRONMENTAL HEALTH – Raises issues of amenity of local residents in terms of noise and air quality. Assessment of the Environmental Statement is on- going. SEPA – Require the attachment of conditions relating to compensatory flood storage provision and requiring an Environmental Management Plan to be submitted in advance of work commencing on site. ARCHAEOLOGY – Request attachment of a non-standard investigation condition, that would only include part of the site area. GRAMPIAN POLICE ARCHITECTURAL LIAISON – Consideration should be given to the design, lighting and landscaping proposals around the underpasses to avoid these becoming crime generators; it is suggested that a CCTV/Automatic Number Plate Recognition camera with infra red capability is installed on the bridge as the crossing would providean opportunity for criminals; the proposal is welcomed, though concern is expressed over the potential volumes of traffic on Bedford Road / St Machar Drive / King Street area though are aware that other traffic management plans are proposed to compliment the bridge proposal and these should help to address any issues. SCOTTISH NATURAL HERITAGE – Content with the scope of surveys carried out to inform the Ecological report. In terms of otters, support the need for pre- construction surveys and suggest that work should not take place in areas near otters for two hours either side of sunset. Badgers: support need for pre- construction surveys. If any new setts are found, then a licence would be likely to be required. Bats: Lighting could disrupt bats communting and foraging. If permanent lighting is shown to disrupt bats and otters, the it may require a licence. However, it should be possible to mitigate this by lighting unde the bridge to one side only and by the type of lighting. Breeding birds: site clearance and felling trees should be carried out during winter months to avoid disturbance during the bird breeding season. TRANSPORT SCOTLAND – In considering the proposal in relation to issues affecting the trunk road network it is noted that although a number of receptors will experience an increase in noise levels, any increase associated with the A90 (T) will be negligible. With regard to air quality, expected concentrations of pollutants are noted, however, it is also noted that local air quality assessments indicate that the proposed scheme would result in an overall neutral impact on air quality based upon the balance between beneficial and adverse impacts predicted (in different locations). STRATEGIC DEVELOPMENT PLAN AUTHORITY – the Tird Don Crossing is one of the proposals set out in the structure plan and is also in the key diagram, Proposals identified in the plan were selected on the basis of their importance in helping achieve the vision for the North-East, and the proposal is seen as a key project. The plan recognises the importance of investing in infrastructure to allow growth and deal with congestion. The Third Don Crossing is part of a wider package of measures, including the Balmedie to Tipperty dualling, the Western Peripheral Route and Haudagain improvements that will help deal with congestion. This proposal is also an example of new infrastructure which could be expected to receive financial contributions from development sites in both Aberdeen City and Aberdeenshire, as well as the Council itself. The principle of the development is consistent with the structure plan. ABERDEEN AND DISTRICT ANGLING ASSOCIATION – Raise issue of artificial lighting from the bridge falling on the River Don and adversely affecting fish behaviour. SCOTTISH GOVERNMENT, ENVIRONMENTAL QUALITY DIVISION – No comments on the Environmental Statement in terms of air quality, noise and nuisance. HISTORIC SCOTLAND – Raise the issue of the impact of the proposal on the setting of the Category A listed Grandholm Mill complex and recommend that the road embankment is kept to the minimum height possible. Confirm that they are content with the principle of the partial demolition of the Category B listed Danestone Walled Garden, which is accepted on the grounds of public benefit. HEALTH AND SAFETY EXECUTIVE – no comments COMMUNITY COUNCIL – Tillydrone Community Council, Old Aberdeen Community Council, Bridge of Don Community Council. The first two bodies sent letters of objection, whilst the latter sent comments and observations. Bridge of Don Community Council stated that: the Bridge should maybe be further northwards; the Haudagain Roundabout also needs to be dealt with; although many in their area are in favour, many are not; that the pinch point for congestion would just be moved to St Machar Drive; that the crossing is being built primarily to allow the expansion of Bridge of Don; that infrastructure in the are already cannot cope with the level of traffic; plans show that the road would be very close to some residents- were they notified individually ?; questions how the Fairview Street junction would be laid out; questions where and what type of pedestrian crossings would be provided; and, presumes that public meetings will be held. Old Aberdeen Community Council stated that: although there are traffic delays, these should be dealt with by public transport improvements, as there is an existing chronic lack of joined up transportation strategy for the region; unless there is a modal shift the the new Bridge would only encourage more car use and deliver only temporary relief; the south exit of the new road would decant people onto a unsuitable road infrastructure. If the Berryden dualling takes place, the primary route for traffic would be westwards past St Machar Academy, this is unsuitable for commuter traffic and even worse if it were to be used by heavy goods vehicles. Routing traffic into traffic lights at St Machar Drive would lock up this section of road, already gridlocked with east-west traffic. A more comprehensive upgrade of Haudagain would have been a much better solution. The Third Don Crossing as proposed would have a significant negative impact on the life and health of the residents of Old Aberdeen, Tillydrone, Hayton and beyond with little improvement for the city traffic. The Community Council has battled against the proposal, when it was to be included in the local plan in 2005 (rejected by the Scottish government Reporter), again when it was included in the small print of the Haudagain consultation as being part of the solution, against its inclusion in the structure plan in April 2009 and in the Access from the North consultation in June 2009. It is acknowledged that mention is made in the structure plan and in the Main Issues Report to the local plan. However, these are not site specific. It is therefore considered that the application is premature and should be consequent on approval of the new local development plan. The Community Council feels that the Council is failing to address the traffic congestion concerns and have written to the Minister for Transport requesting that the application be called-in.

Tillydrone Community Council objects on the following basis: - The proposal does not conform with the development plan – it is not included within the adopted local plan. - It is not legally competent to found the location of the proposal on the key diagram in the structure plan, nor on a non-statutroy plan (Access from the North) which was prepared to complement the former local plan – this supplementary planning document was approved by the Council in June 2004 and has very little materiality; - Access from the North is fundamentally flawed as it did not consider the option of dualling the existing Persley Bridge; - The application is premature to finalisation of the emerging local plan. As a major piece of infrastructure, the location of the bridge should be determined within the context of a strategic review within the local plan preparation process, which includes an examination of site specific proposals including cross examination. - The traffic impact has not been properly considered as the congestion models are out of date. The result would be unacceptably high traffic rates along the proposed route and surrounding communities; - The reporters report on the local plan in 2007 recommended excluding the Third Don crossing on 14 grounds. The real issues affecting the community have not been addressed. - The proposal would not reduce traffic congestion but would displace it further towards the centre of the City; - Air and noise pollution would increase and are a grave concern. The Environmental Statement has understated the increase in air pollution. When looking at the details of the concentrations in the Appendices the significance of the increase is conveyed and the report is inconsistent; - Tillydrone is a regeneration area and there are numerous social and economic disadvantages, including poor life expectancy. The proposal would widen the gap between rich and poor, it would not enhance quality of life or offer opportunity. - Impact on archaeology and built heritage; - Impact on landscape and ecology, fragmentation of wildlife corridors. Mitigation attempts are unconvincing and will not deliver the same quality of habitat; - The proposal would cause disturbance to bats and would be required to pass the strict tests set out in the relevant Directive; - The proposed third Don Crossing has been opposed consistently and strongly by a very large number of residents from the immediate adjacent areas of Grandholm, Tillydrone, as well as Old Aberdeen, Seaton, George Street and Rosemount and Mile-End.

REPRESENTATIONS A total of 660 no. letters of objection and 2no. petitions were received. The latter included one petition with 27 no. signatures from Tillydrone Community Centre and one petition with 103 signatures from Don Crossing Communities Alliance. The letters included 283 no. individual letters and 377 no. standard postcards. There were 54 no. letters of support. The letters included objections from the following bodies: Riverbank Parents Council, Aberdeen Civic Forum and Don Crossing Communities Alliance. A letter of support was received from Malcolm Bruce MP and a letter of objection from Lewis MacDonald MSP. The standard postcards made the following points: (1) the proposal is contrary to the adopted Aberdeen Local Plan; (2) The proposal will lead to unacceptable increases in traffic volumes in Tillydrone and surrounding area causing loss of amenity and endangering local residents; (3) The proposal will lead to severe increases in levels of CO2 in the area, endangering the health of local residents; (4) The proposal will irreversibly damage the River Don and the extensive range of wildlife that live along it.

The following is a summary of other points made in the letters: - Many people would be badly affected in terms of residential amenity. A number of objectors describe individual circumstances and these will be drawn out in the hearing and further report to Committee; - In this climate of cut-backs the money for the bridge would be better spent elsewhere. The Haudagain is mentioned in this context a number of times; - That Councillors should listen to people as many people are against this Bridge; - Traffic should be kept out of the City Centre not brought in; - That there would be an increased level of pollution from the additional traffic on the new road / bridge; - That there would be an increase in the noise levels from the additional traffic. That this would create terrible noise for a resident who currently lives 7m from the road; - That the level of traffic is horrendous already and this would make it worse for residents on both sides of the Don. The area could not cope with the volume of traffic the bridge would bring; - That the volume of traffic would be dangerous in an area where families live and where children are not used to traffic. Children may be knocked down, including because they need to cross roads to get to school. Traffic would also increase on the residential roads within Tillydrone, causing vehicles to speed thorugh the neighbourhood; - That the Bridge would cause big traffic jams with traffic only being able to go onto King Street or up St Machar Drive - That the existing traffic chaos, including at Haudagain, requires to be resolved without creating more problems by building the Third Don Crossing; - That the St Machar Roundabout would become like the Haudagain roundabout as a result of the proposal; - That the Parkway, Persley Bridge and Mugiemoss Road all need to be dualled; - The Western Peripheral Route may well sort out many of the problems; - The site for the bridge should be further northwards along the River; - That Tillydrone is a deprived area, however, a lot of people work and look after their properties. The road would destroy the area – a lovely part of Tillydrone; - That the road would pass sheltered housing complexes which would be dangerous for the residents, also as they need to cross the road to catch a bus; - Loss of local environment, natural habitat, green space and mature trees, including on Gordon Mills Road, that it would also cause damage to air and water quality and the environment of otters; - That note should be taken of the views of the Local Plan Reporters in 2007. They said that the Third Don Crossing would make little difference to traffic congestion in the City, but would have a major impact on the people of Tillydrone; - Similar points to those made by the Community Councils are made, in relation to the policy context and transport strategy, including the need to achieve a modal shift away from car use, also the impact of congestion , including on safety of children in particular around St Machar Academy. - Four pedestrian crossings would reduce traffic flow and add to driver stress, perhaps contributing to accidents. - Considering alternatives the Civic Forum has suggested that Mugiemoss Road, the Parkway and Persley Bridge be dualled, and there be a flyover at Haudagain. - There needs to be more commitment to transport including rail, cycling and most importantly, bus travel. - One of the purposes of the modernisation of planning was to prevent pernicious repeat applications making repeated and almost identical application until objectors are beaten.

PLANNING POLICY Aberdeen City and Shire Structure Plan August 2009 The structure plan supports the principle of a third Don crossing, including in The Spatial Strategy, where the proposal is mentioned in context of improvements needed to serve new development in the city. A third crossing is listed amongst a range of projects that will help to achieve the vision for the North-East, by dealing with congestion and allowing growth in and to the north of the City. A crossing is also indicated in symbol form on the Key Diagram. No specific site is identified for the crossing.

Aberdeen Local Plan June 2008 There is no site identified in the local plan for a third Don Crossing. The application site is zoned under several policies in the local plan: Policy 40 ‘Residential Areas’ Policy 36 ‘Urban Green Space’ Policy 28 ‘Green Belt’ Policy 29 ‘Green Space Network’ Policy 41 ‘Mixed Use areas’ The site also includes parts of Opportunity Site OP40 and OP49. Subject policies that are relevant are as follows: Policy 1 ‘Design’ Policy 2 ‘Landscape Design’ Policy 4 ‘Protection of Urban Green Space’ Policy 7 ‘crime Prevention and Community Safety’ Policy 24 ‘Planning and Flooding’ Policy 27 ‘Air Quality’ Policy 31 ‘Landscape Proetction’ Policy 33 ‘Protecting Trees and Woodland’ Policy 34 ‘Natural Heritage’ Policy 35 ‘Access and recreation Areas’

NESTRANS Regional Transport Strategy /2021 includes a third Don Crossing, along with upgrading the A90/A96 junction at Haudagain as part of its Internal Connections Strategy Aberdeen Local Transport Strategy 2008 to 2012 includes the Third Don Crossing in its Strategy.

The Planning Authority has a statutory duty to have special regard to the desirability of preserving listed buildings, their setting or any features of special architectural or historic interest which they possess.

Tillydrone is a regeneration area and is the subject of a regeneration Masterplan.

Relevant areas of these policies and strategy documents will be drawn out in more detail in a future report to Committee making a recommendation.

DEVELOPMENT PLAN DEPARTURE Under 38A (4) of the Planning Act, the planning authority may decided to hold a hearing for any development not covered by the mandatory requirements and to give the applicant and any other person an opportunity of appearing before and being heard by the committee. In June this year, the Council agreed guidelines on ‘When to hold public hearings in relation to planning applications’. The circumstances in which it is appropriate to hold a public hearing prior to determination of a planning application (where a pre-determination hearing is not required by legislation) are: where the application has been the subject of more than 20 objections; and, the Council has a financial interest; and / or, the application is a departure from the development plan.

The proposal involves the construction of a new road and bridge across an area of open space and potentially contravenes Policy 36 Urban Green Space, Policy 28 Green Belt and Policy 40 Residential Areas. Although the principle of a third crossing is mentioned in policy documents as noted above, the site is not zoned in the adopted local plan. The proposal also involves the removal of a large number of trees, including some protected by Tree Preservation Orders, albeit there are also proposals for a large number of replacement trees. The proposal is, therefore, a development plan departure. The application is the subject of more than 20 objections; the Council has a financial interest; and, the application is a departure from the development plan. The application therefore, falls into all three categories indicating that a hearing may be appropriate. The issues which should be addressed in determining whether a hearing be held or not are whether development plan policy is up to date and relevant; and whether these matters are material planning considerations.

It is considered that the both Structure Plan and the Aberdeen Local Plan are up- to-date and that Policies 36, 28 and 40 of the local plan are relevant to the assessment of the proposed development. There have been 660no. objections, including from two Community Councils, and comments on a number of issues from another Community Council.

These objections cover an extensive range of issues including the impact of the proposal on traffic and congestion within the city, the impact of the proposal on residential amenity particularly in terms of noise levels and air quality, the impact on public safety and the loss of natural habitat and impact on wildlife. These are relevant planning considerations and generally are covered by the policies in the Development Plan. Given the level of objection and the concerns raised in the written representations it is considered that the most appropriate manner of addressing the objections is to convene a hearing at which all parties involved have the opportunity to state their views on the proposed development. Accordingly, it is recommended that a Public Hearing be held.

RECOMMENDATION: That a Public Hearing be held

Dr Margaret Bochel Head of Planning and Sustainable Development