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Twyford Abbey in the London Borough of Ealing Planning Application No

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Twyford Abbey in the London Borough of Ealing Planning Application No planning report D&P/0230d/01 12 June 2017 Twyford Abbey in the London Borough of Ealing planning application no. 172220FUL Strategic planning application stage 1 referral Town & Country Planning Act 1990 (as amended); Greater London Authority Acts 1999 and 2007; Town & Country Planning (Mayor of London) Order 2008. The proposal Redevelopment of the site for use as a secondary and sixth form school (D1 Use Class) involving the construction of two part three-storey, part four storey buildings; construction of a single storey building within the walled garden; construction of a single storey swimming pool building; construction of two buildings to provide ancillary offices and accommodation; exterior works to Twyford Abbey including demolition of later additions; and associated tree works; boundary treatments; hard and soft landscaping including the provision of a multi-use games area; and access and parking provision. The applicant The applicant is Twyford Abbey LLP, the architect is Walters & Cohen and the planning agent is Montagu Evans. Strategic issues summary Metropolitan Open Land: the proposal constitutes inappropriate development on Metropolitan Open Land, but development of this site is necessary to facilitate the restoration and stewardship of the Grade II listed Abbey building, which is in a ruinous condition. This is the optimum viable use. Very special circumstances have therefore been demonstrated and the proposal is supported in principle as enabling development. It has been demonstrated that the amount of development sought is required to enable the school and sixth form to function, so the impact on openness has been minimised. (paragraphs 13-18) Design and heritage: the proposal to restore the listed Abbey building, demolish the 1960s additions and reinstate much of its historic plan form and interiors is strongly supported. The siting and design of the new buildings has been well considered and there would be no harm to the listed buildings, the settings of which would be significantly enhanced. (paragraphs 20-28) Recommendation That Ealing Council be advised that, whilst the principle of the proposal is supported, the application does not comply with the London Plan, for the reasons set out in paragraph 43 of this report. However, the resolution of those issues could lead to the application becoming compliant with the London Plan. page 1 Context 1 On 17 May 2017 the Mayor of London received documents from Ealing Council notifying him of a planning application of potential strategic importance to develop the above site for the above uses. Under the provisions of The Town & Country Planning (Mayor of London) Order 2008 the Mayor has until 27 June 2017 to provide the Council with a statement setting out whether he considers that the application complies with the London Plan, and his reasons for taking that view. The Mayor may also provide other comments. This report sets out information for the Mayor’s use in deciding what decision to make. 2 The application is referable under Category 3D of the Schedule to the Order 2008: Category 3D: Development on land allocated as Metropolitan Open Land in the development plan, which would involve the construction of a building with a floorspace of more than 1,000 square metres or a material change in the use of such a building. 3 Once Ealing Council has resolved to determine the application, it is required to refer it back to the Mayor for his decision as to whether to direct refusal or allow the Council to determine it itself. 4 The Mayor of London’s statement on this case will be made available on the GLA website www.london.gov.uk. Site description 5 The site comprises the long-vacant, Grade II listed Twyford Abbey, set in approximately 5.4 hectares of grounds. The site is bound to the north by the North Circular Road, to the south by Twyford Road and West Twyford Primary School and to the east and west by the rear gardens of residential properties. The whole site is designated Metropolitan Open Land (MOL). 6 The Abbey and its walled garden are statutory listed Grade II and the Abbey itself is on Historic England’s Register of Buildings at Risk, having been vacant since 1991. The buildings are now in a very poor state of repair. The last use was as a nursing home, which ceased due to statutory changes in the requirements for healthcare premises. St Mary’s West Twyford Church, another Grade II listed building, is located close to the western site boundary. The site is also within an Archaeological Interest Area and all trees are covered by a preservation order. Most of the site is in Flood Zone 1, although parts of the site are within Flood Zones 2 and 3. 7 The North Circular (A406) forms part of the Transport for London Road Network. The nearest bus stop to the site is the southbound stop on the A406 adjacent to the northern boundary, which is served by route 112. The 226 can also be accessed from Twyford Abbey Road/Bodiam Way, close to the south-western corner of the site. Hanger Lane (Central Line) and Park Royal (Piccadilly Line) stations are approximately 600 metres and 800 metres walk from the site respectively. The site records a Public Transport Accessibility Level (PTAL) score of 2, although the south-western corner has a score of 3. Details of the proposal 8 It is proposed to demolish the two 1960s nursing home extensions to the Abbey followed by restoration and conversion of the building to educational use. New buildings are also proposed within the grounds, also for educational and ancillary use, totalling 12,835 sq.m., as well as sports facilities in the form of an assembly hall, sports hall, outdoor all weather courts/MUGAs and an indoor swimming pool. Comprehensive site landscape restoration works are also proposed. The development would accommodate an independent co-education secondary school and sixth form for up to 1,150 pupils with 8 forms of entry. page 2 Case history 9 The site has been the subject of a number of applications for other uses. In the mid-1990s a proposal for a hotel and leisure complex was recommended for approval, but not granted permission due to Department for Transport objections about access. There have also been a number of proposals for residential development, including a 2001 application (ref D&P/0230) for 121 residential units that was withdrawn by the applicant, a 2005 application (ref D&P/0230a) for 317 residential units that was refused by Ealing Council and a 2012 application (ref D&P/0230b) for 92 residential units that remains undetermined. 10 This scheme was the subject of pre-application discussions, with a pre-application meeting held on 24 January 2017. GLA officers supported the principle of the redevelopment of the site with an enabling educational development to facilitate the restoration and future stewardship of the listed building. Strategic planning issues and relevant policies and guidance 11 The relevant issues and corresponding policies are as follows: MOL and enabling development London Plan; NPPF; Design and heritage London Plan; Character and Context SPG; Inclusive design London Plan; Accessible London: achieving an inclusive environment SPG; Sustainable development London Plan; Sustainable Design and Construction SPG; Transport and parking London Plan. 12 For the purposes of Section 38(6) of the Planning and Compulsory Purchase Act 2004, the development plan in force for the area is the Ealing Core Strategy DPD (2012) and Development Management DPD (2013). Also relevant is the Ealing Planning for Schools DPD (2016). The 2016 London Plan (Consolidated with Alterations since 2011), the National Planning Policy Framework and Technical Guide to the National Planning Policy Framework are also relevant material considerations. Land use principle Metropolitan Open Land 13 London Plan Policy 7.17 affords the “strongest protection” to Metropolitan Open Land (MOL), giving the same level of protection as Green Belt, where inappropriate development should be refused except in very special circumstances. Paragraph 87 of the NPPF states that inappropriate development is, by definition, harmful to the Green Belt and should not be approved except in very special circumstances. In addition, paragraph 89 of the NPPF states that “a local planning authority should regard the construction of new buildings as inappropriate in Green Belt” and lists exceptions to this. 14 The proposed educational buildings would be inappropriate development on MOL. However, it is acknowledged that some form of enabling development is needed to restore the Grade II listed Abbey as a heritage asset and this can be regarded as very special circumstances where development can be permitted. In this regard, paragraph 140 of the NPPF states that local planning authorities should assess whether the benefits of a proposal for enabling development, which would otherwise conflict with planning policies but which would secure the future conservation of a heritage asset, outweigh the disbenefits of departing from those policies. page 3 15 As evidenced by the extensive case history, there have been a number of applications on this site for enabling residential development, which have all either been refused or not determined. GLA officers also note the continued degradation in the condition of the Abbey, which now requires urgent works to safeguard its structural integrity that the applicant is currently undertaking, funded at their own risk. This is a finely balanced issue, concerning preservation of the listed building and the character and qualities of MOL, against the need to find the optimum viable use to secure the restoration and long term stewardship of the building and wider site. The principle of enabling development is that it will by definition involve a scheme that would otherwise be unacceptable in planning terms, but is also the minimum amount of development required to restore the heritage asset.
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