Pre Application Enquiry on behalf of M. Sabatier and Ms Lynn
Demolition of 96 Greenfield Road and residential development of 46 units Land to the rear of 96 Greenfield Road, Flitton, Beds,
DLA Ref: 2016/275 March 2017
CONTENTS
1.0 INTRODUCTION AND SUMMARY ...... 2 2.0 SITE AND CONTEXT APPRAISAL ...... 3 3.0 RELEVANT PLANNING HISTORY ...... 6 4.0 POLICY CONTEXT ...... 7 5.0 DESCRIPTION OF DEVELOPMENT ...... 9 6.0 PLANNING CONSIDERATIONS...... 11 7.0 CONCLUSIONS ...... 16
1 Land to the rear of 96 Greenfield Road, Flitton DLA Ref. 2016/275 March 2017
1.0 INTRODUCTION AND SUMMARY
1.1 This report relates to a pre-application enquiry for the development of the land to the rear Application of Greenfield Road, Flitton for residential use. Access to the site would be gained by Site demolishing number 96 Greenfield Road.
1.2 In summary, the site is well-located in terms of village facilities and relates well to the pattern of development in the village, being bounded on three sides by the existing settlement envelope. It is well contained and would not result in incursion into open countryside.
1.3 There is currently not a five-year housing land supply in Central Bedfordshire and sites such as the report site are required to boost housing delivery in the short-term. Indeed, a site on the opposite side of Greenfield Road has recently been granted planning permission in similar circumstances.
1.4 A range of housing types and sizes will be provided, including bungalows. Affordable housing will be provided as part of the housing mix.
2 Land to the rear of 96 Greenfield Road, Flitton DLA Ref. 2016/275 March 2017
2.0 SITE AND CONTEXT APPRAISAL
2.1.0 Location The site is located to the rear of houses sited along the southern side of Greenfield Road and to the rear of houses on the western side of Sand Road.
2.2.0 Site The site is approximately 1.65ha and is broadly rectangular in shape. It is currently occupied by 96 Greenfield Road and its rear garden, beyond the house and garden is a small stable block and an outdoor manege. The remainder of the site is open grassland used for grazing horses.
2.3.0 Context The site is adjacent to but outside of the settlement envelope of Flitton (see Figure 1 below). The land is therefore considered for the purposes of planning to be open countryside. The land is not subject to any other planning designation. To the north of the site are houses along Greenfield Road, to the east are houses along Sand Road, all of these dwellings are within the settlement envelope. To the west is the village hall, play area and recreation ground which are also contained within the settlement envelope. To the south of the site is open countryside. Figure 1: site context and settlement envelope
Settlement envelope
Report site
3 Land to the rear of 96 Greenfield Road, Flitton DLA Ref. 2016/275 March 2017
2.4.0 Proposals Map Notation The Core Strategy and Development Management Policies 2009 proposals map for Flitton and Greenfield shows the site outside of the settlement envelope but surrounded on three sides by the village. The site is outlined in blue in Figure 2 below.
Figure 2: Proposals Map extract and site boundary
4 Land to the rear of 96 Greenfield Road, Flitton DLA Ref. 2016/275 March 2017
2.5.0 Local Services As the site is located immediately adjacent to the settlement envelope the site has the same access to local services as those dwellings to the north and east of the site. The communities of Flitton and Greenfield are served by a lower school, public houses and a church. The site itself is adjacent to Flitton and Greenfield Village Hall and the sports pitches, two floodlit tennis courts, MUGA and large children’s play area that occupy the same site. A farm shop has recently opened on Pulloxhill Road providing small-scale retail facilities for the village. There is also a small industrial estate on the edge of the village located on Greenfield Road.
2.5.1 The Inspector in determining the recent appeal on the site to the north of Greenfield Road stated: “The CBC Settlement Hierarchy Technical Study (June 2014) ranks Flitton 53 out of 120 settlements across Central Bedfordshire. It is one of six ‘small villages’ across Central Bedfordshire within the catchment of a Major Service Centre. The village benefits from a village hall, public house, church, play area and sports pitch. There are daily buses to and from Flitwick, with a journey time of around 10 minutes. The daily service to Flitwick is supplemented by a separate service which runs on Monday, Wednesday and Friday.” It is therefore considered the site is well located in terms of access to services.
2.6.0 Accessibility As can be seen in the above quote from the Inspector’s report the village is served by a bus service to Flitwick. The nearest railway station is in Flitwick and is a journey of circa 3km which equates to an approximately 10-minute cycle ride.
5 Land to the rear of 96 Greenfield Road, Flitton DLA Ref. 2016/275 March 2017
3.0 RELEVANT PLANNING HISTORY
3.1.0 Application Site The relevant history of the application site is summarised in Figure 3.1.0 below.
LPA Ref Proposal Outcome CB/13/04140/FULL Change of Use from Agricultural to Approved Equestrian, erection of stabling and manage. 13/2/14
3.2.0 Other relevant Sites
3.2.1 Greenfield Road
An area of land on the northern side of Greenfield Road has recently been granted permission for residential development. The original application for 24 houses was refused by the Council as it fell outside of the Flitton Settlement Envelope and would cause significant and demonstrable harm to the character and appearance of the area by extending built development in to the countryside; no s106 had been provided to secure affordable housing and insufficient information had been provided in relation to surface water drainage and the impact of odour, noise and smoke from the adjacent business.
LPA Ref Proposal Outcome CB/15/03958/OUT Residential development of up to 24 dwellings Refused 14/1/16 plus associated open space and landscaping Allowed on appeal 14/11/16 CB/16/02069/OUT Development of up to 13 residential units Approved 2/2/17
3.2.2 Sand Road
An area of land sited on the eastern side of Sand Road was proposed for residential development. The application was refused because the site is outside of the Flitton Settlement Envelope and is within the open countryside and the development would cause significant and demonstrable harm to the character and appearance of the area by extending built development in to the countryside. Further reasons for refusal relates to the lack of a s106 agreement to secure affordable housing and appropriate contributions to infrastructure and insufficient information regarding surface water drainage and the risk of flooding.
LPA Ref Proposal Outcome CB/16/02632/OUT Erection of 18 new dwellings Refused 20/9/16 Appeal lodged 5/1/17
6 Land to the rear of 96 Greenfield Road, Flitton DLA Ref. 2016/275 March 2017
4.0 POLICY CONTEXT
4.1.0 National Policy / Guidance The National Planning Policy Framework sets out the Government’s planning policies for England. Chapters 6 (Delivering a wide choice of quality homes), 7 (Requiring good design), 11 (Conserving and enhancing the natural environment) are particularly relevant to this application.
4.1.1 The National Planning Policy Guidance contains detailed guidance on the application of the NPPF.
4.2.0 Core Strategy and Development Management Policies – November 2009 The policies listed in the table below are considered relevant to the consideration of this application. Policy CS7 relates to the provision of affordable housing and requires that on schemes of four or more dwellings 35% affordable housing is provided. This policy is at odds with the approach set out in the NPPG following its amendment on 19 May 2016.
Consideration of the whether the policies are out of date due to a lack of consistency with the NPPF or due to a lack of a 5 year housing land supply are set out below where relevant.
Policy No. Title CS1 Development Strategy CS2 Developer Contributions CS3 Healthy and Sustainable Communities CS5 Providing Homes CS7 Affordable Housing CS14 High Quality Development CS15 Heritage CS17 Green Infrastructure DM3 High Quality Development DM10 Housing Mix DM13 Heritage in Development DM14 Landscape and Woodland
4.3.0 Emerging Development Strategy – now withdrawn At the meeting of Full Council on 19 November 2015 it was proposed to withdraw the Development Strategy. The substantial volume of evidence gathered over a number of years will help support the new Local Plan under preparation. The Council considers that the technical papers are consistent with the spirit of the NPPF and therefore have remained on
7 Land to the rear of 96 Greenfield Road, Flitton DLA Ref. 2016/275 March 2017
the Council’s website as material considerations which may inform future development management decisions.
4.3.1 It is submitted that the technical work and papers produced on the topic of affordable housing which led the Council to determine that the level of affordable housing to be provided on sites should be 30% is more up-to-date and relevant to the consideration of current planning applications that the adopted policy which requires 35%.
4.4.0 Other Relevant Guidance Design in Central Bedfordshire: A Guide for Development provides detailed guidance on various design issues. Design Supplement 5 relates to Residential Development and includes internal and external spaces standards and car parking requirements.
8 Land to the rear of 96 Greenfield Road, Flitton DLA Ref. 2016/275 March 2017
5.0 DESCRIPTION OF DEVELOPMENT
5.1.0 Use The pre-application proposals include 46 dwellings and open space in the form of a landscaped play area.
5.1.1 The development would comprise a range of dwelling types and sizes, including the provision of bungalows. Affordable housing would be provided as part of the dwelling mix. Potential also exists for some of the units on site to be made available for self-build. The proposed layout is set out in Figure 3 below.
Figure 3: site layout
9 Land to the rear of 96 Greenfield Road, Flitton DLA Ref. 2016/275 March 2017
5.2.0 Layout The access to the site would be gained by demolishing 96 Greenfield Road to provide an access road with footways either side. Once within the site the road would form a number of culs-de-sac culminating in shared surfaces.
5.3.0 Appearance & Scale To reflect the scale of the surrounding housing the proposed new dwellings would be two storey with traditional pitched roofs. Single storey bungalows would also be part of the housing mix. The design of the houses is yet to be determined but a traditional approach of brick and tile is suggested.
5.4.0 Landscaping There are some existing mature trees between number 96 and number 94 Greenfield Road which would be retained and would sit alongside the new access road. There are also trees on the boundary between the site and the adjacent playing field which would be retained. There is little other existing landscaping but the proposed redevelopment of the site would incorporate appropriate new landscaping.
5.5.0 Access The site would be accessed via a new main vehicular access off Greenfield Road following the demolition of 96 Greenfield Road and its associated stables and manege. A public footpath runs along the southern boundary of the site and a secondary pedestrian access is shown linking with this footpath. The footpath provides links to Greenfield Road and Sand Road but we also understand that informal footpath links exist to the school and to nearby Centenary Wood.
10 Land to the rear of 96 Greenfield Road, Flitton DLA Ref. 2016/275 March 2017
6.0 PLANNING CONSIDERATIONS Based on the analysis set out in Sections 2 to 5, I consider that the proposal raises the following issues, which I will consider in turn below:
1. Principle 2. Access and Parking 3. Layout & Design 4. Other Issues
6.1.0 Issue No 1: Principle
6.1.1 The site lies outside but immediately adjacent to the settlement envelope of Flitton. Core Strategy policy DM4 sets out that development within settlement envelopes is acceptable in principle. Beyond the defined Settlement Envelopes development is to be limited to community, education, health, sports and recreation, where there is an established need for such facilities and they cannot be accommodated within the settlement; or limited extensions to gardens. In these circumstances, whilst the proposal is contrary to Policy DM4, the proposal is nevertheless promoted in the light of the following two factors, which are considered to weigh heavily in its favour:
1. The lack of 5 year supply of deliverable housing and the requirement to significantly boost the supply of housing: and
2. The sustainability credentials of the proposed development.
6.1.2 Factor No 1: The lack of 5 year supply of deliverable housing and the requirement to significantly boost the supply of housing Paragraph 11 of the NPPF advises that it is highly desirable that local planning authorities should have an up-to-date plan in place. Paragraph 14 further advises that where the development plan is absent, silent or relevant policies are out-of-date, permission should be granted unless “any adverse impacts of doing so would significantly and demonstrably outweigh the benefits” or unless specific policies in the Framework indicate development should be refused. With specific reference to Housing paragraph 47 advises that LPAs should identify and update annually a supply of specific deliverable sites (i.e. viable sites that can be delivered within five years) sufficient to provide five years’ worth of housing against their housing requirements.
6.1.3 The latest position published by the Council up to 1st January 2017 showed a 4.88 year supply.
11 Land to the rear of 96 Greenfield Road, Flitton DLA Ref. 2016/275 March 2017
6.1.4 In circumstances where the Council accepts it cannot demonstrate a 5 year supply, paragraph 14 is engaged and permission should be granted unless any harm “significantly and demonstrably” outweighs the benefits. In circumstances where the situation is fluid, the lack of certainty is in itself sufficient reason to justify securing additional sites over and above those identified by the Council. This reflects the view expressed by the Inspector in the recently allowed appeal at Weedon Bec, Northamptonshire. He concluded that despite the Council in that instance having identified a 5.2 year supply, the proposal would help the Council achieve what they acknowledged was a ‘challenging trajectory’, whilst reflecting the Government’s aim of ‘significantly boosting’ the supply of housing (NPPF paragraph 47). The current situation in Central Beds is directly comparable.
6.1.5 There is a general need for affordable housing across Central Bedfordshire, as highlighted in the Council’s SHMA. The provision of affordable housing on this site in a range of tenures represents a significant benefit of the scheme.
Factor No 2: The sustainability credentials of the proposed development 6.1.5 The site relates very well to the rest of Flitton. Figures 1 and 2 above show the site bordered on three sides by the adopted settlement envelope for Flitton. As such the proposal does not represent an incursion into open countryside but a contained development within the general extent of the village. The site’s south-western boundary fronts on to the sports pitches adjacent to the Village Hall and offers an opportunity for an attractive frontage development and for increased natural surveillance of the sports pitches.
6.1.6 As shown on Figure 4 below, village facilities are within an easy walk of the site. The Village Hall is less than 50 metres from the north-western corner of the site, while the MUGA, floodlit tennis courts and the large children’s play area are within 100 metres of this point. Greenfield Lower School is around a 10-minute walk from the site and the White Hart Pub and the Church of St John the Baptist, Flitton is around a 6-minute walk. Residents of the new development would be able to play an active part in village community life and would feel geographically part of the village.
12 Land to the rear of 96 Greenfield Road, Flitton DLA Ref. 2016/275 March 2017
Figure 4: site context 6.1.7 The site has been promoted through the Call for Sites process as part of the emerging Local Plan. Given the substantial housing need in Central Bedfordshire and the excellent sustainability credentials of this site, we expect the site to be allocated in the emerging Local Plan in due course. We understand from Council officers that the next stage of consultation on the Local Plan will take place in June this year and will include some form of judgement on the appropriateness of the sites promoted through the Call for Sites process. It is therefore likely that a decision on a planning application for this site would be made in the knowledge of whether the site is considered suitable for allocation through the Local Plan. Nevertheless, the site is suitable for development now and need not await the Local Plan process which, based on past experience, is likely to take a number of years to complete.
13 Land to the rear of 96 Greenfield Road, Flitton DLA Ref. 2016/275 March 2017
6.2.0 Issue No 2: Access & Parking
6.2.1 Access to the site would be gained by demolishing 96 Greenfield Road to provide an access road to the site. Within the site the roads would be designed in accordance with the Council’s Design Guide.
6.2.2 Parking for dwellings would be provided in accordance with the requirements set out in the Design Guide. Visitor parking would also be provided in accordance with the standards.
6.3.0 Issue No 3: Layout & Design
6.3.1 The layout of the scheme has been influenced by the Design Guide and its focus on the principles of place making. The scheme introduces a pleasant layout of good quality houses with generous landscaped areas. The landscaped entrance to the site from Greenfield Road can become a particular feature as an entrance to the site. The site incorporates elements that face on to the sports pitches that can present an attractive frontage while offering natural surveillance. The internal open space area adjacent to the sports pitches provides a focal point for the development and links well with the adjacent public open space. The proposed “home zones” at the end of each of the culs-de sac will incorporate shared surfaces designed for slower vehicle speeds.
6.4.0 Issue No 5: Other Issues
6.4.1 Contamination
The site has historically been used for agricultural purposes and most recently used for equestrian use, mainly horse grazing. As such, there is considered to be limited potential for ground contamination.
6.4.2 Affordable housing
Following the withdrawal of the Development Strategy the Core Strategy and Development Management Policies document is the planning policy document in force. The Core Strategy sets out in policy CS7 that affordable housing should be provided on sites of 4 or more dwellings at a rate of 35%. The significant background work which was undertaken to support the Development Strategy demonstrated that the appropriate level of affordable housing to be sought is 30%. In light of the Development Strategy work being more up-to-
14 Land to the rear of 96 Greenfield Road, Flitton DLA Ref. 2016/275 March 2017
date than the Core Strategy it is considered that the correct level of affordable housing should be 30% and this is what is proposed on this site.
6.4.3 Section 106 Contributions
The developer is willing to pay appropriate section 106 contributions, providing that they can be adequately justified, subject to viability constraints.
15 Land to the rear of 96 Greenfield Road, Flitton DLA Ref. 2016/275 March 2017
7.0 CONCLUSIONS
7.1 This report relates to a pre-application enquiry relating to the redevelopment of the land to the rear of Greenfield Road, Flitton.
7.2 In summary, the site is well-located in terms of village facilities and relates well to the pattern of development in the village, being bounded on three sides by the existing settlement envelope. It is well contained and would not result in incursion into open countryside.
7.3 There is currently not a five-year housing land supply in Central Bedfordshire and sites such as the report site are required to boost housing delivery in the short-term. Indeed, a site on the opposite side of Greenfield Road has recently been granted planning permission in similar circumstances.
7.4 A range of housing types and sizes will be provided, including bungalows. Affordable housing will be provided as part of the housing mix.
7.5 It would be appreciated if the Council’s response would provide advice and guidance regarding highway matters and the access to the site; desired design approach to the development; the housing mix proposed and overall approach to layout and landscaping.
16 Land to the rear of 96 Greenfield Road, Flitton DLA Ref. 2016/275 March 2017