02 Application Number: 10/74014/000 Ward: Emsworth

Site Address: Hampshire Farm, Westbourne Road, Emsworth, PO10 7RN Applicant: Linden Homes Development Ltd Team: 2 Agent: Mr M Carrington Case Officer: Mrs A Wright 13 Week Date: 24/06/2010

Reason for Committee Consideration: EHPBE Referral

Proposal: Outline application for demolition of existing dwelling and erection of 280No. residential dwellings, doctors surgery and pharmacy with associated parking and landscaping, improvements to roundabout, and realignment of southern section of Redlands Lane to provide access and provision of public open space with parking, landscaping and construction of a balancing pond with some matters reserved.

Density: 35dph

EHPBE Recommendation: GRANT PERMISSION

1 Site Description

1.1 The Hampshire Farm site extends to 24.7ha and lies on the north eastern side of Emsworth and close to the village of Westbourne. The site is largely comprised of agricultural land and includes paddocks and a residential dwelling known as ‘The Glen’. The site is subject to a Tree Preservation Order which was served on 15/09/2008. The Tree Preservation Order comprises of 11 groups of trees and 4 individual trees. Within the site are existing field hedgerows and ditches that run north to south and then out towards Redlands Lane.

1.2 The site lies to the north of Westbourne Road and extends to Long Copse Lane in the north and west to Redlands Lane. On the eastern edge of the site are the Westbourne Rural Enterprise (Wren) Centre and an open field with the River Ems beyond.

1.3 The western part of the site, the proposed residential development area, is well screened from the surrounding roads by mature trees which line the northern and western boundaries. The eastern boundary of the residential area is screened by more recent structural tree planting which is maturing. The eastern part of the site, the proposed open space, is more open with views towards the village of Westbourne.

1.4 The site is bounded on three sides by residential development. To the south is Westbourne Road and the residential area known as New Brighton which consists of post war development. To the west is Redlands Lane with development dating from the 1960’s located beyond. Long Copse Lane to the north consists of a minor road that links Emsworth to Westbourne and contains several large residential properties with substantial gardens that abut the northern boundary of the site.

2 Policy History

2.1 In 2000 Hampshire Farm was promoted by Council Officers as a housing site at the First Draft Deposit stage of the Local Plan. It was ranked 4 th out of 22 possible housing sites in terms of accessibility and sustainability and was duly recommended as a reserve housing site by planning officers in September 2000. However despite acceptance of this recommendation by two Committees, it was not accepted by Leisure Services Committee and Full Council, and was subsequently omitted as an allocation site in the First Deposit and Revised Deposit Plans.

2.2 Linden Development Limited however, promoted Hampshire Farm as an omission site during the Public Inquiry. The Public Inquiry was conducted between 12/11/2002 and 23/06/2003 and sat for a total of 47 days. The Inspector published his report in April 2004, and concluded that Hampshire Farm should be included as a reserve housing site for Emsworth.

2.3 In December 2004 the then Head of Planning and Development Services prepared a report to The Executive detailing the considerations that had been given to the Inspector's Report and recommended actions and modifications to the Local Plan. This report recommended that Hampshire Farm should be allocated as a reserve housing site. The Executive agreed that the Head of Planning and Development Services make appropriate arrangements for the publication of the proposed modifications to the Havant Borough District Wide Local Plan for public comment. The proposed modifications were published on the 31/01/2005 for the statutory 6 weeks comment period which ended on the 14/03/2005 .

2.4 All parties who had commented at previous stages were consulted on the Proposed Modifications by letter. This included the general public, community groups, conservation and amenity groups, business, development and infrastructure interests and statutory bodies. A leaflet was included with the letter outlining the main Proposed Modifications to the Plan, where the Modifications could be viewed and how comments could be made.

2.5 The Proposed Modifications documents were placed on deposit at the libraries in the Borough, at the Civic Offices in Havant and at the Hermitage Housing Offices in Waterlooville. Displays were put up in the libraries to publicise the Proposed Modifications. The documents were also placed on the Council’s website.

2.6 A news release was sent to the local media, and The News in particular published a number of articles during the comment period. These outlined the main changes to the Plan and also informed readers where the documents could be viewed and of the opportunity to comment on the proposals.

2.7 The publicity arrangements exceeded the requirements set out in the Regulations, and were carried out with the intention to inform not only those members of the public who had previously been involved in the process, but also those who may not have previously been aware of the proposals.

2.8 950 respondents submitted representations on the Proposed Modifications (i.e. made in accordance with the Regulations). The 950 respondents made a total number of 1270 representations with 249 representations relating to Hampshire Farm alone. A substantial number of the objections related to highway implications, lack of accessibility to local facilities, flooding and drainage and the loss of a gap between Westbourne and Emsworth.

2.9 Following this consultation period, the then Head of Planning and Development Services prepared a further report to the Executive on 13/07/2005 and The Council on 27/07/2005. This report set out detailed consideration of the representations made to the proposed modifications and recommended that the procedures should be instituted for the formal adoption of the Plan. The Executive and Council agreed to the recommendations set out in the report. The Havant Borough District Wide Local Plan was adopted on the 30/09/2005 but as a result of the Planning and Compulsory Purchase Act 2004 it was only able to be used for 3 years after its adoption. This remains as a live document but with policies which now form part of the Local Development Framework.

2.10 On the 30/09/2008, a number of policies from the Havant Borough District Wide Local Plan 1996-2011 were saved and now form part of the Havant Borough Local Development Framework (HBLDF). Saved Policy H4 identifies Hampshire Farm as a reserved housing site as part of the Havant Borough District Wide Local Plan (HBDWLP) 1996-2011, which forms part of the Havant Borough Local Development Framework (HBLDF). Therefore, if housing supply is required it can then be released for development.

Planning History

Tree Preservation Order No. 1923. Confirmed 15/09/2008.

Town and Country Planning (Environmental Assessment) Regulations 1999 Screening Opinion. 11/03/2010. It was considered by the Council that the proposal was not likely to lead to significant impacts and as such as Environmental Impact Assessment was not required.

3 Proposal

3.1 The application is for outline consent for the demolition of the existing dwelling ‘The Glen’ and the erection of 280No. residential dwellings, doctors surgery and pharmacy, with associated parking and landscaping, improvements to roundabout, and realignment of southern section of Redlands Lane to provide access and provision of public open space with parking, landscaping and construction of a balancing pond and an area of allotments. An indicative layout plan is Appendix E.

3.2 This is an outline application and the only matter to be considered at this stage is the access into the site. The layout, scale, landscaping and appearance would be considered at the reserved matters stage.

3.3 Vehicular access into the site is from a single location just north of the roundabout at the southern end of Redlands Lane which is proposed to be upgraded. This access would also lead to the proposed doctor’s surgery, allotments and public open space. Emergency access is possible at the pedestrian only site access close to the junction of Redlands Lane, with the footpath leading to Long Copse Lane. The access arrangements are shown on Appendix G.

Residential Area

3.4 The illustrative residential layout plan (Appendix E) indicates a total of 280No. dwellings in a range of sizes and types of accommodation. The proposed accommodation schedule is as follows:

• 19No. 1 bed apartments • 54No. 2 bed apartments • 1No. 1 bed FOG (flat over garage) • 3No. 2 bed FOG • 16No. 2 bed houses • 145No. 3 bed houses • 42No. 4 bed houses

The proposed housing mix and location of affordable dwellings is shown on Appendix (H).

3.5 The detailed design of the dwellings and housing types would be agreed at the reserved matters stage. The illustrative site layout is based on a traditional residential design, with building heights, forms and scale compatible with the surrounding area. The houses would be typically 2 storey with some at 1.5 storey (most significantly adjacent Redlands Lane) and some of 2.5 storey (rooms in the roof) and also 3 storey within the central areas of the site. The apartments are generally 2.5 storey in height, but again 3 storey in locations where this height is appropriate.

3.6 The illustrative site layout plan provides for housing terraces/semi- detached/detached properties along the main access streets, from which a number of shared surfaces and ‘home zone courtyards’ are accessed. In the main the private houses (except for a few small 2 bedroom units) benefit from integral or separate single garages. Parking for apartments and for the affordable housing is provided in unallocated communal parking areas. Parking is provided in accordance with HBC/HCC maximum standards (with a total of 526 parking spaces including garages). The roads within the development site will be to an adoptable standard but will not be formally adopted by Hampshire County Council.

Open Space Area

3.7 The proposal includes the provision of 17 hectares of land which would be used as public open space (POS) (shown on Appendix F). Within the POS would be an attenuation pond for surface water drainage which would have marginal planting to form an ecological wetland feature. The proposal indicates a car park within the open space for users of the POS and allotments. A network of informal footpaths is proposed through the open space providing access to the different areas and dog walking routes. Footpath links into the open space are provided from Long Copse Lane to the north, from Westbourne Road to the south and internally from the neighbouring development site. In addition it is proposed to provide a ‘Natural Place Space’ for older children and a nature conservation area.

3.8 The planning application includes the following studies: Design and Access Statement Transport Assessment & Travel Plan Framework Flood Risk Assessment Tree Report Arboricultural Implications Assessment Arboricultural Method Statement Tree Reference and Protection Plans Landscape and Visual Impact Assessment Ecological Scoping/Phase 1 Habitat Survey Bat Activity/Emergency Survey Report Bat Roost Assessment Entomological Survey Report Reptile Presence/Absence Survey Report Archaeological Desk Based Assessment Air Quality Screening Assessment Mineral Evaluation Policy Synopsis Infrastructure Assessment Tree Schedule and Explanatory Notes Waste Strategy Biodiversity Checklist A Summary of the Community Involvement Programme

Additional Information received:

Reptile Mitigation Method Statement (16/06/2010) Entomological Survey (16/06/2010) Reptile Presence/Absence Survey Report 2009 and 2010 (30/10/2010) Proposed pedestrian crossing point of Westbourne Road plan (02/08/2010) Pedestrian/cycle route through Public Open Space (02/08/2010) Proposed site access plan (02/08/2010) Drainage Strategy Layout (03/06/2010) Drainage Details (03/06/2010) Pond and Swale Sections (03/06/2010)

4 Policy Considerations

National Policies PPS1 (Delivering Sustainable Development) PPS3 (Housing) PPS7 (Sustainable Development in Rural Areas) PPS9 (Biodiversity and Geological Conservation) PPG13 (Transport) PPG16 (Archaeology and Planning) PPG17 (Planning for Open Space and Sport/Recreation) PPS22 (Renewable Energy) PPS23 (Planning and Pollution Control) PPG24 (Planning and Noise) PPS25 (Development and Flood Risk)

Saved Policies of the HBDWLP 1996-2011 forming part of the Havant Borough Local Development Framework D1 (High Quality Design) D3 (Public Spaces) PC1 (Control of Potentially Polluting Uses) PC3 (Protection of Water Quality) L4 (Stream Corridors) L6 (Conservation and Protection of Existing Natural Features) L7 (New Landscape Works) HE14 (Archaeological Investigations) H4.3 (Reserve Housing Sites - Hampshire Farm) H5 (Density of Housing Development) H6 (Range of Housing Types and Sizes) H8 (Affordable Housing) R16 (New Open Space) R17 (Playing Space related to New Housing Development) R18 (Allotments) CS1 (Community Buildings) T5 (New Roads) T6 (Public Transport, Cycling and Walking – New Development) T7 (Criteria for New Access) T9 (Bus Access and Provision for Cyclists and Pedestrians) T9 (Parking Standards) T10 (Contributions to Off-Site Highway Improvements) US4 (Sewers) IMP1 (Financial Contributions)

Havant Borough Residential Parking and Cycle Provision (Supplementary Planning Document) March 2010

5 Statutory and Non Statutory Consultations

Arboriculturalist Tree loss is proposed to facilitate the new access off the existing roundabout but this has been designed to ensure it is minimised and that the majority of high category trees are retained. This is an allocated site and some tree loss is inevitable in making it a workable development. Significant new tree planting is proposed as part of the scheme and I wish to see larger growing species planted at semi mature size within the areas where there is likely to be little conflict with future growth and the new dwellings/infrastructure. I would also wish to have details on the species, size and maintenance arrangements for new tree planting around the new doctor’s surgery, the village green and eastern boundary. The layout of the development is only indicative at this stage and therefore it is pre-emptive to make detailed comments at the outline stage. I will await the reserved matters application to give a more detailed response i.e. on the position and orientation of dwellings in relation to the trees.

Chichester Harbour Conservancy No objection. The site is far enough outside the AONB to have no significant impact on its setting, particularly given its relationship with the existing settlement which lies in between the proposed housing and the AONB. The main issue relates to the potential for increased recreational disturbance to the Natura 2000 site in the Harbour; and the increased pressure on Thornham Waste Water Treatment Works (WWTW). The Thornham WWTW have some, although limited, capacity for new development and we are not aware of any current problems with storm discharges of untreated sewage into the Harbour.

With regard to recreational pressure, we consider that due to the position of the proposed development and the heavy existing use of the foreshore footpath, the likely increase in disturbance would not be as great as for other sites closer to the Harbour, or in other parts of the Harbour. Most importantly, the provision of a large public open space adjacent to the development as an alternative recreation area to the Harbour, will take pressure off the more sensitive Natura 2000 site. Subject to appropriate design, provision and management of this open space, we consider that there would not be grounds to object to the proposed development. Overall a development of this size some distance from the AONB is preferable to those in closer proximity.

Conservation Officer The development will be spatially and visually separated from the village of Westbourne minimising any impact. The provision of the large area of public open space and intervening area of retained field/paddock provides a distinct visual separation between the two communities. Views from Paradise Lane over the farmland looking towards Emsworth are contained by the existing mature tree line and hedge separating the area of open space from the field. By default views of the existing housing (in Emsworth) beyond are not perceptible. There may be glimpses through in winter once the trees have lost their leaves, but again this will be limited and insignificant given the distance involved.

Westbourne lies in Chichester District who will no doubt make their own observations on the proposal. However, in my view • the flat nature of the site • established boundary screening (which is to be retained) • incorporation of a large area of open space, allows the housing development to be readily integrated into the urban grain of Emsworth, without any detrimental affect on Westbourne in general and the Conservation Area in particular. County Archaeologist I would recommend that should Planning Permission be granted, the recording of any archaeological deposits is secured through the attachment of suitable conditions.

Crime Prevention There are numerous dwellings for the affordable market and it is usual for the developer to achieve Secured by Design (SBD) certification. If the developer wishes to achieve the full SBD certification then all dwellings and their environs must meet the SBD standards, outlined in ‘New Homes 2010’.

Engineering No objection.

Environment Agency No objection subject to conditions.

Environmental Health No objection to this application on air quality grounds or from a noise perspective.

Government Office for the South East We wish to know whether this application will be referred to GOSE for consideration under the Consultation Direction 2009. Comment: The nature of the development does not fall within the criteria set out in Town and Country Planning (Consultation) (England) Direction 2009. As such the Council will not be referring the application to GOSE. This does not affect the Secretary of State’s power under section 77 of the Town and Country Planning Act 1990 to direct that this application should be called in for her own determination, irrespective of whether it falls within the terms of the direction. GOSE have been kept informed of the process of the application on behalf of the Secretary of State and it has not been called in to-date.

Hampshire Fire and Rescue Service Access roads should be provided to comply with Section 17 of Approved Document B to the Building Regulations. Approach roads should be of a hard surface at least 3.7m wide and capable of supporting the weight of a 12.5 tonne vehicle. Manholes and utility service pits and covers should have a similar load bearing capacity. Gateways and other openings for appliance access should be at least 3.1m in width. Turning facilities should be provided in any dead-end access route that is more than 20m long. This can be by a hammerhead or turning circle.

HBC Development Engineer No objection.

HCC Development Control Officer (Minerals and Waste) No objection: I have reviewed the minerals report and can confirm that I am satisfied with the findings of the report, as it is clear that the estimated reserves of 80,000 tonnes would not be considered economically or commercially viable within the identified land.

HCC Ecologist I have recently received and reviewed new and updated information relating to ecological impacts of this proposal. No objection subject to a reptile mitigation strategy and Ecological Management Plan being secured through planning conditions.

HCC Education School Organiser Officer No objection. No contribution would be sought for Westbourne as it forms part of West Sussex and the Westbourne School is on a very small site and is not able to be extended.

The development will generate approximately 78 pupils at primary age. St James and Emsworth Primary share a catchment area with Emsworth School having 35 surplus places. This means there are 43 places required. The capacity at Emsworth Primary has recently been reduced to 30 pupils per year group with the rest of the accommodation being used by a pre-school. The proposal would be to “grow” Emsworth to allow the school to take 45 pupils per year group. In order to achieve this, a financial contribution of £686,710 would be required to extend the school to provide additional space. Comment: The developer has agreed to pay a financial contribution of £686,710 towards education provision.

HCC Highways There are no objections from a highway and transport perspective to the application subject to the conclusion of a Section 106 Agreement and conditions being attached to the consent.

The developer’s transport consultant has carried out some further assessment work to ascertain the likely impact of the development on the junction of Horndean Road/New Brighton Road and the junction of Horndean Road/Southleigh Road in 2020. The analysis demonstrated that the junction of Horndean Road/Southleigh Road would continue to operate within theoretical capacity in 2020, with the addition of the development traffic on the local highway network.

The modelling work did however demonstrate that the junction of Horndean Road/New Brighton Road would operate over capacity in 2020 with development traffic included in the assessment. A queue in excess of 13 vehicles has been predicted to occur in the pm peak at this junction for vehicles travelling northbound along Horndean Road or wishing to turn right from Horndean Road into New Brighton Road. It has been agreed that the developer will fund an improvement to the junction in order to overcome the capacity concerns and to improve the pedestrian facilities at this junction for residents from the development travelling toward the town centre.

A number of concerns were raised to the design of the site access roundabout. The design of the roundabout has since been amended and revised in light of my concerns. The revised alignment of the New Brighton Road approach provides improved deflection addressing my concerns in relation to this point.

The applicant will need to enter into a Section 278 Agreement with the County Council and deliver the works prior to the occupation of any unit within the development. The developers have confirmed that they are happy with the package of works and contributions that are required from the proposed development to mitigate against the impact of the development. (Appendix B sets out the full package of works and contributions agreed). This will need to be secured in a Section 106 Agreement.

Housing I would support this scheme in terms of the provision of affordable housing; mix and location, however there are questions surrounding the design of the development and in particular the provision of play space. Comment: The design of the dwellings would form part of the reserved matters application and the provision of open space would be subject to a Section 106 Agreement and reserved matters application.

Langstone Harbour Board Concerns are raised over the potential impacts on the surrounding area and in particular Chichester Harbour. No support to this proposal.

Natural England No objection to the proposed development subject to conditions and/or a Section 106 Agreement regarding the provision of open space. I am pleased to see biodiversity gains anticipated through the provision and structure of the new public open space. Footpath links to and from the wider environment into this area of public open space are important, and we suggest that the Council should consider how this new public open green space can play a part in a wider green infrastructure of the Borough. I am also pleased to see the potential visual impacts of the development on the local landscape addressed through the Landscape Visual Impact Assessment.

Network Rail No comment.

NHS Hampshire 280 dwellings at the proposed development would equate to potentially 616 new patients requiring primary care services and giving rise to a need for additional GP workforce for 3-4 sessions per week with associated ancillary and nursing staff. The Primary Care medical facilities in Emsworth are currently under review with the GP practice looking to develop their premises to increase capacity to care for existing local residents. The potential additional population would create an increased pressure on the Primary Care medical premises within the area. The most local surgery to the proposed development has restricted accommodation with difficulty complying with DDA in their Listed Building.

NHS Hampshire would like to support the practice with their aspirations to develop their premises. The practice has been in negotiation with the developer to gain some benefit from the proposed development which the PCT would support if the GP practice were enabled to develop their premises with a cost neutral scheme.

Therefore NHS Hampshire would like to request a Section 106 financial contribution to facilitate premises development within Emsworth, as the current premise will not be able to support the additional levels of services required. I would like to reiterate that although there is potential for a GP Practice within Emsworth to relocate to this site, there has been no approval for such a scheme at this present time.

Planning Policy Team The housing completion data for 2009/10 shows a net completion of 145No. dwellings in that year. Cumulatively since 2006 the council are currently 237No. dwellings below target. The need for the release of this site has arguably increased (and as such any justification for refusal has decreased) following this further drop in housing completions for the 2009/10 year. Without this site the council will be unable to justify a deliverable 5 year supply of housing and should the application be refused on the principle of residential development then I am of the opinion it will be allowed at appeal. In addition to this a refusal would leave a ‘hole’ in housing supply which may make the council vulnerable to appeal at other sites.

The South East Plan (SEP) housing figures were the Council’s ‘Option 1’ figures and were not objected to during the formation of the SEP. Legal advice has supported continuation with the LDF process on the basis of the 6,300 figure.

There is considered to be no justification for refusing the principle of this site for residential development. The varying considerations (e.g. housing supply, housing completions, appeals at Dilly’s Lane and Silent Garden, etc.) support the need/release of this site.

Southern Water There is currently inadequate capacity in the local network to provide foul sewage disposal to service the proposed development. The proposed development would increase flows to the public sewerage system, and existing properties and land may be subject to a greater risk of flooding as a result. Additional off-site sewers or improvements to existing sewers will be required to provide sufficient capacity to service the development. SUDS systems usually have a significant land take and it is not clear how the SUDS facilities can be accommodated within the proposed development. Before the proposed layout is approved, we advise that the applicant give consideration to ensure that the proposed means of surface water disposal can be accommodated within the proposed layout. No objection subject to conditions.

Urban Design and Landscaping Team The landscaping proposals for the above site are basically sound but it would be good to see more trees on the main route through the site. The parking courts also need greening with trees as shown on the plan. A grass/wildflower margin should be planted along the footpath edge of the hedgerow running north/south across the site. Comment: The landscaping of the site is to be agreed at reserved matters stag e. As such the landscaping plan has not been finalised at this stage of the planning process.

Westbourne Parish Council There are many issues of concerns that arise from this proposal, but the main area for consideration has to be with regard to the planning policies that are relevant to this site and remain current at this time, and whether a challenge to the proposal could be upheld at appeal.

Flooding of the site and the annual field run off that floods and freezes on Westbourne Road has been addressed by the inclusion of SUDs with balancing pond. It is essential that the drainage outlet from that pond is south of the existing Hampshire Bridge to prevent flooding and back up of water through the river system in Westbourne.

Traffic is a major concern and it is acknowledged that there will be a substantial increase. There is also a concern that Long Copse Lane may become a rat run because of the junction at North Street in Westbourne. We understand that the finer details of the Medical Centre are very much controlled by PCT funding issues and not the developer. There is some opposition to the loss of Westbourne Surgery. Obviously any potential closure of Westbourne pharmacy is viewed with concern as it will mean the loss of a shop and other businesses.

West Sussex Highways I am mainly concerned with the likely traffic impact through Westbourne and ensuring, should the Doctors surgery relocate, that sustainable travel options are available to allow Westbourne residents to continue to access health services.

Within Westbourne the areas of The Grove and East Street are often constrained by parked vehicles and the highway can sometimes by reduced to single way operation. The addition of the proposed development traffic (less than one additional vehicle per minute during both AM and PM peaks) would not be considered to result in a material impact on the local highway through the village.

In addition the applicants have reviewed the operation of the Foxbury Lane/Common Road junction and we are satisfied that the proposed development would not have a material impact on the operation of this junction. Considering the modest increase in traffic through the village it is considered that other junctions would not experience material impact and would operate within their capacity.

I am concerned about the large cluster of affordable units in the north and northwest of the site. I consider this unacceptable, however must defer the matter to my housing colleagues. Pedestrian only routes and segregation of vehicular and pedestrian movements should be avoided wherever possible because it does not provide as much natural surveillance as shared routes, and as a result can attract crime/anti-social behaviour. Locating this narrow pedestrian only route alongside affordable housing could be particularly problematic. The applicant has included a number of other pedestrian only routes; in general these routes have better visibility. However, as a general rule of thumb these should be avoided. You expect the higher densities to be located close to sustainable transport hubs, such as the bus stops. Higher densities and higher buildings help the overall legibility of a development.

It is important that the applicant provides a variety of car parking solutions and does not over rely on rear car courts. Where there are car courts, it is important that these are well overlooked, and have ground floor surveillance. Car parking spaces should be broken up by tree planting every 5 spaces. The applicant demonstrates that 280 units can be accommodated on the site and therefore I do not object.

However, there are elements of the design that I am not satisfied with, and these have been detailed above. It is important that these issues are addressed at the next stage of the planning process.

6 Community Involvement

This application was publicised in accordance with the Council’s Code of Practice for Publicity of Planning Applications approved at Minute 207/6/92 (as amended), as a result of which the following publicity was undertaken:

Number of neighbour notification letters sent: 362

Number of site notices: 10

Statutory advert: Yes

Number of representations received: 389 objection letters including 1 letter from Emsworth Residents Association (See Appendix A for a summary of the representations) 1 petition containing 33 signatures.

7 Planning Considerations

7.1 The development plan identifies the main considerations in relation to the proposal as:

(i) Principle of Development; (ii) Nature of development (iii) Impact on character and appearance of the area; (iv) Residential amenity (v) Access and Highway Implications (vi) Flooding and drainage (vii) The effect of development on ecology (viii) Impact upon the Historic Environment (ix) Impact upon Trees (x) Other Environmental effects (xi) Community/Health Facilities (xii) Contribution Arrangements

(i) Principle of Development

Residential

7.2 Hampshire Farm is identified as a reserved housing site (saved Policy H4) as part of the HBDWLP 1996 – 2011 which forms part of the HBLDF. The purpose of a reserve housing site is that it could be released for development in the event that housing supply was failing to meet targets.

7.3 Although the SEP along with all Regional Spatial Strategies (RSS) in England and Wales is now revoked, the Partnership for Urban South Hampshire (PUSH) and Havant Borough Council raised no objection to the housing target for Havant Borough. The current annual supply of housing needed in the Borough is 315 homes. This derives from a total of 6300 homes required for the period 2006 to 2026. This total was set in the SEP which was approved in 2009.

7.4 Following the revocation of the SEP on 06/07/2010, the Government has advised that Local Planning Authorities (LPAs) should continue to make planning decisions with regard to the development plan (which includes Saved Policies) and should have regard to any other material considerations, including national policies. Evidence that informed the preparation of the revoked RSS may also be a material consideration. The guidance adds that, in determining the right level of local housing provision, LPAs may decide to retain their existing targets set out in the revoked RSS or may base revised targets on the level of provision submitted to the original RSS (Option 1 targets). Option 1 targets are those which preceded the final targets for each Borough/District in the stages of the SEP production. In Havant Borough the option 1 targets put forward were the same as those finally set out in the SEP. As already stated the Council did not object to the Option 1 target of 6,300 new homes to be delivered between 2006 and 2026. Also of note is that the Government decision to revoke the South East Plan is currently subject to legal challenge.

7.5 The Council considered the implications of the revocation of the SEP in relation to the housing and regeneration needs of the Borough, and also the economic growth expectations for the sub-region. In addition, legal advice was sought relating to the revocation of the SEP and continuing work on the Local Development Framework (LDF). Based on the advice received the Council committed to continuing work on the LDF and the submission of the Core Strategy for examination.

7.6 Havant Borough Council submitted the Core Strategy, which is a principal stage of the LDF process, to the Government for examination by an independent Planning Inspector on 02/09/2010. The housing objectives set out in the Core Strategy are to continue to achieve the net total of 6,300 new dwellings between 2006 and 2026. The examination involved a Pre-Hearing Meeting followed by public hearing sessions that sat from 7 until 16 September 2010. The Inspector’s report will be binding on the Council. This target means that annual supply between 2006-2026 must still be 315 homes.

7.7 The release of Hampshire Farm is considered necessary as the net total number of dwellings completed for the period of 2008/2009 was 252, and for the period 2009/2010 145 dwellings were completed. This leaves the Council 237 dwellings below annualised targets taking into account all net completions since 2006. This situation is very important in relation to the Council’s 5 year supply of housing.

7.8 Detailed information on expected levels of development is contained in the housing trajectory figures in the Strategic Housing Land Availability Assessment (SHLAA) and the Annual Monitoring Report (AMR). The SHLAA is an important piece of evidence base which will inform the preparation of the LDF. The SHLAA contains an assessment of the amount of land that is available for housing development. The role of the SHLAA is to identify sites with potential for housing, assess their housing potential and assess when they are likely to be developed. The SHLAA does not determine whether a site should be allocated for housing development, this is the role of the Development Delivery (Allocations) DPD. Hampshire Farm is included within the SHLAA and bearing in mind its current status as a reserve housing site, the Council considers it critical for this site to be released at this stage in order to maintain a 5 year housing land supply.

5 year housing supply

7.9 The importance of maintaining a 5 year plan supply is referred to in Planning Policy Statement 3 paragraph 71 which states that:

“Where Local Planning Authorities cannot demonstrate an up-to-date five year supply of deliverable site..they should consider favourably planning applications for housing, having regard to the policies in this PPS”.

7.10 The ability to refuse planning applications on reserve housing sites has been unsuccessful for nearby authorities. Two appeals were allowed on reserved housing sites in Hampshire: the first was ‘Dilly’s Lane’ (Hart District Council) in July 2007 and the second was at ‘Silent Garden, Liphook (East Hampshire District Council) in March 2009. Various factors were considered as part of these appeals and many similarities can be drawn with Havant Borough and our reserve housing sites.

7.11 The ‘Dilly’s Lane’ case was granted Planning Permission by the Secretary of State. At paragraph 25 of her decision letter the Secretary of State concludes that because Dilly’s Lane is a reserve housing site in the Development Plan, it is allocated in the overall land supply. The letter concludes that the development of the site would not have the effect of preventing or delaying developable brownfield sites from coming forward in Hart District.

7.12 The Silent Garden case was granted planning permission by the Secretary of State in March 2009. The site was identified as a reserve housing site in East Hampshire District Council’s Second Review Local Plan. The Inspector concluded that the decision on whether to grant permission for the proposal should take account of PPS3 guidance, and that it was allocated in the overall land supply for the District. As the site represented a suitable and available source of housing land where the housing proposed was achievable and deliverable, he considered that the site should be regarded just as much a part of the identified housing land supply as the baseline sites. It is notable that the Inspector accepted that the East Hampshire District Council had demonstrated an up-to-date 5 year supply of deliverable sites as required by PPS3, but decided that the release of the Silent Garden site would ensure that there was a continuous delivery of housing moving forward.

7.13 The Dilly’s Lane and Silent Garden appeal decisions are pertinent to this application because they variously indicate the views of the Secretary of State that there is little difference between a reserve and allocated housing site even where a 5 year supply of housing is demonstrated. In the Havant Borough context, the absence of a current 5 year supply would make a refusal on the basis of housing supply particularly difficult to substantiate.

7.14 The Council have received a letter from Blake Lapthorn on behalf of Emsworth Residents Association objecting to the proposal. The Council have sought legal advice on the content of this letter. Counsel’s advice is that these appeal decisions are relevant to this planning application and must be a material consideration.

Greenfield/brownfield development

7.15 Although the proposal is on greenfield land this is acceptable in planning policy terms. PPS3 contains a national planning target of achieving 60% of residential development on Previously Developed Land (PDL). However, the Council’s emerging Core Strategy is clear that this target will be difficult to achieve at the local level in the coming years.

7.16 The Council are unable to take a ‘PDL first’ approach to housing delivery due to availability and suitability of sites and PPS3 (Para.72) also states that LPAs should not refuse applications solely on the grounds of prematurity.

7.17 In conclusion, on the policy issues surrounding the release of this site for development, there is considered to be no justification for refusing the principle of this development. The requirement for a 5 year supply of housing, the recent drop in housing delivery, and the comparable appeal decisions elsewhere in Hampshire are all key considerations in the acceptability of this site for housing development.

Public Open Space

7.18 Saved Policy R16 of the HBDWLP 1996-2011 which forms part of the HBLDF refers to new open space and states that planning applications for playing fields and courts and/or other forms of open space will be permitted at Hampshire Farm. In the text of the policy it states open space is an appropriate use in the Strategic Gap and would address the acknowledged shortfall in the locality. The proposal would also safeguard a major part of the open area between Emsworth and Westbourne and prevent any subsequent pressure for development.

7.19 Planning Policy Guidance 19 (Planning For Open Space, Sport and Recreation) sets out general principles that Councils should consider when planning new open space. It states that Local Authorities should promote accessibility by walking, cycling and public transport, and ensure that facilities are accessible for people with disabilities.

7.20 The Government is currently conducting a consultation exercise on a new Planning Policy Statement: Planning for a Natural and Healthy Environment. It would streamline and consolidate other planning policy statements. This new draft PPS aims to ensure that, where possible, new development enhances the natural environment and provides an appropriate quantity and range of types of open and green spaces to meet the needs of the community. Open space plays a vital role in promoting healthy living and in the social development of children through play, sporting activities and interaction with others.

7.21 The proposal includes 17 hectares of Public Open Space which would provide improved opportunities for informal recreation (walking, children’s play etc). It also aims to enhance the biodiversity and ecological value of the site through the provision of a nature conservation area. It is considered that this proposal would accord with Local and National Planning Guidance, and would benefit not only future residents of the development, but the wider community of Emsworth. An open space layout plan has been provided indicating the overall form of the open space. The plan indicates footpaths, allotments, a natural play area, car park, meadow and a kick about area (Appendix F).

7.22 The final details of the landscaping and layout of the open space will be agreed at the reserved matters stage. Linden Homes has agreed to provide and integrate artwork into the development. This will be subject to a planning condition and Section 106 Agreement.

7.23 It is proposed that the open space is laid out formally by Linden Homes (including landscaping/provision of natural play/footpaths/allotments) and maintained for approximately 12 months prior to it being formally transferred into the Council’s ownership. The transfer of the land would be subject to a Section 106 Agreement. The developer has agreed to provide a financial contribution of £130,000 towards the maintenance of the open space for 20 years.

7.24 Linden Homes have also agreed to a pay a financial contribution of £50,000 towards off site playing pitches and court improvements in Emsworth. This will form part of a Section 106 Agreement.

(ii) Nature of Development

7.25 In assessing whether the nature of the development would be acceptable the following factors have been considered:

The density of residential development The mix of dwelling sizes and tenures The design and layout of the development

The density of residential development

7.26 The application seeks 280No. dwellings which equates to 35No. dwellings per hectare. Saved Policy H5 of the HBDWLP 1996-2011 which forms part of the HBLDF states that in order to best manage scarce land resources and to meet the present and projected need for small dwellings, housing developments will only be permitted if the proposed density is not less than 30No. dwellings per hectare unless there are access and/or environmental constraints on development. Although the minimum 30dph limit was recently removed from National Planning Policy Statement 3, the proposed density of 35dph is considered to be an appropriate density, which would be well-related to the density and form of neighbouring housing estates to the south and west of the site. The proposed density for the site is in accordance with saved Policy H5 of the HBDWLP 1996-2011 which forms part of the HBLDF, and the range suggested for housing development in PPS3.

The mix of dwelling sizes and tenures

7.27 With regard to the type and size of proposed accommodation and its potential to create a mixed and integrated community, regard is had to saved Policy H6 of the HBDWLP 1996-2011, which forms part of the HBLDF, which seeks to increase the number of smaller dwellings in new development. These policies set targets of 40% to 50% of residential developments to comprise 1 and 2 bed properties. According to the design and access statement, the development would contain a range of sizes/accommodation to include 1 bedroom and 2 bedroom apartments (including a number of FOGs), 2, 3 and 4 bed houses.

7.28 The applicant has confirmed that 30% of the total number of dwellings proposed will be affordable housing units. This equates to a total of 84No. dwellings. Saved Policy H8 of the HBDWLP 1996-2011 states that the Council will seek to achieve through negotiation 30% of the total dwellings provided on new housing developments as affordable housing. The affordable housing will be spread throughout the development, and according to the design and access statement, concentrations of either market or affordable housing will be avoided. The tenure and management, standard of the dwellings, the mechanism for allocating the housing and the long term availability of the units as affordable dwellings are to be determined and set out in the S106 agreement. The affordable housing provision will be based on the local need at the time of implementation, and will be delivered through planning conditions and legal agreement, in line with Saved Policy H8 of the HBDWLP 1996-2011, which forms part of the HBLDF. The Council’s Housing Officer has raised no objection to the proposal subject to the affordable housing being subject to a Section 106 Agreement.

The design and layout of development

7.29 The layout of the development at this stage is only indicative and subject to potential change at the reserved matters stage. However, the illustrative layout plan (Appendix E) clearly demonstrates that 280No. dwellings can be accommodated successfully within the development site. Development has been set back from the site access junction to maintain an existing landscaped setting and to provide an attractive and spacious entrance into the site. The main road leading into the centre of the site comprises terraced housing forming continuous frontages. Buildings are predominantly 2 storey in height with potential for 3 storey within the village green area, which is in the ‘centre of the housing area’ to provide a sense of enclosure in the streetscene.

7.30 The layout of the development has been carefully designed to protect glimpsed views of St John The Baptist Church spire to the east; the proposed open space would afford further viewpoints (see Appendix I). Further into the development, there will be mews style housing and apa rtments to front onto the highway and public open space. Lower density larger detached houses will front onto Redlands Lane to retain and integrate with the character of Redlands Lane. These dwellings would be served by a restricted shared private access drive. These dwellings will be designed to reflect the style of the existing dwellings that currently front Redlands Lane. The existing boundary planting along Redlands Lane is to be retained and enhanced.

7.31 It is considered that the layout of the development provides a form of development that is comparable with the built form of development within the surrounding area. As stated above, the layout is only indicative at this stage and could be altered at the reserved matters stage if considered necessary.

(iii) Effect on the character and appearance of the area

7.32 Whilst the site at present has a rural character, it is also affected by urban influences of nearby housing development to the north and west. It is also reasonably well contained by existing established and recent planting so that views from publicly accessible vantage points are limited to those from highways and rights of way. These views of the site are filtered by the strong vegetation associated at site boundaries. It is proposed to retain and enhance planting and trees along all boundaries of the site. This would assist in screening the development from existing properties along Redlands Lane and Long Copse Lane.

7.33 Within the development site the existing central field hedgerow is to be retained to provide a pedestrian-only green link, connecting to both the northern tree belt and the proposed amenity spaces. At the southern end, the existing hedgerow will connect to a central ‘village green’ which will inco rporate tree planting using larger tree species. Several existing TPO trees will be retained on site to further enhance the appearance of the development. The belt of existing trees that separates the proposed residential area from the public open space will also be retained and enhanced to strengthen the transition between the developed area and the open space. Occasional views through the planting belt towards the development are proposed in order to facilitate the orientation of users of the open space. Principal footpath routes are provided through to the public open space which will create a linked network of green spaces throughout the site.

7.34 Soft landscaping is proposed throughout the site with a village green within the centre of the development. Continuous landscaping is indicated along the main road through the development which will create a distinctive environment and soften the built surroundings. The landscaping of the site is again indicative at this stage and would be subject to a reserved matters application and a planning condition.

7.35 It is considered that the proposed development would not significantly affect the visual amenity or character and appearance of the area, subject to retention of boundary vegetation and new planting at the reserved matters stage.

(iv) Residential Amenity

7.36 The application site is well contained by existing established planting along the boundaries of the site. There would be filtered views from approximately 41 existing dwellings located to the west and south of Redlands Lane and along adjacent roads. The illustrative layout plan indicates lower density larger detached houses along the frontage of Redlands Lane and at the northern end of the site (to the rear of the properties in Long Copse Lane). The proposed development would not cause any significant overlooking or loss of privacy to these neighbouring residential properties, according to the indicative layout.

7.37 Approval of the layout of the development, the form, scale and design of the properties would all be determined at the reserved matters stage. This would involve a more detailed assessment of the impact on neighbouring properties (e.g. size of buildings, intervening distances, position of windows). However, the developer has stated that if outline consent is granted, then the reserved matters application would encompass a layout similar to that shown on the illustrative layout plan.

(v) Access and Highway Implications

7.38 This application is for outline consent with access as the only matter to be determined in detail at this stage.

7.39 The proposed development would be accessed from an enlarged roundabout at the junction of Redlands Lane, New Brighton Road and Southleigh Road (see Appendix G). A similar roundabout was proposed at the Local Plan Inquiry in 2002/03. However, this scheme seeks a revised access arrangement to prevent the closure of Redlands Lane and reduce its impact on the nearby trees and hedgerows.

7.40 The site is to be accessed off a new enlarged 28m inscribed circle diameter (ICD) roundabout located in the south-west corner of the site, with a pedestrian/cycle carriageway link to the site located mid-way along the Redlands Lane frontage, and a second minor access would be formed to the north west off Redlands Lane to serve 7No. new dwellings. A new private access is also to be provided for 2No. existing properties (Four Winds and The Haven) located on the west side of Redlands Lane. It is proposed to replace the bus shelters of New Brighton Road, Southleigh Road, and Westbourne Road, together with providing a new shelter and bus stop on Westbourne Road.

7.41 Currently the roundabout at the junction of Redlands Lane and Westbourne Road is a “mini roundabout” (there is no solid island). As such, traffic travelling from Southleigh Road into Westbourne Road can do so without slowing down. The new roundabout, however, has been designed to ensure deflection is achieved by introducing a solid central island. Vehicles are therefore (through deflection) forced to slow down to manoeuvre around the island. The increase in the size of the roundabout allows for smoother manoeuvring of large vehicles such as buses. It also provides greater vehicular capacity and pedestrian refuges for pedestrian safety.

7.42 The roads within the development would be designed to an adoptable standard but will remain private. Hampshire County Council will not be adopting the roads within the development site. Public rights of way will be required over the private roads to ensure that local people have access to the public open space, allotments and Doctors Surgery. This issue will be addressed within the Section 106 Agreement. The Highway Authority has confirmed that the access into the site and the off-site highway improvements (described below) would not cause any highway safety issues within the site or on the surrounding highway network.

7.43 A cycle strategy has been developed in partnership with H CC and local cycle groups. This aims to provide safe and practical connections between the Borough’s communities, retail, employment and leisure services. Off-site provision and improvements to footways and cycle-ways would be negotiated through the Section 106 Agreement (see paragraph 7.44 below).

7.44 Framework Travel Plans for the residential development and Doctor’s Surgery have been submitted. The Framework Plans set out a range of measures to reduce the need to travel and to encourage linked trips. This accords with Planning Policy Guidance 13 and Saved Policy T6 of the HBDWLP 1996-2011 which forms part of the HBLDF which encourages positive measures to maximise the proportion of journeys made by public transport, cycling and walking. These need to be progressed to Full Travel Plans and would be tied to a Section 106 Agreement.

Off-site highway assessment and works

7.45 A transport assessment has been submitted in support of the application. The assessment has been prepared in accordance with a ‘Scope of Works’ agreed with the two relevant Highway Authorities, HCC and West Sussex County Council. The work includes a number of detailed surveys to predict the distribution of traffic likely to be generated by the proposal. Trip generation figures take into account both the residential element and the scale of the Doctor’s Surgery/Pharmacy. The Highway Authority identified various junctions and issues that would need to be considered in preparing this assessment. As such the assessment considers the following:

• Existing Transport Information • Proposed Transport Information • Access • Pedestrian Routes • Cycle Routes • Public Transport Provision • Bus Stop Audit • Traffic Generation • Traffic Distribution

The following junctions were also considered:

• New Brighton Road/B2148 Junction • Southleigh Road/B2148 Junction • A259/B2148 Junction • Level Crossing at Warblington Station • Preparation of a Travel Plan • Stage 1 Safety Audit

7.46 The assessment also considered the areas of Manor Farm and the Interbridges Sites in Emsworth. The assessment concluded the junction of Horndean Road/Southleigh Road would continue to operate within theoretical capacity in 2020 with the addition of the development traffic on the local highway network. The modelling work did however demonstrate that the junction of Horndean Road/New Brighton Road would operate over capacity in 2020 with development traffic included in the assessment. A queue of 13 vehicles has been predicted to occur in the PM peak at this junction for vehicles travelling northbound along Horndean Road or wishing to turn right from Horndean Road into New Brighton Road. However, Linden Homes has agreed to fund an improvement to this junction in order to overcome the capacity concerns and to improve the pedestrian facilities at this junction from the development travelling towards the town centre.

7.47 A stage 1 safety audit undertaken by an independent consultant identified that the improved roundabout meets all recognised safety standards. HCC’s Highway Engineer and West Sussex County Council Highway Engineer have been consulted on the application. Their comments are set out in full above, however no objection has been raised to the proposal. A Section 278 Agreement with Hampshire County Council will be required to ensure that the works are delivered prior to the occupation of any unit within the development

7.48 The developer has agreed to pay contributions of £79,723 toward pedestrian and cycle infrastructure improvements, £351,000 towards highway improvements and £246,753 toward passenger transport improvements. This equates to a total contribution of £677,476. These contributions will be secured in a Section 106 Agreement and used towards the delivery of the following:

• Westbourne Avenue cycle route • Oakmeadow Close cycle route • Junction improvement at New Brighton Road/Horndean Road • Southleigh Road cycle link • Southleigh Road to Bellevue Lane cycle route • Horndean Road to Bellevue Road cycleway • Washington Road to Horndean Road link • Washington Road to Victoria Road footway/cycleway • Access improvements to Emsworth Railway Station • Emsworth Railway Station cycle parking • Improved pedestrian provision Emsworth Town Centre • Improvements to public transport services that benefit residents of the proposed development

(vi) Flooding and drainage

7.49 The Environment Agency Flood Risk Map shows the development site is located in PPS25 Flood Zone 1. Whilst the development is considered appropriate for Flood Zone 1, according to National Policy Statement PPS25, a Flood Risk Assessment is still required together with drainage proposals. PPS 25 states that developers are responsible for designs which reduce flood risk to the development and elsewhere, by incorporating sustainable drainage systems, and identifying opportunities to reduce flood risk, enhance biodiversity and amenity, protect the historic environment and seek collective solutions to managing flood risk. The application is supported by a Flood Risk Assessment and Drainage Statement, including a supplementary report which set out the waste water and surface water drainage strategies for the site.

7.50 Under the existing situation surface water runoff is flowing southwards across the arable field (proposed open space), leaving the site and flowing onto Westbourne Road. The routing of surface water runoff in the direction of Westbourne Road is exacerbated by the plough lines across the field. The plough lines are orientated in a due north/south direction. The plough ruts channel surface water runoff southwards and directly towards Westbourne Road. Surface water is also flowing from field drains within the site towards Redlands Lane. These points are made in letters of objection received.

7.51 The proposed development will accord with a Sustainable Drainage Strategy (SUDs) (Appendix J). The sustainable drainage system would comprise; • a piped surface water drainage network below the residential streets; • existing field drain where retained in the residential area; • swales to transfer surface water runoff from the residential piped system to; • an attenuation pond situated in the south east corner of the POS; and • permeable hard surfacing in the residential development

7.52 The drainage system has been designed to ensure that the entire site remains flood free under the 1 in 100 year storm event. The pipe/swale network has been designed relative to the 15 minute storm event, this being the critical storm event with regards to maximum pipe/swale flow. Water will be discharged from the attenuation pond via a Hydobreak (which regulates outflow rate) to a pipe that discharges to the River Ems. The developer will seek approval from Southern Water and the Environment Agency to utilise an existing length of sewer, within Westbourne Road near the Wren Centre that already discharges to the River Ems.

7.53 The Flood Risk Assessment specifies that permeable surfaces will be utilised to provide petrol/oil interception without the need for conventional separators. The design principle of such systems is to allow surface water to pass through the voids between the block paving. Water is then temporarily stored in the sub-based layer before being discharged to the piped surface water system. Trapped roadside gullies would be used wherever possible within the residential area. The inclusion of swales into the drainage strategy will also help ‘polish’ the water quality of surface water drainage before it discharges into the attenuation pond. The swales will take the form of sloping, vegetated, broad shallow channels that water runs along when it has been raining, but will remain dry when it is not. The swales will also act in the capacity of a ‘cut off’ drain to contain and channel any overland surface runoff from the proposed open space towards the attenuation pond.

7.54 The removal of the north/south plough ruts associated with the existing arable field will decrease velocity of surface water runoff being channelled directly towards Westbourne Road. The presence of a mixed land uses (meadow, allotments) across the POS will also help attenuate surface water on site.

7.55 The retention of the field drain that is situated on the northern boundary of the residential development (traversing from west to east) will continue to act as an interception channel to overland flood waters approaching the residential development from the north. This field drain will convey overland flow into the remaining network of field drains within the residential development area. These field drains will be engineered so as to connect into the proposed surface water pipe network. The retention of this field drain will serve to protect the site from overland flows, but will also serve to maintain the ecological benefits that are attached to these natural features.

7.56 One section of existing field drain is to be lost in the proposed development. This section currently traverses the site from east to west across the central extent of the residential development area. This field drain is to be in-filled. Surface water runoff that would have flowed into this field drain will be directed into the piped network that is to discharge into the attention pond. This would be an improvement to the local drainage routes as surface water would be routed away from Redlands Lane and directed to the attenuation pond.

7.57 The proposed Sustainable Urban Drainage (SUD) system will assist in reducing the existing surface water drainage issues currently experienced by local residents in Redlands Lane and Westbourne Road by diverting existing drains into the new piped network.

7.58 The Environment Agency, Natural England and the Council’s Drainage Engineer have been consulted on the proposed drainage system and have raised no objection subject to conditions.

Management and Maintenance

7.59 The Flood and Water Management Act 2010 encourages the use of sustainable drainage in new developments. It does this by requiring drainage systems to be approved by the SUDS Approving Body (SAB), against a set of National Standards. Linden Homes intend to maintain the SUDs system for the whole site (including Public Open Space) until Hampshire County Council is willing to take obligation for the system. This arrangement will be subject to a Section 106 Agreement. It is likely to be necessary to require a non-performance bond to be paid by Linden Homes to ensure that the SUDS system can be maintained in perpetuity.

(vii) The effect of development on ecology

River Ems

7.60 The River Ems, designated as a main river, is located to the east of the application site. A private open field separates the River Ems from the proposed Public Open Space. The River Ems is a chalk river which is a UK Biodiversity Action Plan priority habitat. The Environment Agency is satisfied that the sensitive habitat of the River Ems would not be detrimentally impacted by the development due the separation of the residential area with the proposed public open space and the private open field to the east of the site. The Environment Agency has requested that a condition is attached to the permission requiring further information on the surface water drainage scheme for the site. This is to ensure that there is no further ecological deterioration in the River Ems and the site drainage system does not detrimentally impact the water quality via site drainage.

Ecology within the site

7.61 A Phase 1 habitat survey was initially submitted with the application with the following reports:

• Reptile Presence/Absence Survey • Entomological Survey Report • Bat Rooster Assessment • Bat Activity/Emergence Survey Report

7.62 The Phase 1 habitat survey concluded that the site has a moderate potential for commuting and foraging bats and of low to medium potential as a bat roosting location, and further assessment work was recommended. The Bat Roost Assessment was therefore undertaken of all trees and buildings on the site including The Glen. No evidence of bats was found in The Glen however a number of trees on the boundary were identified as having moderate to high potential for roosting bats.

7.63 The illustrative layout does not seek to remove or affect any of the trees identified as being of moderate or high potential for bats. Further to this, the proposed properties and apartments on the northern boundary are some distance from the trees to reduce any potential disturbance from human activity.

7.64 The Phase 1 survey also recommended a further reptile survey should be undertaken. This survey was carried out during seven visits in a 4-week period during September and October 2009. This survey identified the presence of one species only, slow worm. A maximum of two juvenile slow worms were found but no adult slow worms were present. The Phase 1 survey also recommended an Entomological Survey which was undertaken and concluded that the site was not of major importance for its insect populations.

7.65 The Hampshire County Council (HCC) Ecologist was consulted on the application and supporting ecological reports, and was satisfied that the initial reports represented the conditions on the site. However he sought further information and survey work on reptiles and invertebrates.

7.66 Following this advice further surveys were carried out on site and additional reptile and invertebrate reports have been submitted to the Council. A maximum count of 33 adult slow worms and 3 grass snakes were found. The HCC Ecologist has been consulted on these additional reports and has confirmed that the Reptile Survey is acceptable and has been carried out in a professional manner. He concluded that the survey work has adequately informed the reptile mitigation strategy and is satisfied with the methods to be employed to relocate the reptiles. The current receptor site population and the proposed habitat enhancements will be sufficient to ensure that the translocation of the slow worms will be successful. A reptile mitigation strategy will be secured through a condition to ensure the successful relocation of the reptiles from the development site into the Public Open Space.

7.67 An Ecological Management Plan has been agreed in principle and the draft Heads of Terms have been drawn up to secure a wide range of ecological management measures required for the open space and the development site itself (including invertebrate enhancements, on-going grassland and hedge management and bat box locations). HCC’s Ecologist has seen the initial draft clauses for the Heads of Terms regarding ecology and is satisfied with their general scope. It is recommended that an Ecological Management Plan is secured by a planning condition and is to be agreed in writing with the Council and implemented in accordance with the approved details.

7.68 Natural England has also been consulted and they are pleased to see the submission of the ecological surveys supporting the application, and the biodiversity gains anticipated through the provision and structure of the new Public Open Space.

7.69 The Environment Agency has also requested that conditions are attached to the permission requiring a Landscape Management Plan to be submitted to the Council prior to development commencing on site and details of the attenuation pond. This application is a large scale development and compensatory habitat and ecological enhancements will be an intrinsic part of it. The attenuation pond is proposed in the south east corner of the POS, and will provide opportunities for the enhancement of the nature conservation value of the site in line with PPS9 and saved Policy NC5 of the HBDWLP 1996-2011 which forms part of the HBLDF. It would form a wetland with marginal planting to enhance biodiversity and ecology within the site.

(viii) Impact upon the historic environment

Archaeology

7.70 There are no recorded archaeological sites within the boundary of the site. However, it was determined by HCC’s Archaeologist that the site offered a potential for the preservation of deposits associated with Brighton-Norton Formation, a series of marine, estuarine terrestrial deposits. These deposits are considered to be of national significance. An Archaeological Desk Based Assessment and watching brief have been submitted as part of the application. These reports establish that no archaeological remains or deposits were present on site. However the applicant has confirmed that further works will be undertaken to evaluate any further archaeological and palaeoenvironmental potential at the site during construction.

7.71 HCC’s Archaeologist has been consulted on the application and has raised no objection subject to a condition requiring a programme of works to be carried out prior to development commencing on-site.

Westbourne Conservation Area

7.72 The proposed development site does not lie within a Conservation Area. There is a distance of more than 400m separating the edge of the area upon which built development is proposed from the edge of Westbourne Conservation Area. The Westbourne Conservation Area contains a number of Listed Buildings, including St Johns Baptist Church, which is a Grade 1 Listed Building. Westbourne Conservation Area Character Appraisal was published by Chichester District Council in 2007 and recognises that the village centre is inward looking with an enclosed nature, and as a consequence many views are limited to those along the main streets. A Landscape and Visual Impact Assessment has been prepared and submitted to support the proposed development. This assesses the impact of the development on Westbourne Conservation Area.

7.73 A 400m separation distance would not only provide a significant physical separation, which would be safeguarded as open space, but the vegetation present in the intervening space would considerably assist in screening and filtering the views.

7.74 From within the development site, rooftops of buildings located within southern parts of the village of Westbourne can be seen, however it is considered that opportunities for return views would be highly limited. The spire of St John Baptist Church is visible from within the site. Considerable emphasis both at the Local Inquiry stage in 2004 and in letters of objection for this proposal has been placed upon the vista of the church spire from Redlands Lane, across the presently open site. It is accepted that the development may materially alter these views, however the development would itself provide opportunities for new public views towards the spire, where the proposed open space would afford greater public accessibility (Appendix I).

7.75 The illustrative Housing Layout Plan has also utilised the church spire as a landmark feature. The applicant has confirmed that the scale of the development will not exceed 3 storey in height, and this will be limited to within the centre of the development site. The scale and layout of the development is only illustrative at this stage, however it is considered that the development could be accommodated without detriment to the character and setting of Westbourne Conservation Area.

7.76 The Council’s Conservation Officer has been consulted on the application and has raised no objection. The Council have received no comments from Chichester District Council on this matter.

(ix) Impact upon trees

7.77 A Tree Preservation Order was served on 15/09/2008 which comprises of 11 groups of trees and 4 individual trees.

7.78 The illustrative Site Layout Plan shows the proposed positions of the dwellings within the site. This layout plan is only illustrative at this stage and would be approved at the reserved matters stage. The new access into the site is however a matter to be considered at this stage of the process. Several protected trees within Groups 1, 6 and 7 would be lost to facilitate the new access into the site and the proposed residential development. The Council’s Arboriculturalist has been consulted on the application and his full comments are set out above.

7.79 It is inevitable that some trees would be lost within the site in order to achieve a workable and achievable development. The layout of the development has been carefully designed to ensure that tree loss is minimised, and that the majority of high category trees (A & B) are retained. It is recommended that significant new tree planting should be provided in the POS and residential development to mitigate losses and enhance nature conservation. The Council’s Arboriculturalist has confirmed that further information on new and replacement tree planting would be required as part of the reserved matters application. Further to this, a full Arboricultural Impact Appraisal and Method Statement must be provided prior to development commencing on site, but a Tree Protection Zone Plan has been submitted at this outline stage to the Council’s Arboriculturalist’s satisfaction.

(x) Other Environmental effects

Nature Conservation - Offsite

7.80 The application site lies close to the habitats which form part of Chichester Harbour Site of Special Scientific Interest (SSSI). The SSSI is part of the Chichester and Langstone Harbours Special Protection Area (SPA) and of the Solent Maritime Special Area of Conservation (SAC). Natural England has been consulted on the application and has raised no objection to the proposal. It is considered that the POS provision could provide necessary resources for residents of the new housing to use for their everyday recreational activities. This would reduce the recreational impact and pressure on the SSSI within the surrounding area. The development therefore complies with Local and National Planning Policy Guidance/Statement.

Minerals

7.81 Hampshire Minerals and Waste Core Strategy Development Plan Document (2007) identify part of the site as a Mineral Safeguarding area. A mineral evaluation has been submitted in support of the application. The investigation was undertaken to determine the presence, extent, thickness and quality of any mineral deposits on the development site. The minerals encountered on the site lie in a single distinct location. The lower lying, southern half of the site appears to be underlain by a mineral body defined as the gravel horizon of the Head Deposits. The thickness of this horizon decreases towards the western boundary, with a corresponding increase in the depth of overburden. The gravel horizon of the Head Deposits was notably absent in the northern part of the site. The minerals evaluation report concludes that there is a mineral reserve of approximately 80,000 tonnes; however this is too small to be viable for extraction.

7.82 HCC’s Development Control Officer has confirmed that they are satisfied with the findings of the report, and that the estimated reserves of 80,000 tonnes would not be considered economically or commercially viable. As such, no objection is raised to the proposed development.

Air Quality

7.83 An Air Quality Screening Assessment has been undertaken to support the application. The assessment has been based on DMRB Screening Model provided by the Highways Agency and has been used to predict changes in exposure to traffic emissions at existing and potential future receptors as a result of the development.

7.84 No local air quality monitoring data was available for this assessment and as such the calculations have not been verified in accordance with Annex 3 of LAQM TG (09). The Council’s Environmental Health Officer has confirmed that although no empirical data was available in which to validate this approach, the AADT traffic data (baseline) appears reasonable and the figures used for the ‘with development’ scenario are consistent with expectation for traffic growth.

7.85 The Air Quality Screening Assessment concludes that the effect of exposure to traffic emissions for future site occupiers is not considered to be a constraint to the proposed development. The Council’s Environmental Health Officer has raised no objection to the proposal on air quality grounds.

(xi) Community/Health Facilities

Health Provision

7.86 The proposal includes the provision of a Doctors Surgery and Pharmacy. The Doctors Surgery would be located at the entrance to the site. A total of 54 parking spaces would be provided for the Surgery with appropriate disabled spaces. Saved Policy CS1 of the HBDWLP 1996-2011 which forms part of the HBLDF states that buildings for community use will be permitted where a need has been identified or where development would improve existing provision. Local Surgeries exist in the centre of Emsworth (1.6km to the south of the site) and at Westbourne (0.7km to the east), neither of which are modern facilities, and the Emsworth Surgery is overcrowded and in need of refurbishment. The proposed development would increase the catchment population of the existing Emsworth/Westbourne surgeries by approximately 616 patients.

7.87 The Council has consulted NHS Hampshire on the proposal and their comments are set out in full above. The additional demand arising from the proposed development gives rise to a need for additional GP workforce equating to 3-4 sessions a week. The Primary Care medical facilities in Emsworth are currently under review by NHS Hampshire with the existing Emsworth GP practice looking to develop their premises to increase capacity care for existing local residents. NHS Hampshire support the proposal but have reiterated that although there is a potential for a GP Practice within Emsworth to relocate to this site, there has been no approval for such a scheme or a new pharmacy at this time. There is no objection by NHS Hampshire and in planning terms to the proposal as there is a proven need for the development and as such the development accords with saved Policy CS1 of the HBDWLP 1996-2011 which forms part of the HBLDF. Provision of this part of the site for the facility would be included within the Section 106 Agreement.

7.88 The scale, layout and design of the Doctor’s Surgery would be agreed at the reserved matters stage.

Natural Play Area/Public Art

7.89 A natural area of play is to be provided within the POS rather than a formal area of play equipment (Appendix F). Natural play spaces encourage a sense of place and beauty, and can be connected to the local landscape providing a green backdrop to play. Play equipment would be dispersed to form a trail. The designs would be sympathetic to the rural character.

7.90 The developer has agreed to include elements of public art into the POS and this would be to a value of £20,000. The use of materials and design of the natural play area could lend itself as a theme which could flow throughout the POS. The design of the public art could also be linked to this theme to create a sense of place and identity. The public art would be meaningful features such as sign posts, benches, boulders, play logs and sculptures. The public art contribution would form part of the Section 106 Agreement and reserved matters application.

Allotments

7.91 There are currently 594 allotments on 11 main sites around Havant Borough. There is a general shortage of allotments in the Borough resulting in long waiting lists. The application proposes new allotments within the POS. The POS layout plan indicates an area for allotments in the south-west corner of the open space (Appendix F). This space would provide approximately 20–30 five rod plots. Linden Homes has agreed to provide and set out the allotments and transfer them into the Council’s ownership. The specifications of the allotments and timing of land transfer are to be agreed within a Section 106 Agreement. The Council’s Open Space Manager is happy for the allotments to be set out and transferred to the Council once occupation of the dwellings commences. This would enable the allotments to be available for new occupants of the development as well as individuals currently on the waiting list.

Education

7.92 The application site is within the Hampshire Area and consequently no developer’s contribution will be sought for Westbourne School, which is within West Sussex. Westbourne school is on a very small site and is not able to be extended, and as such a contribution would not meet the tests of Circular 05/05 in being reasonable or necessary to the development.

7.93 The proposed development would generate approx 78 pupils at primary age. Hampshire Farm sits to the north of St James Primary School and this school shares a catchment with Emsworth Primary School. Emsworth Primary has recently been reduced to 30 pupils per year group with the rest of the accommodation being used by pre-school. A contribution of £686,710 would be required to extend Emsworth Primary School to allow the school to take 45 pupils per year group. The Hampshire County Council School’s Organisation Officer has raised no objection subject to a financial contribution being sought. The developer has agreed to pay a financial contribution of £686,710 towards education.

(xii) Contribution Arrangements

7.94 The planning obligations will be delivered through a Section 106 Agreement. The total Section 106 package currently stands at approximately £1,544,186 (although this figure could change due to on-going discussions). The details of the contributions and the Section 106 Agreement Heads of Terms are set out in full in Appendix B.

8 Conclus ion:

8.1 In conclusion, on the policy issue regarding the release of this site for development there is considered to be no justification for refusal. The current requirement for a 5 year supply of housing following the recent drop in housing delivery, and the comparable appeal decisions elsewhere in Hampshire are important considerations in the acceptability of this site for housing development.

8.2 The nature of the indicative development is acceptable in terms of density, layout and form. It i llustrates that a satisfactory form of development can be achieved. However, the final layout would be formalised at the reserved matters stage.

8.3 The access into the site is the only matter to be considered in detail at this stage. The proposed access arrangements are considered acceptable and no objection has been raised by the Highway Authority. Linden Homes have agreed to pay contributions toward pedestrian and cycle infrastructure improvements, highway improvements and passenger transport improvements.

8.4 Sufficient information has been provided as part of the application to satisfy the HCC Ecologist that reptiles within the built development site can be successfully relocated into the POS. An Ecological Management Plan has been agreed in principle and the draft Heads of Terms have been drawn up to secure a wide range of ecological management measures required for the open space and the development site itself. The manner in which the development is proposed would not significantly harm the surrounding environment i.e. River Ems or Westbourne Conservation Area.

8.5 Linden Homes has agreed a package of planning obligations that will be delivered through a Section 106 Agreement.

8.6 In summary, the proposed development at Hampshire Farm is considered to comply with saved policies of the HBDWLP 1996-2011 which forms part of the HBLDF and National Planning Policy Guidance/Statement. As such the recommendation is permission subject to a Section 106 Agreement and planning conditions.

RECOMMENDATION:

That the Executive Head of Planning and Built Environment be authorised to GRANT PERMISSION for application 10/74014/000 subject to:-

(a) The completion of legal agreements under Section 106 of the Town and Country Planning Act 1990 and other relevant legislation, incorporating the terms set out in Appendix B to this report (subject to such changes as the Executive Head of Planning and Built Environment and the Solicitor to the Council may determine);

(b) Planning conditions as set out Appendix C (subject to such changes as the Executive Head of Planning and Built Environment may determine )

Appendices:

(A) Summary of representation letters (B) Section 106 Agreement terms (C) Planning Conditions (D) Location Plan (E) Illustrative Residential Layout Plan (F) Illustrative Public Open Space Layout Plan (G) Site Access Plan (H) Affordable Housing Plan (I) Sketch View Plan (J) Indicative Surface Water Drainage plan (K) Addenda/corrigenda (if appropriate)