Initial Document Template

PART A Item Number

Report of : DEVELOPMENT MANAGEMENT SECTION HEAD

Date of Committee: 11th March 2010 Site address: Leavesden Studios, South Way, Abbots Langley

Reference number : 1) 10/0080/FUL (TRDC) 2) 10/00051/FUL (WBC) Description of 1) Continued use of land and buildings for film production development: and associated activities including retention and refurbishment of existing studios to accommodate stages, backlot, workshops, offices, production facilities, canteen/commissary and ancillary studio facilities and services, replacement and extended workshops, stage and offices. Two new stages (approx. 13,000sqm floorspace) for the storage and public exhibition of film sets and artefacts (including approx. 380sqm café and 330sqm gift shop), new accesses from Aerodrome Way, revised internal road layout and parking, extended backlot, landscaping and associated works. Consultation from Three Rivers District Council. 2) Use of land and Flight Shed (Stage L) for film production and associated activities. External cladding of building. Re- modelling of landscaped earth mound to west of building and provision of new earth mound at the eastern end of the site. Applicant: Warner Bros. Studios Leavesden Limited Date received: 22 nd January 2010 8 week date (minor): 19 th March 2010 Ward: WOODSIDE

B 1 SUMMARY Watford Borough Council has been consulted by Three Rivers District Council as an adjoining local authority in respect of an application for full planning permission for the continued use and development of the Leavesden film studios (Application 1 - ref. 10/0080/FUL). Three Rivers District Council is the determining planning authority for this application. The application involves the retention and refurbishment of the existing studios and ancillary buildings, a new stage and ancillary buildings, new stages for the public display of film sets and artifacts, new access junctions from Aerodrome Way and car parks, and an extended backlot for filming.

A separate application has also been submitted to the Borough Council for that part of the development that falls within Watford Borough (Application 2 - ref. 10/00051/FUL). This involves the eastern half of the existing Flight Shed (Stage L), the land to the east of the building and the land and embankment to the west of the building.

The site is located within the Metropolitan Green Belt where film studio use constitutes inappropriate development. The proposed development for film production and associated activities is therefore contrary to policy and, by definition, harmful to the Green Belt. However, the site is designated as a Major Developed Site in the Green Belt and, having regard to all the circumstances of the application, is considered to comply fully with the criteria in Annex C of PPG2 for the redevelopment of Major Developed Sites in the Green Belt. As such, very special circumstances do not need to be justified in this case and the proposal is acceptable in principle. The continued use of, and significant improvement to, the existing studios will enable the applicants to maintain and improve their very significant economic and social role in the local, regional and national economy and within the UK film industry.

B 2 improved access arrangements are proposed from Aerodrome Way which are acceptable and these will also facilitate an improved internal layout for the site. Overall, the proposed redevelopment of the site will significantly enhance the site and the character and appearance of the wider area and is considered to be acceptable.

The Development Management Section Head recommends that the Borough Council raise no objections in respect of the consultation from Three Rivers District Council (Application 1), and that planning permission be granted, subject to appropriate conditions, for the planning application submitted to the Borough Council (Application 2).

BACKGROUND

Site and surroundings The site lies at the northern boundary of Watford to the east of the Hunton Bridge roundabout and Junction 19 of the M25. It is bounded to the south by the A41 and to the east by Aerodrome Way. Its northern boundary is formed partly by South Way and partly by playing fields and land at Hunton Park. Its western boundary is marked by the railway cutting of the West Coast Mainline and fields that abut Hunton Bridge roundabout. It has an area of 66 hectares and is accessed from South Way. At present, there is no access from Aerodrome Way.

The site has been in use as film studios since 1995 with the former main factory building containing the main stages, offices and production facilities and various outbuildings used for ancillary purposes (storage, set construction, etc.). The former runway and part of the surrounding open land has been used as a backlot for outdoor filming.

The surrounding area is predominantly residential to the north (Abbots Langley), east and south (Watford) with predominantly open countryside to the west.

B 3 Proposed development The applications seek full planning permission for the permanent use of the site for film production and a major refurbishment and extension of the existing film studios. Since 1995, the use of the site has been the subject of a series of temporary planning permissions utilising the former industrial buildings left after the closure of the Rolls Royce factory in 1993. Since this time there has been no significant investment in either the buildings or the infrastructure of the site.

In summary, the applications comprise the following elements:-

● Permanent use of the land and buildings for film production and associated activities. ● Internal refurbishment and external re-roofing and re-cladding of existing main studio building containing stages A, B, D, F, G, H and I and multi-function area. ● Internal refurbishment and extension of existing three main areas of offices and ancillary facilities arranged around the main studio building. ● Demolition of existing stage C and erection of new, enlarged stage C. ● Refurbishment and re-cladding of existing carpentry workshop and stores buildings. ● Erection of new multipurpose workshop building and demolition of various outbuildings. ● Erection of two new stage buildings (Stages J and K) for public display of film sets and artefacts. ● Refurbishment and re-cladding of Flight Shed building (Stage L). ● Erection of new gatehouse and security buildings. ● New access to be formed from existing southern roundabout on Aerodrome Way to serve new stages J and K and a visitor car park of 598 car spaces and 14 coach spaces. ● New access to be formed from northern roundabout on Aerodrome Way to serve main studio site and a staff car park of 896 car spaces. ● Re-positioning of existing earth bund along Aerodrome Way to form enlarged backlot for outdoor filming.

B 4

The proposal will result in a building footprint of 64,932m² and a total floorarea of 71,027m² comprising 56,169m² of existing refurbished and replacement floorspace and 14,858m² of new build floorspace.

Planning history The site was used during the Second World War for aircraft production and pilot training. The aircraft production (Mosquito and Halifax bombers) took place in two main factory buildings – one now occupied by the existing film studios and a second, now demolished, occupying the north-east corner of the site adjoining what is now the junction of Langley Lane and South Way. From 1953 to 1993 the site was occupied by Rolls-Royce primarily for aero-engine production. The airfield itself was also used as a private airfield for light aircraft.

When the use of the site by Rolls-Royce ceased in 1993, a Planning Brief was prepared jointly by Watford Borough Council, Three Rivers District Council and Hertfordshire County Council, which was approved in September 1993. This established a number of basic principles for the future development of the site, as follows:-

● Total floor area to be erected must not exceed total floorarea of existing buildings (following the publication of PPG2 in 1995, it was agreed that floor area should not be used as a control on development). ● Footprint of the buildings to be erected not to exceed the footprint of the existing buildings of 90,523m² (excluding runways). ● Height of the existing buildings not to be exceeded (established as 18.28m). ● Developed site area (to include buildings, parking, hardstanding, storage, landscaping around buildings and access roads) not to exceed existing developed area (established as 32.28 hectares).

The Planning brief also referred to potential uses for the site, including business, residential and leisure, and Green Belt enhancement.

B 5 In 1994 and 1995, Rolls-Royce submitted 4 applications for outline planning permission for the development of the site. Three of these were withdrawn. The fourth was the subject of a resolution to grant permission, but the permission was never issued as no s.106 agreement was completed.

In 1994, temporary planning permission was granted for the use of the site as film studios and ancillary activities. This temporary permission was subsequently renewed in 1996, 2002, 2004 and 2006 by both Councils. The current temporary permission expires on 31 st December 2010.

In 1995, outline planning permission was granted by both Councils for use of the main factory building as film and television studios and the development of the remainder of the site as a studio tour, family leisure centre, offices, housing, sports and playing fields and a new spine road. This permission has only partially been implemented with the spine road (Aerodrome Way) completed in 1999; the housing granted permission in 1999 (for 320 dwellings, now completed and served off Dowding Way and Curtiss Drive); and the offices granted permission in 2000 (comprising 4 buildings served off the northern roundabout of Aerodrome Way, of which only 3 have been completed). Reserved matters details of the film and television studio, studio tour and leisure uses were never submitted.

In 2001, outline planning applications were submitted to both Councils for the development of a Technology Media and Telecommunications Park at the site. This comprised Class B1 development for offices, research and development and light industry; reduced film studios with studio tour; a local centre (including day nursery, health centre, shops, restaurants, gym, etc.); and public and private areas of open space. Resolutions to grant permission were agreed by both Councils in 2003 but the failure to complete a s.106 agreement meant that no planning permission was granted by either Council.

Of the agreed footprint of development from the Planning Brief of 90,523m, a total of 24,896m has been accounted for through new or extant development.

B 6 Relevant policies It should be noted that, so far as the development plan is concerned, Three Rivers District Council will consider Application 1 against the policies of the Three Rivers Local Plan 1996-2011. However, as the Watford District Plan 2000 (WDP 2000) contains policies relating to the Green Belt and specifically the Leavesden Studios site and many other policies which are relevant to all forms of development, it is appropriate so far as the Borough Council is concerned for the consultation from Three Rivers DC (Application 1) to be considered in respect of the policies of the WDP 2000.

The policies listed below are relevant to the determination of the application submitted to the Borough Council (Application 2).

Planning Policy Statements and Guidance Notes PPS1 Delivering Sustainable Development PPG2 Green Belts PPS4 Planning for Sustainable Economic Growth PPS9 Biodiversity and Geological Conservation PPG13 Transport PPS22 Renewable Energy PPG24 Planning and Noise

East of England Plan 2008 SS1 Achieving Sustainable Development SS2 Overall Spatial Strategy SS3 Key Centres for Development and Change ENV7 Quality in the Built Environment ENG1 Carbon Dioxide Emissions and Energy Performance WM1 Waste Management Objectives WM2 Waste Management Targets LA1 London Arc LA4 Watford Key Centre for Development and Change

B 7 Hertfordshire Structure Plan Review 1991-2011 No relevant policies.

Hertfordshire Waste Local Plan No relevant policies.

Hertfordshire Minerals Local Plan No relevant policies.

Watford District Plan 2000 SE1 Making Development Sustainable SE4 Energy Efficient Design SE9 New Development SE12 Visual Amenity of the Green Belt SE13 Major Developed Sites in the Green Belt SE14 Leavesden Studios Site SE20 Air Quality SE22 Noise SE23 Light Pollution SE37 Protection of Trees, Woodlands and Hedgerows SE39 Tree and Hedgerow Provision in New Development T4 Transport and New Development T5 New Development and Green Travel Plans T6 Pedestrian Facilities T7 Pedestrian Facilities in Developments T9 Cycling T10 Cycle Parking Standards T21 Access and Servicing T22 Car Parking Standards T27 Car Park Location and Design U1 Quality of Design

B 8 U2 Design and Layout of Development U3 Integration of Character U4 Community Safety U6 Landscape Design

CONSULTATIONS Application 1 - Ref. 10/0080/FUL (TRDC) All neighbour notifications, consultations with statutory and non-statutory consultees and public advertisement of the application have been undertaken by Three Rivers District Council as the responsible local planning authority. As such, all responses will be sent directly to the District Council. The Council, as a consultee on this application, is not required to undertake any notifications or consultations.

Application 2 – Ref. 10/00051/FUL Letters were sent to 31 properties in Greenbank Drive on the southern side of the A41, opposite the site. No replies have been received. No consultations with internal sections or external organisations were undertaken in respect of this application.

APPRAISAL In accordance with s.38 of the Planning and Compulsory Purchase Act 2004, the Development Plan for Watford comprises: (a) the East of England Plan 2008 ; (b) the “saved” policies of the Hertfordshire Structure Plan 1991-2011 ; (c) the “saved” policies of the Watford District Plan 2000 ; (d) the “saved” policies of the Hertfordshire Waste Local Plan 1995-2005 ; and (e) the Hertfordshire Minerals Local Plan Review 2002-2016 .

The East of England Plan sets the strategic planning context for decision making in the East of England region. The Structure Plan was adopted in April 1998 and provided strategic level policies for the county, but virtually all of these policies have now been

B 9 superseded by the East of England Plan. The District Plan was adopted in December 2003 and provides local level policies. The East of England Plan and the Watford District Plan 2000 provide the most up to date “development plan” policies which, together with any relevant policies from the Waste Local Plan and the Minerals Local Plan, must be afforded considerable weight in decision making on planning applications.

In the case of the consultation from Three Rivers District Council, the Council only needs to consider the policies of the Watford District Plan 2000 in making its comments. It is for Three Rivers District Council, as the determining planning authority, to have regard to the other plans and policies of the Development Plan in reaching its decision.

Application 1 - Ref. 10/0080/FUL (TRDC) Land allocation On Three Rivers Local Plan 1996-201 Proposals Map, the site is located within the Metropolitan Green Belt which extends up to the boundary with Watford Borough. The site is also designated as a Major Developed Site in the Green Belt in accordance with the guidance in PPG2. That part of the Leavesden Studios site within Watford Borough has the same designations and is specifically covered by Policies SE13 and SE14.

Film studio use is not defined as appropriate development in the Green Belt in PPG2 and Policy SE9. By definition, therefore, the proposed development is contrary to policy and harmful to the Green Belt. However, as the site is designated as a Major Developed Site in the Green Belt, the application needs to be considered against the criteria in Annex C of PPG2 and the Planning Brief adopted in 1993, which established the basic principles for the redevelopment of the site. As such, providing the proposals meet the policy criteria in Annex C of PPG2, very special circumstances do not need to be demonstrated in this case. The criteria of Annex C of PPG2 require that redevelopment should:-

a) have no greater impact than the existing development on the openness of the Green Belt, and the purposes of including land within it, and where possible have less;

B 10 b) contribute to the achievement of Green Belt land use objectives; c) not exceed the height of existing buildings; and d) not occupy a larger area of the site than the existing buildings.

These four tests are considered separately below.

C4(a) - have no greater impact than the existing development on the openness of the Green Belt Openness is the most important attribute of the Green Belt as it is through the openness of the Green Belt that urban sprawl and the coalescence of urban areas (in this case, Watford and Abbots Langley) is prevented. Given the designation of the site as a Major Developed Site within the Green Belt, redevelopment is considered acceptable in principle. However, PPG2 does caution that the location, character and dispersal of new development will need to be carefully considered in order to maintain openness. In this respect, it advises that it may be appropriate to site new development closer to existing buildings in order for it to integrate better with existing development.

The refurbishment of the existing main building will have no greater impact on openness, neither will the new Stage C building or the refurbished Flight Shed (Stage L), carpentry workshop and stores building. The new multi-purpose workshop building will facilitate the demolition of a number of outbuildings and structures to the east of the main building and will enhance the openness and appearance of this part of the site. The main elements of the proposal that have the greatest potential to impact on the openness of the Green Belt are the new buildings comprising Stages J and K and the new earth bund along the southern boundary of the site which allows for an enlarged backlot.

Stages J and K are sited between the south elevation of the main studio building and Aerodrome Way on an area that is currently grassed. At present, this grassed area provides a visual separation between the main studio building and the housing on the eastern side of Aerodrome Way (which forms the western extent of the urban area of Watford at this point). This visual separation will be lost as a result of the proposal. Prior to the construction of Aerodrome Way, this part of the site was occupied by part of the

B 11 airfield runway. There are a number of considerations for the siting of Stages J and K adjacent to the existing main studio building. It allows the new stages to have a close physical association with the main studio and production facilities and access to be taken from the existing southern roundabout without the need to form another access from Aerodrome Way. It also follows advice in PPG2 by integrating the new buildings with the existing development. The siting of Stages J and K is also generally consistent with the previously proposed masterplan for the site from 2001, for a Technology, Media and Telecommunications Park, which located the proposed buildings in an arc, commencing alongside the main studio building (which was to be demolished and redeveloped for new film studios) extending north along the western side of Aerodrome Way. It was accepted by both Three Rivers District Council and Watford Borough Council at the time that this was an appropriate form of development that would not impact on the openness of the Green Belt. The national and local policy context remains the same today.

The second element to consider in respect of openness is the proposed new earth bund which will screen the enlarged backlot from view. The current backlot includes the area of open grass to the north of the runway with an earth bund located along the southern boundary of the runway. The current proposal involves removing the existing bund and the formation of a new bund along the southern boundary of the site, alongside the A41 spur to Aerodrome Way. This will allow the area of open grass to the south of the runway to be incorporated into the backlot. The earth bund will prevent views across the open space from the spur road but will not involve any development of this land. As openness is not concerned with views per se, the openness of the Green Belt will not be affected by this change in the location of the bund.

C4(b) - contribute to the achievement of Green Belt land use objectives These objectives are listed as i) to provide opportunities for access to the open countryside, ii) to provide opportunities for outdoor sport and recreation, iii) to retain attractive landscapes and enhance landscapes, iv) to improve damaged and derelict land around towns, v) to secure nature conservation interest, and vi) to retain land in agricultural, forestry and related uses (not applicable in this case).

B 12 The previous use of the site by Rolls Royce and as a private airfield did not allow public access across the site and did not include any facilities for outdoor sport or recreation. This has remained the case in recent years with the temporary film studio use and will remain the case with the current proposal. For reasons of security, the use of the site as a film studio is incompatible with public access. There are no existing public rights of way across the site. With regard to criteria ii), iv) and v), these objectives will be achieved through extensive new earth works and landscaping as part of the proposals and the retention of as many of the existing trees on the site as possible.

C4(c) - not exceed the height of existing buildings It was agreed in 2001 that the maximum height of new development should not exceed 18.28m. The new and replacement buildings proposed have a maximum height of 18.2m and therefore comply with this criterion.

C4(d) - not occupy a larger area of the site than the existing buildings Policy SE14 states that the developable area, including buildings, parking, hardstanding, storage, landscaping around buildings and access roads, is not to exceed 32 hectares. It was subsequently agreed that this figure should more accurately read as 32.28 hectares. The current proposal, including all refurbished, replacement and new buildings, car parks and access roads occupies an area of 18.57 hectares. The completed residential development off Dowding Way and Curtiss Drive occupies 9.10 hectares and the completed (3 buildings) and extant (1 building) office development occupies 3.41 hectares. The total developed area arising from the current proposal is therefore 31.08 hectares and complies with this criterion.

The proposal also complies with the maximum footprint of development of 90,523m² (excluding runways) contained within the Planning Brief, with the total footprint of the proposal, the existing residential development and the existing and extant office development totaling 89,828m².

B 13 The advice in PPG2 states that redevelopment of the site should be considered as a whole, whether or not all the buildings are to be redeveloped. Any proposals for partial redevelopment should be put forward in the context of comprehensive, long-term plans for the site as a whole. In this respect, MEPC, the current owners of the site, have retained an area of land of 13.3 hectares, forming the north-eastern portion of the site, for future residential development. This area of land is identified in Three Rivers District Council’s emerging Core Strategy: Further Preferred Options document as a ‘preferred option’ development site. The inclusion of this land would significantly exceed the previously agreed developable area and the maximum footprint of development for the site. As such, very special circumstances would need to be demonstrated.

In the case of the current film studio proposal, very special circumstances could be argued given the very significant role the studios play within the UK’s film industry (see “Social and economic considerations” below). However, the current application has been submitted by Warner Bros. and not MEPC and no details of the proposed residential development have been submitted nor are they for consideration at this time. It is not therefore considered appropriate or necessary for the current proposal to demonstrate very special circumstances in this case. Very special circumstances will need to be demonstrated in respect of any future residential development of the adjoining land, should this come forward, and this will need to be considered in the context of Three Rivers District Council’s emerging Core Strategy. As this land may not come forward, in part or in whole, pending the consideration of Three Rivers District Council’s preferred options, it would not be appropriate to have regard to this additional land in considering the current proposal.

Social and economic considerations Warner Bros. is the only US film company currently operating within the UK. They have leased the Leavesden Studios site since 2000 and this has become the home of the Harry Potter franchise of films. Leavesden Studios is also the studio home of Warner Bros. Productions which is responsible for all Warner Bros. films based in the UK, Europe, Africa and the Middle East. Leavesden Studios is also the largest film studio space in the

B 14 UK with 39% of the UK’s studio space, with Pinewood at 35% and Shepperton at 26%. It is therefore a vital and significant part of the UK’s film industry. In 2006, the UK film industry directly employed 35,000 people and supported a total of 95,000 jobs, contributing over £4.3 billion to the UK GDP (figures taken from a report by Oxford Economics entitled ‘The economic impact of the film industry’ (July 2007)).

In respect of Leavesden Studios specifically, it has accounted for on average 25% of UK annual inward investment production rising to 50% in exceptional years when 3 films have been produced. When fully operational, the base employment numbers are 800-1000 people with up to 80% of personnel travelling from within a 30 mile radius of the site. With such a significant investment in film production, the studios have also become a major catalyst for innovation and technology-led business growth.

The refurbished and extended studios will have the capacity to produce 2-3 major ‘blockbuster’ films per year, or a larger number of smaller productions, with the additional staff requirement anticipated to be 118 full-time equivalent positions. Additional employment will also be generated through the new visitor facilities. The visitor facility will be based around organised tours of the film sets, costumes and artefacts within the new stages J and K lasting over 2 hours each. It is anticipated the daily average number of visitors will be approximately 2,500 (approximately half of the daily capacity of the visitor facilities). This will operate on a pre-booked ticket system with timed entry tickets.

Layout and design The overall layout of the site remains essentially unchanged with the refurbishment and partial replacement of the main group of studio buildings in the centre of the site. The open grassed areas to the south, including the backlot, will also remain together with the Flight Shed. The two new stages will be sited immediately adjacent to, and will become part of, the main central group of buildings. The most significant change is in the access arrangements with the existing access off South Way being replaced by two new accesses off the northern and southern roundabouts on Aerodrome Way. This is a significant improvement over the existing arrangement which is via the narrow South Way

B 15 with a restricted access junction. It also allows the parking for staff and visitors to be accommodated within two new car parks adjacent to the existing and proposed buildings with a clear and logical layout for the site.

In terms of design, the two new stage buildings (J and K) will adopt the distinctive design of the main studio buildings with ‘monitor’ style roofs. This will enhance the character and appearance of this central group of buildings and provide a clear visual link between the existing and new stages. The re-cladding and re-roofing of the existing buildings will retain their distinctive design features and significantly improve their appearance. The materials used for the existing and new buildings will be insulated, profiled, metal sheeting in grey for the roofs (Goosewing Grey and Merlin Grey) and beige or light tan for the walls (Honesty or Mushroom).

Character of the area and street scene The two new stage buildings adjacent to Aerodrome Way will appear as prominent new buildings in this location and will effectively bring the studios up to the Aerodrome Way frontage. These buildings will become the new public face of the studios and will give the site a much greater presence within the locality. Given the significant new visitor facility being proposed and the importance of the studios to the UK film industry, it is considered appropriate and acceptable that the studios should have an enhanced level of public visibility and that this should be on Aerodrome Way, the main spine road constructed to serve the site over 10 years ago. It is therefore considered that the proposal will enhance the character and appearance of the area.

Impact on neighbouring properties The residential properties that are sited closest to the site, and also closest to the new stage buildings (J and K), are those within the Dowding Way/Curtiss Drive development, and particularly those on Royce Grove. A number of the houses on this road are set at right-angles to Aerodrome Way and do not directly face the site, although the new stage buildings will be clearly visible from the rear garden areas. Nine houses within the central part of the road (nos. 31-47) are sited parallel to Aerodrome Way and their rear elevations

B 16 directly face the new stage buildings. The new stage buildings will be the same height and design as the existing main studio building but will be significantly closer to Aerodrome Way and the houses in Royce Grove. Visually, the buildings will appear very prominent from Aerodrome Way and the residential area to the east, sited as they are within an existing open grassed area that contains part of the grassed embankment to the backlot, and which separates the existing studio buildings from Aerodrome Way. However, this does not necessarily mean that their visual prominence will have an adverse impact on the amenities of the houses in Royce Grove.

The building closest to Aerodrome Way (Stage K) is sited 52m from Aerodrome Way at its closest point and 86m from the nearest rear garden boundary of houses in Royce Grove. It has a length of 86m facing Aerodrome Way and a maximum height of 15m to the centre of the ‘monitor’ roof. At the eastern elevation, the eaves level is 9m and the height of the roof is 12m. The houses in Royce Grove are currently separated from Aerodrome Way by a low embankment with small tree planting and a wide, grassed verge. On the western side of Aerodrome Way, the proposal incorporates a 2.5m high embankment that is to be planted with native tree and shrub species. This is intended to screen from view the visitor car park associated with the new stages but will also help to mitigate the overall scale of the Stage K building. Having regard to the scale of the Stage K building, its distance from the houses in Royce Grove, its light colour and the proposed landscaped embankment along Aerodrome Way, it is not considered that the proposed building will have any adverse impact on the outlook from the houses in Royce Grove or any adverse impact on the general amenity of these properties.

Transportation, access and parking Transport and highways issues are principally matters for the County Council as the Highway Authority to comment on in detail. These comments will then need to be considered when the application is determined by Three Rivers District Council. The comments below as based on the views of the Highway Authority, as provided to Three Rivers District Council.

B 17

The existing access to the site is from South Way, a C-classified road (C87). The application involves the closure of this access which is considered to be a benefit to the local road network by removing traffic from the busy junction of Bridge Road/A411 Watford Road. The site will be served by two new accesses direct from Aerodrome Way. This road formed the new spine road approved as part of the 1995 outline permission for film and television studios, leisure use, offices and housing. It was intended that the northern roundabout would serve the new studios at this time. Subsequently, this roundabout was to serve the technology, media and telecommunications park the subject of the 2001 planning applications. In the current application, a new spur will be taken off the southern roundabout to serve the visitor facility and a spur off the northern roundabout will serve the film studios. A Stage 1 safety audit has been undertaken in respect of both junctions to confirm that they are acceptable in safety terms. As the purpose of Aerodrome Way was to serve the development of the former Leavesden Aerodrome site, there is no objection in principle to this arrangement.

The additional staff employed is predicted to increase vehicle movements by 35 two-way vehicular movements in each of the morning and evening peak periods. The visitor facility is predicted to give rise to hourly trips during times of peak demand of 300 two-way trips from cars, taxis and coaches. This will not affect the morning peak period as the facility is not due to be open to visitors until 10am.

Traffic counts were carried out to assess the effects of development traffic at 11 local junctions including all those around the site itself (on South Way, Aerodrome Way and the A41) and then the roundabout on Courtlands Drive (south of the Ashfields bridge over the A41) and down the A41 as far as the Dome roundabout junction with the A412 St Albans Road. These counts were taken during the filming one of the Harry Potter films and so would have picked up representative data for when the studios are in use.

B 18 Of these junctions 9 showed significant increases (over 5%) when factored up to take account of the development traffic. These were therefore subject to further detailed computer modelling to predict conditions in 2012 (the opening year) as were the junctions at the Dome roundabout and the accesses on the A41 to the adjacent Sainsbury and Asda superstores because of their network significance.

This modelling shows that at junctions controlled by traffic signals, congestion (measured by Degree of Saturation or DoS) can be kept below the critical 90% by the optimisation of the signals. This applies particularly at the A41/ Bridge Road junction. At the junction of Aerodrome Way and Hill Farm Avenue queuing in the northbound direction in the morning peak is predicted to increase from 30 vehicles to 33 but the DoS is still below the 90% threshold. There are small decreases in that flow in the evening peak and in the southbound direction in the morning. Similar but slightly smaller increases with equivalent decreases are predicted at the Aerodrome Way/ Hercules Way signals. These decreases are due to the reassignment caused by the closure of the site access from South Way and opening of the new access from Aerodrome Way.

The majority of the roundabouts are predicted to operate without significant detrimental effect. With the development, maximum queues of 1 vehicle are predicted at both roundabouts on Aerodrome Way. At the A41/ A411 Hunton Bridge roundabout the most noticeable effect is in the evening peak when the queue on the A411 (leaving Watford) increases from 162 to 183 vehicles (i.e. by 13%). This is not significant given that that arm of the junction is already significantly over capacity at that time. At the Dome roundabout there is likely to be increased queuing on the A41 approaches. The largest increase is on the approach from the south-east (London) where it is predicted to grow by 4 vehicles in the morning and 13 in the evening. But these represent changes of less than 5% due to existing conditions and are not therefore considered to be significant.

Overall, the Highway Authority are satisfied that the development proposal will not give rise to any significant adverse impacts on the highway network.

B 19 Car parking provision for staff is provided at 896 spaces, the majority within a new car park off the northern roundabout. Other spaces are provided elsewhere within the site close to the studio building and other ancillary buildings. The visitor car park will accommodate 598 car spaces and 14 coach spaces. Parking demand at the site currently varies considerably with peak demand at times when large crowd scenes are being filmed. There are no parking standards for film studio use within the Development Plan due to the highly variable nature of parking demand. Within the site, there are currently few designated parking spaces with parking being accommodated on the various hardsurfaced areas around the buildings and the former runway being used at times of high parking demand. There is no overspill parking on to surrounding roads.

A Framework Travel Plan has been submitted to support and promote sustainable travel choices for staff and visitors. This proposes that once occupation of the development reaches a critical mass a travel survey will be undertaken to establish robust baselines for visitors and staff (regular and temporary). A final Travel Plan will be submitted within 3 months of the survey date. Travel surveys will then be carried out at the end of the 1st, 3rd and 5th year of the Travel Plan. The results of these will be published and used to adjust the targets and associated interventions. The Framework Travel Plan includes a number of useful components e.g. a TP coordinator, marketing and promotion, a car share database and the control of visitor numbers and arrivals through ticketing. The applicant is also proposing to run a shuttle bus between Watford Junction and the site at 20 minute intervals which will primarily support the visitor attraction and will be promoted as part of the ticketing process.

The Highway Authority has requested that the Travel Plan and shuttle bus service be secured through a s.106 planning obligation.

Landscaping, trees and ecology The landscaping scheme has been designed having regard to the unique constraints imposed by the film studios and a detailed landscape appraisal. A series of new earth embankments are proposed along the eastern and northern boundaries of the site. Those

B 20 adjacent to the new buildings comprising Stages J and K are designed to screen the visitor and staff car parks from view from Aerodrome Way and will be landscaped with native trees. The embankment along the northern boundary adjacent to South Way will help to screen from view the ancillary buildings and land to the north of the main studio building and will also be landscaped. The embankment along the A41 spur will form the boundary of the extended backlot and will be grassed. This embankment will form part of the ‘clear horizon’ for filming purposes and will not, therefore, be planted with trees.

Within the site itself, a number of trees are to be removed. Eight individual trees, four groups of trees and part of another group will be removed in order to facilitate the proposed development. All of these trees are classed as falling within category C and are either in poor condition, unsustainable or small. A further four trees and one group of trees are in such poor condition, dying or dead that their removal is recommended for good arboricultural reasons, irrespective of the proposed development. One significant group of lime trees, in category A, will be retained but could be adversely impacted by new surfacing within their root protection zone. This will require appropriate protective measures to be secured through a detailed arboricultural method statement. All of these trees are located in the central and northern parts of the site. No trees are to be removed in the southern part of the site or around the Flight Shed.

In addition to the native tree planting on the eastern and northern earth embankments, extensive new native tree, shrub and hedge planting will be incorporated within the visitor and staff car parks. The existing avenue of category A lime trees alongside the main studio building will also be enhanced with the planting of new lime trees. Overall, it is considered that the proposed landscaping within the central part of the site will enhance the site landscaping and appearance of the site.

An Ecology Report has also been submitted with the application. This incorporates phase 1 and 2 habitat surveys and a series of protected species surveys undertaken in 2007 and 2008, which are all considered to remain representative of the current environmental characteristics of the site. In December 2009, a further badger survey was undertaken to

B 21 update the survey undertaken in 2008, which established the presence of badgers on the site, and which confirmed that the badger sett in the woodland to the north of the Flight Shed was not active. The survey did confirm badgers remain on the site, with evidence of tracks, hairs and foraging in the south-east and north-east corners of the site. The surveys from 2007 and 2008 recorded bats foraging across the site, although, by the nature of the buildings, bat roosts are considered unlikely. The Report recommended further survey work for any buildings due to be removed. No evidence was found of dormouse, reptiles or amphibians.

In respect of breeding birds, notable breeding territories for skylark (6) and song thrush (8), both BTO (British Trust for Ornithology) Red-listed species and UK BAP (Biodiversity Action Plan) priority species, were present. The skylark territories were principally found within the open grassed areas in the southern and western part of the site around the backlot. The song thrush territories were found across the site in hedgerows and dense scrub. Other species of note, all BTO Amber-listed, included meadow pipit, swallow and mistle thrush.

With regard to invertebrate species, the areas of grassland within the site (excluding the backlot) were found to hold two Red Data Book species, seven Nationally Scarce species and two BAP priority species. The majority of these species were concentrated within the unimproved grassland and calcareous grassland to the south of the backlot and east of the Flight Shed (identified as Invertebrate Surveys Areas 4 and 5 respectively). Due to the presence of these species, the site is considered to be of high local and County/regional significance.

One County Wildlife Site is present on the site and comprises an area of grassland to the east of the Flight Shed (Invertebrate Survey Area 5). In terms of the proposed development of the site, this will have little or no impact on badgers or bats, subject to a bat survey being undertaken of any buildings to be demolished prior to demolition, as the Wildlife Site is unaffected by any proposed development.

B 22 The main ecological impacts arise in respect of the calcareous grassland which comprises the eastern part of the site that lies to the south of the backlot and east of the main studio buildings (Invertebrate Survey Area 4). This area contains 4 of the skylark territories and a number of the important invertebrate species. The northern part of this area will be lost as a result of the new Stage J and K buildings and the visitor car park. The remainder of the area will be affected either through the formation of the extensive new earth embankment along the eastern boundary of the site and the incorporation of the grassland into the extended backlot. The formation of the embankment, re-modelling of the land levels, and the use of the land as part of the backlot, with the level of disturbance this will entail, will clearly have an effect on the grassland habitat and the species associated with it.

However, the applicants’ ecologist is of the view that the grassland on the site is not all of comparable quality and interest. Most of the site is given over to grassland that is similar to that which could be found along road verges or pasture land throughout southern England. Whilst there are pockets of interesting vegetation, their importance should not be overestimated. Mitigation measures are therefore proposed for the grassland areas, which would also have ecological benefits as far as invertebrates and skylarks are concerned.

The mitigation measures include seeding the earth embankments with a conservation mix and the introduction of a management plan. This will allow the creation of a species-rich neutral grassland (which is what appears to have been destroyed when Aerodrome Way was constructed) and will also provide a suitable habitat for the invertebrates of interest. With appropriate management, the embankments would also provide nesting sites for skylarks. In addition, a management plan is proposed for the Leavesden Aerodrome County Wildlife site. If the grassland and the wildlife site are left unmanaged the remaining botanical and invertebrate interest would be lost, so the management plans proposed will safeguard their future.

B 23 Given the local and County/regional significance of the grassland habitat, it is important that the potential impacts of the development are appropriately mitigated to avoid unacceptable harm to the ecological value of the site. The loss of the northern part of the grassland through the siting of Stages J and K and the visitor car park is difficult to mitigate without the removal of these elements from the proposed development. However, the mitigation measures proposed elsewhere will maintain and protect the existing County Wildlife sites and will create a species-rich grassland on the earth embankments, which will be of a higher value ecologically than the existing grassland and will also provide a long-term habitat for protected species, including invertebrates and breeding birds.

Sustainability The existing buildings on the site are in relatively poor condition generally, with very poor levels of insulation and air tightness, and rely heavily on the use of oil-fired generators (up to 80% of electricity and space heating demand). The existing oil-fired generators will be replaced by mains electricity and mains gas, which are also significantly cleaner fuels, and will result in significant reductions in CO2 emissions. The proposed re-cladding and re- roofing of the existing buildings will ensure that they are not only brought up to, but will exceed, the minimum requirements of the Building Regulations for insulation and air tightness. This will result in a significant reduction in energy demand and a further reduction in CO2 emissions. It is predicted that the CO2 emissions resulting from these measures will reduce the emissions from 78kgCO2/m² to 59kgCO2/m².

Overall, it is the applicant’s intention that the studios will achieve a British Research Establishment Environmental Assessment Rating (BREEAM) of ‘Very Good’ which will require the implementation of best practice methods in relation to construction and site waste management, energy consumption and water use. The incorporation of renewable energy sources will also be investigated during the detailed scheme design stage with an initial feasibility study identifying solar thermal, biomass and combined heat and power (CHP) as potential options for the proposed development.

B 24 Cultural heritage No part of the site is identified as an area of archaeological significance or within a conservation area and none of the buildings on-site is listed. Past archaeological investigations have been undertaken in respect of the various previous applications on the site and detailed investigations have been undertaken in respect of the eastern part of the site now proposed for development. Although prehistoric features were found, the majority of remains had been significantly truncated or possibly destroyed by agricultural activity and the development of the airfield. A watching brief is recommended for those areas where ground works are proposed. There are two grass covered air raid shelters on the site, close to the eastern elevation of the main studio building. These are not currently recorded in Hertfordshire County Council’s Historic Environment Record and are due to be demolished as part of the proposals. It is therefore recommended that these structures are fully recorded and photographed and the records sent to the County Council.

Application 2 - Ref. 10/00051/FUL (WBC) The application submitted to the Borough Council forms only a small part of the proposed development of the Leavesden Studios site. The proposal does not involve the construction of any new buildings or hard surfaced areas but principally involves the re- roofing and re-cladding of the existing Flight Shed building. This will be undertaken in the same insulated, profiled, metal cladding as proposed for the main studio buildings and new Stages J and K, but will utilise a green colour (Camouflage) for the walls to match the existing green colour of the building. The roof will be in grey (Goosewing Grey and Merlin Grey). Some of the existing single storey outbuildings will be demolished. The earth embankment to the west of the building, which partially screens the building from view from the west, will be re-modelled to make it more continuous, but it will not exceed its current overall height. Overall, therefore, the proposal will not have any adverse impact on the openness of the green belt.

The area of woodland to the east of building, including the County Wildlife Site, will not be directly affected by the proposed works. A small part of the area of grassland beyond the County Wildlife Site will be affected by the end of the earth embankment. However, given

B 25 the ecological considerations referred to above, there is no objection to this aspect of the proposals provided that the mitigation measures proposed are put in place, so that the land can be managed positively for the benefit of wildlife both to avoid its degradation through neglect and to enhance the biodiversity of the site.

Conclusion The site is located within the Metropolitan Green Belt where film studio use constitutes inappropriate development. The proposed development for film production and associated activities is therefore contrary to policy and, by definition, harmful to the Green Belt. However, the site is designated as a Major Developed Site in the Green Belt and, having regard to all the circumstances of the application, is considered to comply fully with the criteria in Annex C of PPG2 for the redevelopment of Major Developed Sites in the Green Belt. As such, very special circumstances do not need to be justified in this case and the proposal is acceptable in principle. The continued use of, and significant improvement to, the existing studios will enable the applicants to maintain and improve their very significant economic and social role in the local, regional and national economy and within the UK film industry.

The existing main studio building and the Flight Shed will be retained and extensively refurbished and various ancillary buildings will also either be refurbished or replaced. Adjacent to the main studio building, a major new visitor facility will be created with two new stages, designed to reflect the distinctive roof profile of the retained buildings. New, improved access arrangements are proposed from Aerodrome Way which are acceptable and these will also facilitate an improved internal layout for the site. Overall, the proposed redevelopment of the site, and specifically that part within the Borough Council’s jurisdiction, will significantly enhance the site and the character and appearance of the wider area and is considered to be acceptable.

B 26 RECOMMENDATIONS

A) Application 1 - Ref. 10/00080/FUL (TRDC)

That Three Rivers District Council be advised that Watford Borough Council does not object to the proposed development but requests (a) that the following comments are taken in to account in determining the application and (b) that any grant of permission be subject to conditions to secure the details listed below.

Comments

1. Given the local, County and regional significance of the grassland habitat, it is important that the potential impacts of the development are appropriately mitigated to avoid unacceptable harm to the ecological value of the site. The mitigation measures proposed, including the seeding of the earth embankments with a conservation mix and the introduction of a management plan to allow the creation of a species-rich neutral grassland and to provide a suitable habitat for invertebrates and nesting sites for skylarks, should be secured by condition as part of the grant of planning permission.

2. Provision of a regular shuttle bus service between Watford Junction Station and the visitor facility should be secured through a s.106 planning obligation.

3. Any directional signage on the road network from London (northbound on the A41 or M1) should direct traffic to the site via the M1, M25 and A411 and not along the A41, in order to prevent any additional traffic at the Dome roundabout.

Conditions

1. All construction traffic to access site from Aerodrome Way. 2. New access from northern roundabout and new staff car park to be completed before use of film studios commences.

B 27 3. Existing access on South Way to be closed before use of film studios commences. 4. New access from southern roundabout and new visitor car park to be completed before use of visitor facility commences. 5. Maximum 598 visitor spaces and minimum 14 coach spaces to be provided to serve visitor facility. 6. Implementation of Framework Travel Plan and submission and implementation of Final Travel Plan. 7. Bat survey of any buildings to be demolished to be undertaken before demolition. 8. Scheme for the enhancement and management of biodiversity across the site. 9. Scheme for archaeological recording of air raid shelters and archaeological watching brief over site. 10. Stages J and K only to be used for public display of film sets, costumes and artefacts and for film production and associated activities and for no other purpose. Retail sales to be ancillary to the public display of film sets, costumes and artefacts only. 11. Scheme of operation for the visitor facility, to include hours of operation and ticketing arrangements, to be submitted and implemented. 12. Restrictions on use of backlot for external filming and requirements for notification of local residents to remain as existing. 13. External materials to be used for existing and proposed buildings to be as shown on submitted drawings. 14. Hard and soft landscaping to be undertaken in accordance with the submitted drawings.

B) Application 2 – Ref. 10/00051/FUL (WBC)

That planning permission be granted subject to the following conditions:

1. The development to which this permission relates shall be begun within a period of 3 years commencing on the date of this permission.

B 28

Reason: To comply with the requirements of Section 51 of the Planning and Compulsory Purchase Act 2004.

2. The re-cladding and re-roofing of the existing Flight Shed building (Stage L) shall only be carried out in the materials detailed on drawing no. 3719-ST-1204 (KMG Partnership) unless otherwise agreed in writing by the Local Planning Authority.

Reason: In the interests of the appearance of the building, in accordance with Policy U3 of the Watford District Plan 2000.

3. No filming, associated activities or storage shall take place on the land to the east of the Flight Shed building (Stage L) within the woodland or the grassland forming the County Wildlife Site (for the avoidance of doubt, the areas identified by Target Notes 4, 5 and 6 and Invertebrate Survey Area 5 within the Ecology Report dated January 2010 by Terence O’Rourke Limited).

Reason: To prevent disturbance and/or damage to these important ecological habitats and the species they support, in accordance with Policies SE31 and SE32 of the Watford District Plan 2000.

4. The earth embankment to the west of the Flight Shed building (Stage L) shall only be re-modelled and the earth embankment to the east of the Flight Shed building shall only be constructed in accordance with the details shown on drawing no. 224401/LA/LP/003 (Terence O’Rourke Limited), unless otherwise agreed in writing by the Local Planning Authority.

Reason: In the interests of preserving the openness of the Green Belt, in accordance with Policy SE13 of the Watford District Plan 2000.

B 29 5. No development shall commence until a scheme for the enhancement of biodiversity on the site, including the management of land for bio-diversity, has been submitted to and approved in writing by the Local Planning Authority. The approved scheme shall be implemented in full in accordance with an implementation schedule which shall form part of the approved scheme.

Reason: To enhance the bio-diversity of the site and to prevent the degradation of existing habitats, in accordance with Policies SE31 and SE32 of the Watford District Plan 2000.

6. No development shall commence until details of protective fencing around the retained woodland and the County Wildlife Site have been submitted to and approved in writing by the Local Planning Authority. The approved protective fencing shall be retained at all times during construction works. No materials, vehicles, fuel or any other items shall be stored or buildings erected inside this fencing and no changes in ground level shall be made within the spread of any tree or shrubs (including hedges).

Reason: To safeguard the existing trees and County Wildlife Site which represent an important visual amenity and ecological habitat during the period of construction works in accordance with Policies SE31, SE32, SE37 and SE39 of the Watford District Plan 2000. ______

Informatives

1. The Local Planning Authority's reasons for granting planning permission in this case are as follows:

The site is located within the Metropolitan Green Belt where film studio use constitutes inappropriate development. The proposed development for film

B 30 production and associated activities is therefore contrary to policy and, by definition, harmful to the Green Belt. However, the site is designated as a Major Developed Site in the Green Belt and, having regard to all the circumstances of the application, is considered to comply fully with the criteria in Annex C of PPG2 for the redevelopment of Major Developed Sites in the Green Belt. As such, very special circumstances do not need to be justified in this case and the proposal is acceptable in principle. The continued use of, and significant improvement to, the existing studios will enable the applicants to maintain and improve their very significant economic and social role in the local, regional and national economy and within the UK film industry.

2. In reaching its decision on this application the Council has had regard to the following policies of the Development Plan:

B 31 WM1 Waste Management Objectives WM2 Waste Management Targets LA1 London Arc LA4 Watford Key Centre for Development and Change

B 32 ______ACCESS TO INFORMATION

Case Officer: Paul Baxter Email: [email protected] Tel: 01923 - 278284

B 33