Stopsley High School, St Thomas Road

AGENDA ITEM

COMMITTEE: DEVELOPMENT CONTROL

DATE: 24TH SEPTEMBER 2014

SUBJECT: STOPSLEY HIGH SCHOOL, ST THOMAS ROAD – ERECTION OF NEW SCHOOL AND ASSOCIATED WORKS, INCLUDING AREAS OF HARD AND SOFT PLAY, PLAYING FIELDS, CAR PARKING AND ACCESS, LANDSCAPING AND PROVISION OF TEMPORARY CLASSROOM ACCOMMODATION FOR USE DURING CONSTRUCTION AFTER DEMOLITION OF EXISTING BUILDINGS (APPLICANT: INTERSERVE CONSTRUCTION LTD AND THE EDUCATION FUNDING AGENCY) (APPLICATION NO: 14/00644/FUL)

REPORT BY: DEVELOPMENT CONTROL MANAGER

CONTACT OFFICER: DAVID GAUNTLETT 546317

IMPLICATIONS:

LEGAL COMMUNITY SAFETY

EQUALITIES ENVIRONMENT

FINANCIAL CONSULTATIONS

STAFFING OTHER

WARDS AFFECTED: STOPSLEY

PURPOSE

1. To advise Members of a current application for outline planning permission and to seek their decision.

RECOMMENDATION(S)

2. Subject to the satisfactory completion of a S106 Agreement to secure improvements to the surrounding highways made necessary by the development, it is recommended that planning permission is granted subject to the following conditions:-

(01) The development hereby permitted shall be begun not later than the expiration of three years beginning with the date of this permission.

Reason: To limit the duration of the permission in accordance with the provisions of Sections 91-96 of the Town and Country Planning Act, 1990.

(02) The development hereby permitted shall not be carried out other than in complete accordance with the approved plans and specifications as set out on Luton Borough Council plan numbers 01, 02, 03, 04, 07, 08, 12, 13, 14, 15, 16, 17, 18, 19, 20, 21, 40, 44, 45, 46, 47, 48, 49, 50, 51, 52, 53, 54, 56, 57, 58, 59, 60, 61, 62, 63, 64, 65, 66, 67, 68, 69, 70, 71, 72, 73, 74, 75, 76, 77, 78, 79, 80 81, 82, 83, 84, 85, 86, 87, 88, 89, 90, 91, 92, 93 and 94. .

Reason: To ensure a satisfactory standard of development and to safeguard the amenities of the surrounding area. To accord with the objectives of Policy(ies) LP1, ENV9, ENV10 and LC4 of the Luton Local Plan.

(03) A Final Landscaping Specification for all areas of planting, to include species which have been previously agreed with the Local Planning Authority, shall be submitted to and approved by the Local Planning Authority before any landscaping work commences. All areas of soft landscaping shall be carried out during the planting season immediately following the completion of the approved works in the locations identified in the approved specification. If within a period of five years from the initial date of planting of the trees, any are removed, uprooted, destroyed or dies, or becomes in the opinion of the Local Planning Authority, seriously damaged, diseased or defective, another tree of the same species and size as that originally planted shall be planted at the same place, unless the Local Planning Authority gives its written consent to any variation.

Reason: In the interests of visual amenity. To accord with the objectives of Policy(ies) LP1 and ENV10 of the Luton Local Plan.

(04) All works on site shall be carried out in accordance with the recommendations set out in ARUP report references 235954- 90 "Reptile Report" dated 4 September 2014 and 235954-90 "Bat Report" dated 5 September 2014 unless otherwise agreed in writing by the Local Planning Authority.

Reason: In the interests of the protection and enhancement of nature conservation interests. To accord with Policies LP1 and ENV5 of the Luton Local Plan.

(05) Before any building or engineering works are commenced on site the existing trees, shrubs and/or hedges to be retained shall be safeguarded against damage or injury by the erection of fencing or other suitable protection at a distance of not less than that recommended by BS5837:2012 from the tree trunk(s) or shrubs or hedging, and no plant, materials or other objects shall be stored or placed against any of the trees, shrubs or hedges.

Reason: To safeguard the existing trees, shrubs and/or hedges on the site. To accord with the objectives of Policy(ies) LP1 and ENV10 of the Luton Local Plan.

(06) A landscape management plan, setting out management and maintenance responsibilities for all hard and soft landscape areas, shall be submitted to and approved by the Local Planning Authority prior to the occupation of the development or any phase of the development, for its permitted use. The landscape management plan shall be carried out as approved and shall remain in force for as long as the development remains in existence.

Reason: To ensure a satisfactory standard of development and in the interests of visual amenity. To accord with the objectives of Policies LP1, H2 and ENV10 of the Luton Local Plan.

(07) No development shall take place, including any works of demolition, until a Construction Method Statement has been submitted to, and approved in writing by, the Local Planning Authority. The approved Statement shall be adhered to throughout the construction period. The Statement shall provide for:(i). the parking of vehicles of site operatives and visitors; (ii). loading and unloading of plant and materials;(iii). storage of plant and materials used in constructing the development; (iv). the erection and maintenance of security hoarding including decorative displays and facilities for public viewing, where appropriate; (v). wheel washing facilities; vi). measures to control the emission of dust and dirt during construction; (vii). a scheme for recycling/disposing of waste resulting from demolition and construction works; (viii) hours of operation during the construction period. .

Reason: To ensure a satisfactory standard of development and to safeguard the amenities of the surrounding area. To accord with the objectives of Policy(ies) LP1 and H2 of the Luton Local Plan.

(08) A Service Yard Management Plan, including management responsibilities and details of deliveries and servicing associated with the development, shall be submitted to and approved by the Local Planning Authority before the development hereby permitted is occupied. The management plan shall be carried out as approved.

Reason: To ensure a satisfactory standard of development and to safeguard the amenities of the surrounding area. To accord with the objectives of Policy(ies) LP1 and LC4 of the Luton Local Plan.

(09) No external lighting, including any proposed lighting to the external sports facilities, shall be installed on the site, other than in accordance with a scheme to be submitted to and approved by the Local Planning Authority beforehand. The scheme, lighting equipment and levels of illumination shall comply with guidance issued by the Institution of Lighting Engineers in their publication "The ILE Outdoor Lighting Guide" and shall be accompanied by a statement from the developer confirming that compliance. The scheme shall thereafter be retained and maintained for so long as the development remains in existence and shall not be varied without the prior written permission of the Local Planning Authority.

Reason: To ensure a satisfactory standard of development and to safeguard the amenities of the surrounding area. To accord with the objectives of Policy(ies) LP1, ENV9 and LC4 of the Luton Local Plan.

(10) Full details of the proposed new solid fence to be erected along the south-eastern boundary of the site adjacent to properties in Mixes Hill Road shall be submitted to and approved by the Local Planning Authority before the development is commenced and the approved treatment shall be installed before the building(s) hereby permitted are occupied.

Reason: To ensure a satisfactory standard of development and to safeguard the amenities of the surrounding area. To accord with the objectives of Policy(ies) LP1, LC4 and ENV9 of the Luton Local Plan.

(11) Full details of the materials to be used in the construction of the elevations, roofs and fenestration of the elevations, roofs and fenestration shall be submitted to and approved by the Local Planning Authority before the development is commenced.

(12) Prior to the commencement of development, details of a scheme for renewable energy production equipment to provide at least 10% of the predicted energy requirements of the development shall be submitted to and approved by the Local Planning Authority, unless it can be demonstrated that there are overwhelming practical reasons why this is not appropriate. The scheme thereby approved shall be installed before first occupation or in accordance with a timetable agreed in writing by the Local Planning Authority and shall be used, retained and maintained thereafter for so long as the development remains in existence.

Reason: In the interests of sustainability. To accord with the objectives of Policy(ies) LP1 and U3 of the Luton Local Plan.

(13) Prior to the occupation of the development a scheme for the monitoring of the Travel Plan hereby approved shall be submitted to and approved in writing by the Local Planning Authority in consultation with the Local Highway Authority.

Reason: In the interests of sustainability and encouraging reduced car travel. To accord with the objectives of Policies LP1, T3 and T8 of the Luton Local Plan.

(14) Full details of a scheme for the secure parking of bicycles on the site shall be submitted to and approved by the Local Planning Authority before the development is occupied, and the scheme thereby approved shall be fully implemented within 3 months of the occupation of the development hereby permitted.

Reason: To ensure adequate provision is made for the accommodation of bicycles on the site, and to accord with Policies LP1 and T8 of the Luton Local Plan.

(15) The development hereby approved shall not be commenced until the necessary off-site highway works required to the drop-off/pick-up area as a result of the development have either been installed or programmed for installation, at the developer's expense, in accordance with a timetable agreed with the Council's Highway Development Manager. Written notification of the completion of the required works shall be provided to the Local Planning Authority before the development hereby approved is occupied.

Reason: In the interests of effective traffic management in the surrounding area and to accord with policies LP1 and T3 of the Luton Local Plan.

(16) The development hereby permitted shall not be commenced until a detailed surface water drainage scheme for the site, based on the agreed flood risk assessment (FRA) (Arup, Ref: ST-ARP-XX-ZZ-RP-C-08020, dated 22 August 2014) has been submitted to and approved in writing by the Local Planning Authority. The drainage strategy shall include a restriction in run-off and surface water storage on site as outlined in the FRA. The scheme shall subsequently be implemented in accordance with the approved details before the development is completed.

Reason: To prevent the increased risk of flooding, to improve and protect water quality, and improve habitat and amenity. In accordance with Policy ENV14 of the Luton Local Plan and the guidance of the National Planning Policy Framework.

(17) All temporary topsoil storage areas on the identified playing fields shall be removed from the site before first occupation of the development hereby permitted. In the first planting season following removal, the playing field land shall be reinstated to a playing field of a quality at least equivalent to the quality of the playing field immediately before the development was commenced in accordance with Policy LC1 of the Luton Local Plan and 'Natural Turf for Sport', (Sport England, 2011).

Reason: To ensure the site is restored to a condition fit for purpose. To accord with Policy LC1 of the Luton Local Plan.

(18) No development shall commence until the following documents have been submitted to and approved in writing by the Local Planning Authority in consultation with Sport England: (i) A detailed assessment of ground conditions (including drainage and topography) of the land proposed for the playing field which identifies constraints which could affect playing field quality; and (ii) Based on the results of the assessment to be carried out pursuant to (i) above, a detailed scheme which ensures that the playing field will be provided to an acceptable quality. The scheme shall include a written specification of soils structure, proposed drainage, cultivation and other operations associated with grass and sports turf establishment and a programme of implementation. The approved scheme shall be carried out in full and in accordance with a timeframe agreed with the Local Planning Authority in consultation with Sport England. The land shall thereafter be maintained in accordance with the scheme and made available for playing field use in accordance with the scheme.

Reason: To ensure that the playing field is prepared to an adequate standard and is fit for purpose. To accord with Policy LC1 of the Luton Local Plan.

(19) The development hereby permitted shall not be occupied until a community use agreement prepared in consultation with Sport England has been submitted to and approved in writing by the Local Planning Authority, and a copy of the completed approved agreement has been provided to the Local Planning Authority. The agreement shall apply to the school hall, sports hall, MUGA and external playing pitches (and associated changing facilities) and shall include details of pricing policy, hours of use, access by non-educational establishment users, management responsibilities and a mechanism for review, and anything else which the Local Planning Authority in consultation with Sport England considers necessary in order to secure the effective community use of the facilities. The development shall not be used at any time other than in strict compliance with the approved agreement.

Reason: To secure well managed safe community access to the proposed. To accord with the objectives of Policies LP1 and LC5 of the Luton Local Plan.

(20) The community use of both the internal and external facilities hereby approved shall not be operated outside the following hours: Mondays to Saturdays, 7.30 a.m. to 10.00 p.m; Sundays and Bank Holidays, 10.00 a.m. to 5.30 p.m.

Reason: To protect the amenities of neighbouring properties. To accord with the objectives of Policy(ies) LP1 and LC5 of the Luton Local Plan.

(21) No development shall take place until a written scheme of archaeological investigation, that adopts a staged approach and includes post excavation analysis and publication, has been submitted to and approved in writing by the Local Planning Authority. The said development shall only be implemented in full accordance with the approved archaeological scheme.

Reason To record and advance understanding of the heritage assets with archaeological interest which will be unavoidably affected as a consequence of the development. In accordance with Policy ENV6 of the Luton Local Plan and the objectives of the National Planning Policy Framework.

(22) The site layout, internal design and building specifications of the proposed development shall be such that the noise level within any nearby residential unit with windows opened shall not exceed 40DBLAeq (daytime: 07:00-23:00) and 30DBLAeq or 45 DBLAmax (night time: 23:00- 07:00) and details of noise insulation measures shall be submitted to and approved by the Local Planning Authority before any work is commenced. The approved insulation scheme shall be completed prior to the occupation of the development.

Reason: To ensure a satisfactory standard of development and to safeguard the amenities of the surrounding area. To accord with the objectives of Policy(ies) LP1 and LC4 of the Luton Local Plan.

(23) The cumulative noise from all operational plant, measured 1m from the nearest residential facade, shall not exceed 35 dBLAeq daytime (07:00 to 23:00) and 30dBLAeq night time (23:00 to 07:00).

Reason: To ensure a satisfactory standard of development and to safeguard the amenities of the surrounding area. To accord with the objectives of Policy(ies) LP1 and LC4 of the Luton Local Plan.

(24) An intrusive soil investigation shall be undertaken to assess the degree and nature of any contamination present, and to determine its potential for pollution of the water environment and risk to other receptors via a qualitative risk assessment. The method and extent of the investigation shall be agreed with the Local Planning Authority in consultation with the Environment Agency and the Council's Environmental Health Service beforehand and the investigation shall be undertaken prior to the commencement of the development.

Reason: To prevent pollution of the water environment. To accord with the objectives of Policy(ies) LP1 and ENV14 of the Luton Local Plan.

(25) Subject to the result of the investigation required by condition 24, a remediation strategy setting out a timetable of works and the proposed means of dealing with any contamination on site, including provisions for monitoring any specified actions and validating the outcomes, shall then be submitted to and approved by the Local Planning Authority in consultation with the Environment Agency and the Council's Environmental Health Service before the development commences. The development shall then proceed in strict accordance with the approved remediation strategy.

Reason: To prevent pollution of the water environment. To accord with the objectives of Policy(ies) LP1 and ENV14 of the Luton Local Plan.

(26) If, during development, any contamination not previously identified is found to be present at the site then no further development (unless otherwise agreed in writing with the Local Planning Authority) shall be carried out until the developer has submitted, and obtained written approval from the Local Planning Authority for, a remediation strategy which details how this unsuspected contamination shall be dealt with.

Reason: To prevent pollution of the water environment. To accord with the objectives of Policy(ies) LP1 and ENV14 of the Luton Local Plan.

(27) No occupation of any part of the permitted development shall take place until a verification report demonstrating completion of works set out in the approved remediation strategy and the effectiveness of the remediation shall be submitted to and approved, in writing, by the Local Planning Authority. The report shall include results of sampling and monitoring carried out in accordance with the approved verification plan to demonstrate that the site remediation criteria have been met. It shall also include any plan (a "long-term monitoring and maintenance plan") for longer-term monitoring of pollutant linkages, maintenance and arrangements for contingency action, as identified in the verification plan. The long-term monitoring and maintenance plan shall be implemented as approved.

Reason: To prevent pollution of the water environment. To accord with the objectives of Policy(ies) LP1 and ENV14 of the Luton Local Plan.

(28) Details of a fume extraction system to include a description of the siting and appearance of odour extraction equipment, details of canopy design and face velocity, extract rate calculations, make-up air calculations, filter types with supplier's specifications, filter change frequency, servicing frequency, cleaning frequency, noise and vibration control measures shall be submitted to and approved by the Local Planning Authority and the system shall be installed according to the approved details prior to the commencement of the use hereby permitted.

Reason: To ensure a satisfactory standard of development and to safeguard the amenities of the surrounding area. To accord with the objectives of Policy(ies) LP1 and LC4 of the Luton Local Plan.

REPORT

The Site and Surroundings

3. The application site is an area of land measuring approximately 7.4 hectares and is located approximately 1.55 miles north of Luton Town Centre. The site comprises a mix of single, two and three storey school buildings, which are set back from the street front and centrally located within the site. Land to the northeast of the school is well landscaped with open grassed areas and tree planting and provides the main vehicular and pedestrian entrances leading off St Thomas’s Road. Grassed playing fields and a series of all-weather 5-a-side pitches occupy the land to the southwest. The associated car parking is located in three separate areas around the school buildings.

4. The wider area surrounding the school is relatively open with Stopsley Common to the north, residential properties located on Mixes Hill Road adjoining the eastern boundary and areas of open space to the south and west.

Relevant Planning History

5. Planning permission was granted in 2010 for significant extensions and refurbishment to the existing school to improve its appearance and to bring it up to the standards expected of a modern learning environment. It was intended that the works would allow for the school role to increase from approximately 990 pupils to 1350 with staff numbers increasing from 163 to 190.

6. The approved scheme formed part of the Building Schools for the Future (BSF) programme, which was aimed at improving the delivery of education across the country, but the funding for the programme was withdrawn following a change in government and the works were never progressed on the site as a result.

The Proposal

7. Planning permission is sought for the demolition of the existing buildings on the site and the erection of a new education school facility together with associated hard and soft play areas, playing fields and car parking. The site will also be suitably landscaped. The alterations on site will facilitate the following:

 An increase in pupil numbers from 900 to 1,350 (+450)  An increase in staff numbers from 135 to 179 (+44)  An increase in parking on-site from 140 to 194 (+54)  The creation of a new 4-court Multi-Use Games Area (MUGA)  The creation of a 4-court Sports Hall  A net gain in natural playing field provision of 9,000sq.metres

8. The increase in playing field provision and improvements to indoor and outdoor hard-court areas will be beneficial to the school given its role as a Specialist Sports College.

9. The development of the new school is being funded and procured by the Educational Funding Adjacency (EFA) under the Priority School Building Programme (PSBP), which is a centrally managed programme set up to address the needs of schools most in need of urgent repair. Through the programme, 261 schools across the country will be rebuilt or have their condition needs met by the EFA.

10. As part of the application planning permission is also sought for the erection of temporary classroom accommodation that would be used throughout the construction period of the new facility.

Planning Policy Implications

National Planning Policy Framework (NPPF).

11. The National Planning Policy Framework (NPPF) was published in March 2012. It sets out to rationalise national policy guidance and how the government’s planning policies are expected to be applied. The core principle of the Framework is a “presumption in favour of sustainable development”. However, this does not change the status of the development plan as the starting point for decision making. Planning law requires that applications must be determined in accordance with the development plan unless material considerations indicate otherwise. The Framework is a material consideration in planning decisions and is referred to appropriately in the report.

Luton Local Plan 2001-2011.

12. The site has no designation on the Local Plan Proposals Map. The policies that are relevant to the proposal are LP1, ENV9, ENV10, LC1, LC4, LC5, T3, T8, T13, U3 and IMP1.

13. Policy LP1 sets out a sustainable development strategy.

14. Policy ENV9, amongst other things, expects proposals to respect the character and appearance, existing landforms and natural features, and the scale and proportion of existing buildings.

15. Policy ENV10 is concerned with landscaping proposals for all new developments and states that development will not be approved unless adequate provision is made for landscaping.

16. Policy LC1 seeks to protect existing green space across the Borough from unnecessary development.

17. Policy LC4 states that new and extended community facilities will be granted planning permission provided that there is a demonstrable local need, that it would not adversely affect viability and vitality of a shopping centre, and that there would be no unacceptable effect on the amenity of adjoining dwellinghouses.

18. Policy LC5 is associated with the dual use of educational facilities, and states that permission will be granted for this unless the use would have an adverse impact on the educational use of the facility, and would have an excessive adverse impact on the character of the area or the amenity of nearby residential and other properties.

19. Policy T3 is concerned with the traffic implications of development. Permission will only be granted if the proposal would not exacerbate road congestion; cause safety problems; or be likely to cause demonstrable harm to the quality of the environment.

20. Policy T8 requires developments to take into account the needs of pedestrians and cyclists and stresses the need to promote walking and cycling.

21. Policy T13 is concerned with parking, stating that developments will only be permitted where the proposed parking provision is necessary and does not exceed the approved maximum standards set out in the Local Plan.

22. Policy U3 states that all proposals for new buildings totalling 1000 sq. metres floor space or more will be required to incorporate renewable power generation equipment to provide at least 10% of the predicted energy requirements of those buildings, unless it can be demonstrated that there are overwhelming practicable reasons why this is not appropriate.

23. Policy IMP1 is concerned with the level of financial contributions provided by developments and must be read in conjunction with the Supplementary Planning Document on Planning Obligations which assess what planning obligations should be sought from development.

Consultation Responses

24. LBC Highways Authority: Advises that the predicted increase in numbers generated by the development is unlikely to have a significant impact on the immediate highway, as a result of there being no through traffic. It is advised that the school be encouraged to produce an active travel plan and would like to see monitoring and development of that plan to continue in the future. In order to promote sustainable travel to the site, further improvements to the surrounding path network are put forward, which should be secured via S106 Agreement.

25. LBC Education: Is supportive of the proposed development as it will provide additional school places, which are desperately required in the town.

26. LBC Environmental Protection: Has provided advice on noise and lighting associated with the development, the potential need for extraction equipment, an assessment of plant and potential contamination issues. Conditions have been requested should planning permission be granted.

27. LBC Environmental Assessment: No response has been received. Any comments made will be reported at the Meeting.

28. LBC Strategic Planning: Has made no comments on the principle of the development, but given that education use will remain on site, the use will have no conflict with policy allocations of the site. Detailed ecology comments have been provided, and suggestions provided will be included in the final landscaping specification that will be provided.

29. LBC Fixed Assets: No response has been received. Any comments made will be reported at the Meeting.

30. LBC Parks: No response has been received. Any comments made will be reported at the Meeting.

31. LBC Museums Service: No response has been received. Any comments made will be reported at the Meeting.

32. LBC Waste Management: No response has been received. Any comments made will be reported at the Meeting.

33. Beds County Archaeologists: Advises that if the Council is minded to approve, then a condition is recommended to be attached to any permission that is granted which will require a written scheme of archaeological investigation to be submitted for consideration.

34. Sport England: Has no objection to the proposed development subject to the imposition of conditions should planning permission be granted.

35. Environment Agency: Has raised no objection to the proposed development subject to a condition being imposed on any permission that is granted.

36. Police Architectural Liaison Officer: Following the submission of further information concerning the incorporation of Secured by Design Schools principles, no objection is raised to the proposed development.

37. Thames Water: Informative advice has been provided and no objections have been raised to the proposed development.

38. Affinity Water: No response has been received. Any comments made will be reported at the Meeting.

39. Luton Fire Officer: Has requested the installation of fire sprinklers within the building in line with the relevant code of practice for fire safety in schools.

40. CABE: No response has been received. Any comments made will be reported at the Meeting.

41. The Woodland Trust: No response has been received. Any comments made will be reported at the Meeting.

42. EDF Energy: No response has been received. Any comments made will be reported at the Meeting.

43. Statutory Publicity: The application has been notified to 226 adjoining occupiers and site and press notices have been issued. Representations have been received from 35 different households surrounding the site objecting to the development in addition to a petition containing 323 signatures. The reasons for the objections relate to the following issues:

 The siting of the school buildings  The layout of the school buildings (in particular the location of the sports hall, dining area, kitchen, music rooms, theatre)  Increased traffic and congestion  Parking  Additional community use of the facilities on site  Impact on neighbours by reason of height, scale and mass  Overbearing impact of development  Overshadowing/loss of light  Overlooking/loss of privacy  Increased noise and pollution  Removal of trees  Loss of outlook and visual intrusion  Location of external construction area  Location of external bin stores and service area  Increased potential for vermin  Impact on water pressure

MAIN PLANNING CONSIDERATIONS

44. The main planning considerations are the issues relating to the need for the new facility, the layout of the development and its impact on the street scene and adjoining occupiers, landscaping, design and impact on parking and highways. Acceptability of the proposed decant accommodation is also a consideration.

Need for the development

45. The Council’s Children and Learning Service has indicated that the need for the development is vital on two separate counts. Firstly Stopsley High School is in need of significant investment to create an acceptable modern learning environment. The existing facility was a post-war development with a life-span of 50 years, which is now in need of significant modernisation or redevelopment;

46. Secondly the Council faces a significant challenge in meeting its statutory duty to provide sufficient secondary school places for its pupil population. Between 2007 and 2014, 21.5 permanent forms of entry have been created in the primary sector; this will translate into 4,515 additional school places across the seven year groups and will represent a 26% increase in mainstream primary school places. The expansion of school places now needs to be replicated in the secondary sector. Even with the planned expansion created by this current proposal, the projections for 2014 to 2019 show that the Council needs to create nine permanent forms of entry, which equates to 1350 places across five year groups. On top of this the pupil projections for 2020 to 2024 indicate that there will be a need to further increase the number of secondary school places by an additional three permanent forms of entry.

47. Children and Learning considers the expansion of Stopsley High School as being essential as its three primary feeder schools have already been expanded; each by an additional 210 places. Additional local school places will therefore be required when these pupils move into the secondary sector and failure to expand the school will exacerbate the challenge the Council already faces in securing additional secondary places.

48. Local Plan Policy LC4 is supportive of new community facilities (which includes schools) provided that there is no unacceptable effect on residential amenity and the NPPF attaches great weight to the need to create, expand or alter schools, with the Government attaching great importance to ensuring that a sufficient choice of school places is available to meet the needs of existing communities.

Layout

49. The existing school buildings are positioned centrally on the site and for the most part are offset from all the surrounding boundaries. The redevelopment involves the whole site, and following investigation into available locations the decision has been made to move the building to the east of the current buildings, running parallel with the boundary of properties located in Mixes Hill Road. The buildings will be 3 storeys in height on their designated front side, with a lower scale of 1, 1.5 and 2 storey heights to the rear blocks closest to residential properties. In early discussions concerning proximity to neighbouring properties in Mixes Hill Road, a distance of 50 metres from the dwellinghouses was discussed as being appropriate in principle, provided that the elevations were broken up and the building’s bulk was reduced. This is a general distance, which is seen across the borough at numerous other schools and allows a good level of space to be maintained between properties. For the most part, this advisory line has been adhered to, although there is a slight encroachment onto that distance at the centre of the new building, where a 1.5 storey building comes to within 45 metres. At the northern end of the site, a 3 storey stair core comes to within 30 metres of the boundary of 79 St Thomas’s Road, but the building will be offset from a direct line with this property and its mass and bulk are reduced when viewed from Mixes Hill Road. Therefore the reduction in the 50 metre restriction was not considered essential in this location. Nevertheless original plans indicated a distance of approximately 20 metres from the boundary of this property, which would have resulted in undue detriment. The plans were amended accordingly to increase the distance to the 30 metres now proposed at the closest point.

50. Two main factors were considered essential when considering the location of the new buildings; firstly, the development had to, as much as possible, occur off the footprint of the existing school buildings. This would allow for the existing curriculum to continue with limited disruption and would limit the amount of temporary de-cant accommodation that would be required (which proves quite costly (to the detriment of the overall redevelopment)); secondly safeguarding and security of the site is essential. An accompanying document in support of the application indicates that the proximity of the building’s main entrance to the main entrance gate is an important factor in the success of any management strategy. To further emphasise on this it is stated that allowing a visitor to access the site, park their car and enter the visitor’s reception directly, without having to pass through teaching or recreation space, makes it much easier for the school to manage the security of the site.

51. Five different options were explored for the location of the new buildings before deciding that the one selected appears to be the only realistic option that can be carried forward successfully. This has resulted in a number of representations being received including 13 from occupiers of properties backing on to the site in Mixes Hill Road, concerned that the development will result in detriment to the living environment currently experienced. A list of the concerns raised is included at paragraph 43, and an appraisal of the impact on adjoining occupiers is included in the relevant sub-section below. Of relevance to this sub-section is that resident’s feel the development will be too close to the properties and have questioned why the development cannot occur to the south of the site, on the existing playing fields. This location was explored but was not considered appropriate to take forward due to the disruption that would occur to the school curriculum (the loss of the playing fields during construction period (considered essential to a designated Specialist Sports College)) and more so the child protection concerns arising as a result of the distances involved in providing an access from St Thomas’s Road to the location of the development on the opposite side of the site, making security and visitor management difficult.

52. The chosen location will enable the new buildings to be erected with minimal demolition required to the existing school, and will allow for the school’s curriculum to continue in full. Once the proposed building is completed, the school can re-locate, allowing the existing buildings to be demolished. The playing fields away to the south of the site will remain in- tact, and will benefit from long-term qualitative improvements. It will also allow for clear separation to be provided between the parking areas (where visitors will arrive) and the teaching spaces and a short distance between the site access, the car park and the building’s entrance

53. With respect to the external layout to the front of the building and to the north-western extent of the site, this will be car parking and a new grassed sports pitch, whilst closer to the school will be part of the access road into the site, a Multi-Use Games Area and a socialising space. Existing playing fields to the south will be retained and to the rear of the school buildings will be a service area, external construction bays and allotment and sensory gardens.

54. Internally the school will have a main pupil entrance that is centrally located with a single central corridor leading off each side and into the two buildings. Laid out over single, two and three stories the majority of single teaching classrooms are located to the front of the buildings, with the more expressive classes (Gym/Learning Resource Centre/Drama/Hall) and functional areas (kitchens/plant/workshops etc) located to the rear.

Street Scene Impact

55. The relocation of the school buildings to the eastern side of the site will open the site up considerably, with the proposals for the western side being largely surface development (car-park/playing pitches etc). The buildings will be visible from the western end of St Thomas’s Road but their presence from public vantage points to the north and east will be reduced as they recess back into the site. The school will utilise the existing main access point from St Thomas’s Road and the entrance to the school will be clearly visible on entry for all visitors to the site.

56. The scale of the buildings and their general mass will be increased from the current situation, but this will enable the redevelopment to utilise the land more efficiently by creating a bigger facility on a reduced footprint. Furthermore the 3 storey height of the front part of the school is not radically out of keeping with the general character of the area.

57. Extensive landscaping is proposed across the site area (discussed in further detail in the landscaping sub-section), to compliment existing features to be retained (including a group of memorial trees near to the site entrance). The improved landscaping proposals and reconfiguration of the site, together with the replacement of the existing more tired buildings with a newer development will ensure that the street scene will be improved by the development.

Impact on the Adjoining Occupiers

58. The re-siting of the buildings adjacent to residential gardens will inevitably have some impact on the existing residents, but consideration has to be given to how detrimental that impact will be. The buildings have been designed at an angle in order to achieve as greater-a-distance away from residential properties as the site will allow without encroaching onto the footprint of the existing school.

59. The new school buildings will have an overall width of approximately 180 metres from one end to the other, and given the built form will move closer to the boundary with Mixes Hill Road, it will result in significant changes to the outlook from neighbouring properties in this street. In addition, whilst not enduring the same width, the building will move to within 30 metres of the boundary with 79 St. Thomas’s Road. In order to reduce the bulk, mass and appearance of the school buildings to the rear, they have been designed to achieve a sympathetic relationship with adjoining occupiers by breaking the elements up into almost single clusters, incorporating different heights and materials finishes

60. In addition to the elevations being broken up, significant tree planting is proposed to the rear of the school, which will assist in softening the impact of the development. Many of the gardens in Mixes Hill Road have the benefit of existing greenery (trees/hedges), which will play a role in screening parts of the development to some degree. The applicant has also agreed to install a solid close-boarded fence along the length of the boundary adjoining Mixes Hill Road between the gardens of 7 to 47. It has to be acknowledged that the existing outlook from residential properties neighbouring the site is subject to change from the current situation, but on balance the design and broken mass of the buildings together with the anticipated screening by virtue of the proposed landscaping, will ensure that the development is not visually intrusive to an significantly adverse degree

61. As previously mentioned, the internal layout of the school has been carefully designed to ensure that the 3-storey element of the buildings bulk of the building and majority of singular classroom cells are located to look out over the frontage in order to avoid any significant levels of overlooking. Nevertheless there will be windows to the rear of the buildings serving music rooms (at the northern end of the building) and classrooms located in a three storey central core, which have the potential to overlook gardens. However at 38 to 40 metres (approx) to the boundary (and 55 to 60 metres to the actual dwellings) the distances involved are significant. The Local Plan advises back-to-back distances between residential developments of 21.3 metres and in this instance the distances are almost 3 times that advisory separation. Whilst there will be some level of overlooking, the distances involved are considered to reduce the impact on neighbours enjoyment of their gardens, and further, as the windows involved serve classroom spaces, any level of overlooking will only occur during school hours. New tree planting will be strategically positioned to further assist in this respect. There is only a single floor-to-ceiling window in the northern elevation of the building, but this serves a void space and as a result the occupiers of 79 St. Thomas’s Road will not experience any levels of overlooking from the new building.

62. Another concern raised by adjoining occupiers is that the dwellings adjoining the site will suffer from a loss of light and overshadowing by reason of the proximity of the proposed school buildings. As part of the supporting information the applicant submitted a shadow analysis, which provides an indication of the shadows that will be cast at 9am, 12pm and 6pm during the summer months and 9am, 12pm and 3pm during the winter months. It is clear that between the hours of 9am-6pm during the summer there will be no shadow encroachment onto any adjacent properties from the new buildings, but during the end of the day as the sun lowers, it will fall behind the school buildings by reason of its western orientation to Mixes hill Road. During the hours of 9am-3pm during winter months there will be only a slight encroachment onto the garden of 79 St. Thomas’s Road, with the sun setting around 1 hour later. In light of this, the adjoining occupiers will remain free from overshadowing for the majority of the day, with the exception being the period of light during the very last part of the day.

63. Noise is a consistent concern raised in the letters of representation received, particularly from those located to the northern end of the site that will be in closer proximity to the service yard, external teaching spaces and music and drama facilities. At 18 metres away from the boundary with 79 St Thomas’s Road the service yard access road is an acceptable distance away to ensure that vehicles using the road are not right on top of the property here and the brick wall boundary treatment will reduce the noise and activity experienced in the garden. The bin stores are positioned an equal distance from properties in St Thomas Road (29 metres away) and Mixes Hill Road (27 metres away), which again are more than suitable distances away to avoid any significant impact occurring on neighbours. It is considered that by the very nature of the use on site, some noise should be expected to emanate to the surrounding area during the typical school day, but nevertheless it may be prudent to secure details of the servicing of the school via suitable condition. The installation of a solid boundary treatment to properties in Mixes Hill Road will also assist in reducing noise pollution from this particular area.

64. The applicant has indicated that the external teaching spaces will predominantly facilitate the demonstration and teaching of bricklaying, which isn’t an activity of significant anti-social noise generation. Furthermore the use of the internal and external teaching spaces will again, only be utilised during a typical school day where some noise generation is to be expected. Therefore these areas are not considered to result in a significant level of activity during the day and will have no impact on adjoining occupiers during more unsociable hours.

65. The provision of new facilities at the school will enable a continuation of community use on site. The external sports pitches, gymnasium and school hall will be available for use by the public, which will attract additional activity beyond the normal school day. The area is already quite busy by virtue of the playfootball.com facility, use of the school for community use and area committees and local religious uses and up until a few years ago, the presence of the regional sports centre. Nevertheless the majority of community uses will be located either within the buildings themselves or on the opposite side of the buildings, resulting in them providing some level of barrier to the noise generated. Notwithstanding that community use is encouraged in such buildings, a condition is considered necessary to restrict the hours of use for community activities.

Landscaping

66. A comprehensive landscaping scheme has accompanied the application documents, which identifies new areas of hard and soft landscaping to include an external welcome plaza, dining and socialising spaces, sensory and allotment gardens together with new and upgraded playing fields and the MUGA. The proposals put forward will create a setting that is of a high quality, which will benefit the learning environment.

67. The soft landscaping proposals indicate areas of native shrub and wild meadow planting to be erected around the perimeter of the site, which will be accompanied through the planting of approximately 130 new trees (mix of beech, birch, crab apple, hornbeam, lime and oak). The new tree planting is extensive and will compensate for the loss of 5 individual specimens and a group of Western Red Cedars, which are to be removed either because of their poor health, or necessary due to their position on the site with respect to the redevelopment proposals. The trees will take some time to establish, but when grown will provide good attractive tree coverage across the whole site. The development is going to include Sustainable Urban Drainage Systems (SUDS) to reduce water run-off and flooding occurring on the site, and the accompanying Flood Risk Assessment indicates that this will be incorporated through the use of dry detention areas and swales throughout the site, permeable and porous hard standing areas.

68. As well as the external dining and socialising spaces, the hard landscaping areas will define a network of pedestrian and vehicular links that will assist in pupil and visitor permeability around the site.

69. The school is a specialist sports college and the redevelopment will increase and improve the provision of sports both internally and externally. In addition to the existing playing fields to the rear of the site, there will be a net increase of some 9,000sq. metres of new playing fields created, which will be large enough to accommodate a senior-sized football pitch. In addition the existing 2-court MUGA is to be replaced and relocated with a 4-court offer with improved surface. Internally a new sports hall will be complemented by an activity studio as well as an improved changing facility. Sport England has raised no objection to the proposals and recognises the long-term improvements that will be offered, not only to pupils studying at the facility but also to the local community. Conditions have been requested in connection with the full reinstatement of the playing fields following construction, assessing existing ground constraints and a scheme for addressing those constraints and the completion of a suitable Community Use Agreement.

70. A Preliminary Ecology Appraisal and a Bat Scoping report have accompanied the application documents, which investigate the value of the land with respect to natural features in and around the site boundaries. The reports find that the site has low ecological value but that some further survey work should be carried out prior to demolition of buildings to evaluate whether they are being utilised by bats. Whilst some comments have been made about the selected planting mix, which are subject to ongoing discussions, the Council’s Ecologist has commented that the scheme is unlikely to impact greatly on the existing ecology of the site or the wider area.

71. The County Archaeologist has advised that the application site is of archaeological interest with the medieval manor of Stopsley being identified in the northeast part of the site. The information submitted in connection with this currently does not contain sufficient information on the heritage assets with archaeological interest. Notwithstanding this the applicant is in continued communication with the County Archaeologist about potential testing methods that will be required and, should planning permission be granted then it is essential that a relevant condition linked to this matter be included on any decision notice that is issued. The condition is recommended in the response from the County Archaeologist and would ensure that the objectives of para. 128 (and Chapter 12) of the NPPF are followed.

Design

72. The need to have classrooms located to the frontage results in the front elevation of both buildings being dominated by window openings. This would normally have the potential to appear quite bland and monotonous so to overcome this, various features are incorporated in the design approach. The window openings are not uniform in position or size, which creates an effective random pattern and they are broken up in places by the use of coloured render link panels. The differing angles of the buildings caused by the central split emphasises the impression of separate forms assisted further by a range of materials. One building is to be finished in a buff facing brick, whilst the other will be in a contrasting red brick and the central reception block and the stair cores at each end will incorporate coloured cladding panels. Whilst the approach taken is relatively simple, the design features to break up its appearance are effective and acceptable.

73. As referred to previously in the report, much attention has been given to the design of the rear elevation of the building in order to break up its appearance and subsequently its impact on neighbouring properties. This is achieved through the increased use of render and cladding, with brickwork carried through only into a central teaching core and the third storey level set back from the elevation frontage. Fewer window openings are included and building elements are lower in height.

74. The building exceeds 1,000sq.metres in floorspace and therefore a requirement exists for 10% of its future energy use to come from a renewable source. The application indicates that solar-panels will be mounted to the roof, although there is no supporting evidence concerning their performance in order to confirm that they meet the requirements of Policy U3. Nevertheless this can be secured through the imposition of a suitable condition should permission be granted. As well as using energy from renewable sources, the buildings have been designed to use less energy and increase energy efficiency, in order to meet targets set out by the EFA in their brief for the PSBP.

75. Security is a key issue surrounding the school, which has been mentioned in previous sections of this report. As well as the layout of the site being influenced by the need to create a secure facility other security measures will be incorporated into the design. Externally there is a single point of vehicular access into the site and other, controlled pedestrian entrances, with good sight-lines to all. It is intended that the existing palisade fences enclosing the site will be retained and made good where necessary. External lighting will be installed, which in line with the energy strategy will be photocell and time clock controlled so that it only comes on when required and minimises light pollution and disturbance to adjoining occupiers. Internally the layout of the building can be controlled and set up so that during out of school hours and for community use, only the relevant spaces are accessible by the user. The overall design will incorporate the principles of Secured by Design Schools, which has resulted in no objections being raised by Bedfordshire Police.

Parking and other Highways Implications

76. The proposed redevelopment of the site will see the traffic arrangements around the school largely retained, albeit subject to significant upgrades. The single point of vehicular access into the school will remain in the same place, with the drop-off area outside of the site being retained for parents use. Three pedestrian accesses (shared walking/cycle) will also be retained, these being from Mixes Hill Road to the southeast, St Thomas’s Road/Bradgers Hill Road to the north and the main pedestrian entrance from St Thomas’s Road adjacent to the vehicular access. Secure gates will be in place, which can be suitably controlled at the start and end of the school day to prevent casual intrusion into the site.

77. The proposed development will see the creation of a new surface car park, which will be located to the north-western edge of the site. The car park will provide a total of 194 spaces including 10 designated disabled spaces and 4 visitor spaces. The increase in parking is required to meet the needs of the school where staff numbers will increase from 135 to 179, and the provision is just short of 1 space-per-staff member. The supply of space exceeds the guidance contained within the Luton Local Plan but when considering that the facility will also be available to the community, an oversupply of parking is seen as acceptable as it will limit any overspill parking on to the surrounding street network

78. As is common at all education facilities in the town, the highways surrounding the school experience some levels of congestion around peak times at the start and end of the school day and existing school traffic and parking problems were investigated as part of an area study scheme back in 2012. The conclusions of that investigation found that all that could have been done to deal with the problems had been undertaken and that there were no further measures that could be identified. St. Thomas’s Road has recently been resurfaced and the existing traffic calming features have been renewed. It is also subject to a 20mph restriction.

79. The Local Highway Authority has inspected the submitted Transport Statement and has taken the view that the predicted increase in both staff and pupil numbers is unlikely to have a significant impact on conditions given that there is no through traffic from St Thomas’s Road into Bradgers Hill Road. The Highways Authority is also satisfied that as expansion in numbers and staff will occur over a number of years, there will be opportunities to monitor the conditions of the highways over time, in order to assess if anything further needs to be done to mitigate any problems arising.

80. The school already has an active and relatively successful Travel Plan that encourages more sustainable transport modes with a survey undertaking early this year demonstrating that a high proportion of pupils walk to school (70%) and a higher than average number cycle or scoot (8%). Up to 105 secure cycle spaces will be provided in full view of the school as part of the proposals, which will be available to staff, pupils and visitors to the site. There will also be some capacity available for additional areas of cycle parking should future demand arise.

81. In order to encourage a greater proportion of sustainable trips, further measures are proposed and these measures will also be aimed at discouraging more parents and teachers from using their cars. These measures will include the following:

 Continuing development of the Travel Plan including revised targets and regular monitoring  Amendments to the drop off/pick up area to provide more space and improved pedestrian facilities  Improvements to the walking and cycling infrastructure in the vicinity of the school as follows: o Conversion of the footpath between Sunningdale and Mixes Hill Road to shared use o Conversion of the footpath between Mixes Hill Road and St Thomas’s Road to shared use o Upgrade of the footway on the south side of St Thomas’s Road between the school and the footpath to Mixes Hill Road  Details of the proposed cycle parking facilities to be submitted for approval

82. The impact of the anticipated increased capacity on the surrounding highway network is considered to be acceptable and it is encouraging that the school is both active in promoting sustainable travel amongst staff and pupils and committed to evolving and strengthening the existing travel plan further.

Decant Accommodation

83. The decant accommodation that has been submitted for consideration is required as a result of the level of demolition required to the southeastern end of the school to make way for the new building. The accommodation will be a two storey block of stacked temporary buildings measuring 30 metres by 24 metres and will stand at a total height of 6 metres. The accommodation will be located at the front of the school site adjacent to the site entrance and a proportion of the proposed car park will be constructed early in order to provide a suitable base on which to locate the accommodation.

84. The building will be visible from the surrounding area but is of no particular architectural merit. However as it will only be required for a temporary period of time (the duration of the build process (until Sept/Oct 2016)) and will facilitate the long-term redevelopment of the overall site it is considered, on-balance, to be acceptable. At approximately 75 metres away, the building is anticipated to have no impact on the adjoining occupiers of the site.

CONCLUSIONS

85. The need for the additional accommodation is overwhelming in order to meet the projected growth of pupil numbers not only in the immediate area, but across the wider town also. Failure to provide the required school places could see the Council failing in its statutory duty to provide pupils with a school place within the town in which they live.

86. The layout of the development and its appearance and impact on the street scene are considered to be acceptable and whilst there will be some inevitable impact occurring on the residential amenity of the occupiers of adjoining dwellinghouses, the foregoing assessment takes the view that the impact occurring is not considered to be unacceptable.

87. Suitable traffic calming measures have already taken place in the area and further improvements have been put forward by the Local highways Authority that will add to these improvements. The existing travel plan is a successful document and the Highway Authority has concluded that the impact of the anticipated increase in staff and pupil on existing highway capacity will be acceptable.

88. In light of the foregoing the provision of the new school building, together with increased capacity is considered to be acceptable and therefore the application is recommended for approval.

LIST OF BACKGROUND PAPERS LOCAL GOVERNMENT ACT 1972, SECTION 100D

89. Luton Local Plan 2001–2011.

90. National Planning Policy Framework (NPPF).

91. National Planning Practice Guidance (NPPG).