Planning StatementReport
GVA 3 Brindleyplace
Birmingham B1 2JB
Army Basing Programme
Garrison ‘Priority Works’ – Perham Down ‘Paired’ Mess December 2014
gva.co.uk
Defence Infrastructure Organisation Planning Statement
CONTENTS
1. Introduction ...... 1 2. The Application Site and Surroundings ...... 5 3. The Proposed Development ...... 7 4. Relevant Planning Policy ...... 9 5. Key Planning Issues ...... 16 6. Conclusion ...... 25
Appendices
Appendix I Wiltshire Council EIA Screening Opinion Appendix II LVIA Viewpoints
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Defence Infrastructure Organisation Planning Statement
1. Introduction
1.1 This Planning Statement has been prepared by GVA for Aspire Defence Capital Works (‘Aspire’) in conjunction with the Defence Infrastructure Organisation (‘DIO’) on behalf of the Secretary of State for Defence (‘the applicant’). Its purpose is to set out the planning case in support of a detailed planning application for a new ‘Paired’ Mess (‘the Proposed Development’) at Swinton Barracks, Perham Down.
Background
1.2 In March 2013, the Secretary of State for Defence announced the Regular Army Basing Plan. This set out the future laydown of Army units in the UK consistent with the Army 2020 (‘A2020’) future operating model, and also confirmed the drawdown of all units from Germany by 2020.
1.3 The Plan has since transitioned into a delivery programme known as the Army Basing Programme (‘ABP’). This will affect most areas of the Army, as more than 100 units will either relocate, re-role, convert or disband over the next six years. It is therefore critical to UK Defence.
1.4 As part of the relocation of units, around 4,300 extra Service personnel and their families will be relocated to Salisbury Plain Training Area (‘SPTA’) between now and 2020. To support this move, there is a need for significant investment in the MoD estate to provide new and refurbished facilities to support the units, service personnel and their families.
1.5 DIO has been liaising closely with Wiltshire Council since mid-2012 on preparing and planning for the increase in unit numbers and associated unit moves. This has culminated in the preparation of the Salisbury Plain Masterplan (‘the Masterplan’), which establishes the constraints and opportunities for new development, as well as providing an overview of where development will take place and the additional infrastructure that is needed.
1.6 The statutory bodies and other relevant stakeholders have been consulted at every stage of the Masterplan’s preparation, and a series of public consultation events
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have also been held. In October 2014, Wiltshire Council’s Strategic Planning Committee confirmed that the completed Masterplan is a material consideration in the determination of subsequent planning applications, such as this one.
1.7 This application is one of a first tranche of applications pursuant to the Masterplan, which seek to secure planning permission for a series of ‘Priority Works’ necessary to facilitate a number of early unit moves and in-situ re-roles, and thus achieve the overall ABP delivery programme. Subsequent apllications will be made for the balance of the ABP development.
Land Ownership
1.8 The application site comprises a single parcel of land straddling the current northern boundary of Swinton Barracks, which is outlined in red on the submitted Site Location Plan. The total application site area is just under 1 hectare.
1.9 All of the land comprising the application site is entirely within the ownership of the applicant. Accordingly, Certificate A has been completed.
Form and Content of the Application
1.10 The application is submitted in detailed form and, in addition to this Planning Statement, comprises the following:
Duly completed application forms and certificate;
Design and Access Statement;
Arboricultural Method Statement; and
Application plans, including:
- Site Location Plan
- Existing Site Plan;
- Proposed Site Plan
- Proposed Elevations;
- Proposed Floor Plans;
- Proposed Roof Plans; and
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- Levels Information.
Environmental Impact Assessment
1.11 The application has previously been ‘Screened’ under the Town and Country Planning (Environmental Impact Assessment) Regulations 2011. A copy of the Council’s formal Screening Opinion is provided at Appendix I. This concludes that the ‘Priority Works’ at Swinton Barracks, including the Proposed Development, do not constitute EIA development. An Environmental Statement has not therefore been submitted in support of this application.
Consultation
1.12 The Proposed Development is consistent with the Masterplan, which was subject to extensive stakeholder and public consultation throughout its preparation, including:
Regular engagement with Wiltshire Council;
Early engagement with statutory bodies and key stakeholders, having particular regard to the sensitive environmental context of the SPTA;
Initial public consultation on the scope of the Masterplan (Nov-Dec 2013); and
Formal public consultation through a series of exhibitions and the provision of information through the gov.uk and Wiltshire Council websites (Feb-Mar 2014).
1.13 Accordingly, it has been agreed with Wiltshire Council that there is no requirement for additional pre-application public consultation in respect of this application.
Report Structure
1.14 Following this introduction, the remainder of the Planning Statement is structured as follows:
Section 2 describes the application site and its surroundings;
Section 3 provides a description of the Proposed Development;
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Section 4 summarises the relevant planning policy framework;
Section 5 considers the planning issues raised by the Proposed Development; and
Section 6 highlights the reasons why planning permission should be granted.
Contacts
1.15 Should you require any further information, please contact:
Nick Harrison Director T 0121 609 8722 E [email protected]
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2. The Application Site and Surroundings
Location
2.1 SPTA is the largest military training area in the UK and consists of around 390 square km of land owned by the MoD. The Plain is a protected habitat of international value and renowned as an historic landscape with many designated heritage assets. The area in and around Salisbury Plain hosts a number of military camps, including Warminster, Bulford, Tidworth, Upavon, Larkhill and Perham Down.
2.2 Swinton Barracks is situated on the eastern edge of the SPTA approximately 2.8km east of Tidworth and 3km south west of Ludgershall. The Camp covers an area of approximately 35.1 hectares, and is accessed from Tidworth Road, which bisects the site east to west. It comprises a mix of living, office, technical and training accommodation, together with other ancillary buildings, hardstanding, parking and sports facilities.
2.3 The application site comprises a single parcel of land straddling the northern boundary of the Barracks, which has been used as a military establishment since 1899, when it was initially a temporary military camp. The first permanent military structures were constructed in 1915, and in recent years the site has been substantially redeveloped and modernised under the Project Allenby Connaught (PAC) PFI.
Surroundings
2.4 Swinton Barracks is bounded to the north and west by the site of the former Fowler and Busigny Barracks (demolished in 1982), and to the south and east by existing MoD Service Families Accommodation (SFA). Otherwise the site does not adjoin any wider built-up area.
2.5 The Camp lies within the sensitive landscape of Salisbury Plain. This is a predominantly rural setting, comprising a mix of high quality arable and pastoral agricultural fields to the north and east; and rough downland calcareous grassland to the west and south.
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2.6 The North Wessex Downs AONB lies to the north and east, just over 2kms from the Camp’s northern boundary.
2.7 Substantial areas of woodland exist to the north of the camp at Collingbourne Wood and to the south at Furze Hill. Other notable areas include the woodland belt aligning with the western boundary of the Camp (which screens views from Lambdown Terrace) and the strand of planting to the northeast near Somme Road.
2.8 The mature trees and mixed woodland plantations in proximity to the Camp combine to create a strong landscape framework, and it is enclosed by a ridge to the west made up of a series of hills (including Windmillhill Down, Pickpit Hill, Furze Hill and Warren Hill).
Existing Site Conditions
2.9 In constrast with its surroundings, the Camp is largely enclosed and compact, and heavily characterised by the existing built development of significant scale.
2.10 The application site straddles the current northern boundary of Swinton Barracks. It comprises part of a ‘backdoor’ training area consisting of open scrub land crossed by vehicle tracks, and is bounded:
To the north and east by further ‘backdoor’ training area; and
To the south and west by the existing development within Swinton Barracks.
2.11 The application site lies entirely within the Chute Forest (KDLCA_6) Landscape Character Area, which is summarised in the Kennet District Landscape Assessment as:
“A block of chalk upland landscape which forms the eastern end of Salisbury Plain and is defined to the west by the Bourne Valley, to the north by a steep north-facing scarp and to the east and south by the District boundary… Extensive areas of woodland and a dense network of hedgerows and trees… distinguish this area from the more open landscape of the Plain. …Military activity is much less conspicuous in this area and is largely confined to the south-western corner around the settlements of Ludgershall and Tidworth.”
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3. The Proposed Development
3.1 This application seeks planning permission for new ‘Paired’ Mess at Swinton Barracks, in order to facilitate early unit moves and in-situ re-roles forming part of the ABP. An overview of the Proposed Development is provided below. Further information is provided in the submitted application plans and Design and Access Statement.
Layout
3.2 The Proposed Development comprises a shared kitchen with separate dining and public rooms for Officers and SNCOs, each with their own entrance (to the north and south). A bin store and empties store are located within the service area to the rear (west) of the proposed Mess. Cycle parking is provided at the building entrances and adjacent to the service area. The grounds surrounding the proposed Mess will be landscaped to provide semi-private garden space.
Scale
3.3 The proposed Mess building will provide single storey accommodation, but stands approximately 7.5m above ground at its highest point. The total floorspace proposed is 2,018 sqm (GEA).
Appearance
3.4 The external appearance of the Proposed Development is consistent with the existing Mess to the south, comprising a facing brickwork plinth with rendered band above incorporating the windows, and a tiled roof.
Landscaping
3.5 Specimen trees, hedges and ground cover are proposed around the Mess building, together with shrub planting to screen the bin store and empties store. The proposed access road will necessitate the formation of a cutting slope on its western side. This slope will be planted with a woodland edge mix.
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3.6 In addition, the established, mature woodland blocks to the south will remain substantially intact, save for removal of a few peripheral trees on the alignment of the proposed new access road. The existing belt of trees and scrub along the Somme Road frontage will also be retained. Further woodland planting is anticipated as part of the wider masterplanning for the Camp to augment these existing enclosing elements. A new block of woodland planting is also anticipated to the north, which will reinforce the containment of the building within the local woodland setting.
Access
3.7 The Proposed Development incorporates a new, 6m wide access road and associated footway connecting to the existing internal Barracks’ road network to the south. This will provide direct access to the service area and a formal drop-off point outside the southern entrance. Pedestrian routes are proposed which have regard to the likely desire lines of the buildings’ occupants. Paths will be at least 2m wide, and paving materials have been selected that are suitable for wheelchair users and ambulant disabled people.
3.8 Planning permission for a further formal drop-off point to the northern entrance, and car parking to serve the proposed Mess and associated Single Living Accommodation (SLA), will be sought under a separate application for the SLA.
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4. Relevant Planning Policy
4.1 Section 38(6) of the Planning and Compulsory Purchase Act 2004 states that planning applications should be determined in accordance with the statutory Development Plan unless material considerations indicate otherwise.
4.2 In this case, the statutory Development Plan is the Kennett Local Plan 2011.
The Development Plan
4.3 The Kennet Local Plan 2011 was adopted in June 2004, and is the statutory Development Plan for the east area of Wiltshire (formerly Kennet District). In September 2007, the Secretary of State issued a direction that certain policies of the Local Plan could be ‘saved’ to inform decisions on planning applications. These policies remain relevant pending the adoption of the emerging Wiltshire Core Strategy.
4.4 Perham Down lies within an area defined as ‘countryside’ where Policy NR6 restricts development unless it is permitted by other policies of the Local Plan or is demonstrated to be of benefit to either the rural economy or the social well-being of the local community. There are no site-specific policies for the Camp, or policies relating specifically to military development. However, general development management policies of relevance are:
Policy PD1, which seeks to ensure that new development is of a high standard and maintains or enhances the character, appearance and environmental quality of the surrounding area;
Policy AT1, which establishes a list of transport related criteria that all development proposals should address, where appropriate;
Policy NR3, which seeks to protect local nature sites from the adverse effects of development, including Areas of High Ecological Value, Local Nature Reserves, Sites of Nature Conservation Importance, Regionally Important Geological / Geomorphological Sites, or habitats / species targeted in local or national Biodiversity Action Plans.
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Policy NR7, which states that development that is likely to have a significant adverse effect upon the landscape will not be permitted; and
Policy HH1, which states that planning permission will not be granted for development which would have an adverse impact on archaeological deposits of national importance. Sites of significant regional or local importance are also protected.
National Planning Policy
4.5 The National Planning Policy Framework (NPPF) sets out the Government’s planning policies for England and how they are expected to be applied by local planning authorities. The policies contained within the NPPF are a material consideration in the determination of planning applications.
4.6 The purpose of the planning system is defined in the NPPF as being to contribute to the achievement of sustainable development (paragraph 6), which is identified as having 3 dimensions – economic, social and environmental (paragraph 7).
4.7 Whilst the NPPF does not change the statutory status of the Development Plan as the starting point for decision-making, it does establish a presumption in favour of sustainable development (paragraph 14). For decision-taking this means:
Approving development proposals that accord with the development plan without delay; and
Where the development plan is absent, silent or relevant policies are out of date, granting permission, unless:
- Any adverse impacts of doing so would significantly and demonstrably outweigh the benefits, when assessed against the policies in the NPPF taken as a whole, or
- Specific policies in the NPPF indicate development should be restricted.
4.8 The NPPF (paragraph 17) also sets out a list of core land-use planning principles to underpin decisiontaking. Those of particular relevance to this application are:
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To make every effort to objectively identify and then meet the development needs of an area, and respond positively to wider opportunities for growth;
To always seek to secure high quality design and a good standard of amenity for all existing and future occupants of land and buildings;
To take account of the different roles and character of different areas;
To support the transition to a low carbon future in a changing climate, taking full account of flood risk, and encourage the reuse of existing resources, including the conversion of existing buildings, and encourage the use of renewable resources;
To contribute to conserving and enhancing the natural environment and reducing pollution;
To encourage the effective use of land by reusing land that has been previously developed (brownfield land), provided that it is not of high environmental value;
To promoted mixed use developments;
To conserve heritage assets in a manner appropriate to their significance, so that they can be enjoyed for their contribution to the quality of life of this and future generations; and
To actively manage patterns of growth to make the fullest possible use of public transport, walking and cycling, and focus significant development in locations which are or can be made sustainable.
4.9 Other policy themes in the NPPF that are relevant to this application include:
Ensuring that the planning system does everything it can to support sustainable economic growth and does not act as an impediment (paragraph 19);
Supporting a pattern of development which facilitates the use of sustainable modes of transport (paragraph 30);
Promoting a mix of uses in order to provide opportunities to undertake day-to-day activities including work on site (paragraph 38);
Achieving high quality and inclusive design for all development (paragraph 57);
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Ensuring that developments:
- Will function well and add to the overall quality of the area;
- Establish a strong sense of place;
- Optimise the potential of the site to accommodate development and create and sustain an appropriate mix of uses;
- Respond to local character and history, and reflect the identity of local surroundings and materials; and
- Are visually attractive as a result of good architecture and appropriate landscaping (paragraph 58);
Encouraging the effective use of land by re-using land that has been previously developed (brownfield land), provided that it is not of high environmental value (paragraph 111);
Aiming to conserve and enhance biodiversity, and adequately mitigating / compensating for any significant harm resulting from development, where that harm cannot be avoided (paragraph 118);
Ensuring that the site is suitable for its new use taking into account ground conditions (paragraph 121);
Avoiding noise giving rise to significant adverse impacts on health and quality of life as a result of new development (paragraph 123);
Applying great weight to the conservation of designated heritage assets (paragraph 132) and weighing any harm against the public benefits of the proposal (paragraph 134); and
Making a balanced judgement in weighing applications that affect non- designated heritage assets, having regard to the scale of the harm or loss and the significance of the heritage asset (paragraph 135).
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Other Material Considerations
Wiltshire Core Strategy
4.10 A new county-wide Core Strategy is currently at Examination. Once adopted this will replace the existing 4 district Local Plans covering Wiltshire.
4.11 Paragraph 216 of the NPPF states that weight may be given to relevant policies in emerging plans in decision-taking.
4.12 Accordingly, in determining this application, regard should be had to Core Policy 37 of the Core Strategy (Pre-Submission, February 2012). This states that:
“New development and changes of use at operational facilities that help enhance or sustain their operational capability will be supported.”
4.13 And that:
“Development at operational… sites should enhance the overall character of the site… mitigate any adverse impacts on local infrastructure, and not erode the character of the surrounding area. All proposals must ensure that the cultural and historical significance of the military facilities located on the site are understood and inform the scope of future development of that site.”
4.14 Other general development management policies of relevance are:
Policy CP50, which states that sustainable development will avoid direct and indirect impacts upon local conservation sites, and that damage or disturbance will generally be unacceptable. Development proposals affecting local sites must contribute to their favourable management in the long term, and demonstrate how they protect, and where possible enhance, features of nature conservation or geological value. Where such features cannot be retained, the ecological impacts should be mitigated as far as possible, and appropriate compensatory measures secured to ensure no net loss of biodiversity. All development should seek opportunities to enhance biodiversity. Once adopted, this policy will replace Policy NR3 in the Kennet Local Plan
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Policy CP57, which requires that all new development demonstrate a high standard of design and create a strong sense of place, drawing on the local context and being complementary to the locality. Once adopted, this policy will replace Policy PD1 in the Kennet Local Plan;
Policy CP58, which states that development should protect, conserve and where possible enhance the historic environment, and should not have an unacceptable impact on the significance of designated or other locally or regionally significant non-designated heritage assets. Once adopted, this policy will replace Policy HH1 in the Kennet Local Plan; and
Policies CP61 and CP62, which state that new development should be located and designed to reduce the need to travel and to encourage the use of sustainable travel alternatives, and that appropriate mitigation measures should be provided to offset any adverse impacts on the transport network. Once adopted, these policies will replace Policy AT1 in the Kennet Local Plan.
The Salisbury Plain Masterplan
4.15 The Salisbury Plan Masterplan was formally recognised by the Wiltshire Council Strategic Planning Committee on 30 July 2014 as a critical background document to be taken into account in the determination of subsequent planning applications.
4.16 The Masterplan establishes the scale and location of development necessary to deliver the ABP, both inside and outwith the Garrisons, and is supported by an Overarching Environmental Appraisal (OEA) prepared to EIA standards, which considers both the likely significant and cumulative effects of the whole ABP for Salisbury Plain. An Outline Transport Assessment (OTA) and Framework Travel Plan have also been prepared in support of the Masterplan.
4.17 In respect of the required development inside the Garrisons, the Masterplan identifies the need for new build and refurbishment works to provide, inter alia, :
Single Living Accommodation (SLA);
Mess accommodation;
Dining facilities;
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Offices;
Stores;
Garaging and workshops;
Education and training facilities;
Physical training and recreation facilities; and
Welfare facilities, including medical and dental centres.
4.18 Development zones are identified within each Garrison, together with details of the development proposed in each zone. This includes the broad land use category – living, technical, office / training, and welfare – the approximate number of buildings to be constructed, and proposed building heights within each zone. It also shows how the development zones relate to and reinforce the existing land use zoning that was established through PAC, and where demolitions are likely to be required.
4.19 This application for a new ‘Paired’ Mess at Perham Down is entirely consistent with the Masterplan, which identifies a zone of new build living accommodation, comprising a mix of 1 and 2 storey buildings, in the location of the application site. Accordingly, the impact of the Proposed Development has been assessed within the OEA and OTA.
Salisbury Plain SPA and SAC
4.20 Salisbury Plain is designated as both a Special Protection Area and Special Area of Conservation (SAC) under European legislation, notably for the populations of stone curlew and hen harrier, and for the chalk grassland habitat, one of the largest remaining areas of calcareous grassland in north-western Europe. Much of the natural environment is also protected through its designation as a Site of Special Scientific Interest (SSSI) for its populations of rare bumblebee species, and many rare birds, plants and invertebrates.
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5. Key Planning Issues
5.1 This Section considers the key planning issues raised by the development in order to demonstrate how the Proposed Development satisfies the 3 dimensions – economic, social and environmental - of sustainable development (NPPF, paragraph 7).
Economic
5.2 As acknowledged in the Council’s report Military Presence and Economic Significance in the South West Region (March 2009), the military presence in Wiltshire already plays a key role in the local economy, both through direct employment and employment in local commercial services which are largely military-dependent.
5.3 The Proposed Development forms part of a £1.6 bn national programme of investment in the Defence estate, a significant proportion of which will be focused on SPTA. Accordingly, the Proposed Development will:
Directly support the delivery of additional military employment;
Generate new civilian employment opportunities within defence;
Provide for secondary employment opportunities within the local economy;
Create temporary jobs within the construction industry; and
Generate growth in the local economy through increased spending.
Social
Design Quality
5.4 The design rationale for the Proposed Development is described in the submitted Design and Access Statement. In summary, the Proposed Development has been designed to respect the established character of the Camp, and sited so as to reinforce the current land-use zoning established through PAC, thus improving the overall functionality of the Garrison.
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5.5 Accordingly, it is considered that the requirements of Local Plan Policy PD1 and Core Strategy Policy CP57 have been met, as well the NPPF requirement to achieving high quality and inclusive design which will, inter alia, function well and add to the overall quality of the area (paragraphs 57 and 58).
Air Quality
5.6 The site occupies a largely rural setting, away from significant sources of air pollution. Defra background modelling shows a large margin between annual mean nitrogen dioxide and inhalable particulate matter concentrations and the relevant National Air Quality Objectives (NAQOs), which is more than sufficient to accommodate any additional emissions associated with the Proposed Development.
5.7 There will be fugitive emissions of particulate matter (visible dust and PM10) from construction activities. However, the impacts with respect to health and amenity are unlikely to be significant with the implementation of good construction practices.
Noise
5.8 A Noise Feasibility Study (Capita Acoustics, November 2013) has been carried out on site. Noise from on-site vehicle movements and maintenance activities is audible on Camp, whilst the most significant external source of noise is Somme Road to the east. Tidworth Road is less heavily trafficked but still audible towards the south of the Camp.
5.9 Measured 5-minute Laeq levels range from 47dB to 60dB in the daytime, and therefore recommended levels from BS 8233 and the World Health Organisation are expected to be satisfied.
5.10 Futhermore, as the Proposed Development is sited well away from any existing residential properties bounding the Camp, it is unlikely that it will give rise to any adverse impacts on local amenity.
Cultural Heritage
5.11 The Camp has been significantly redeveloped under PAC. This construction work and archives covering previous fieldwork at Perham Down support the evaluation of archaeological potential within the application site.
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5.12 An Archaeological Desk-based Assessment and site visit was carried out during October 2013, followed by a Phase 1 Built Heritage Assessment completed in 2014. An archaeological watching brief has also been maintained throughout July and August 2014, with archaeologists on-site to inspect geotechnical and contamination field excavations within the application site.
5.13 A single Scheduled Monument – earthwork at Lambdown – is situated adjacent to the Camp. This probable prehistoric linear boundary survives beyond the southern boundary of the site, but has been largely levelled and overbuilt by the military camp in the early 20th century. Within a 5km zone around the camp there are 58 Scheduled Monuments, as well as 3 Grade I and 3 Grade II* Listed Buildings. On account of the topography and intervening buildings and trees, no meaningful intervisibility could be established with any of these monuments. There are no Grade I or II* Registered Parks and Gardens, Conservation Areas or World Heritage Sites within this zone.
5.14 There is the potential for buried archaeological remains within the application site, although much of the shallow ground within the application site will have been disturbed by earlier (now removed) buildings and recent training activities. Extensive intrusive investigation has yet to be undertaken, however, no buried archaeological remains were recorded during recent geotechnical and contamination field investigations.
5.15 Construction work can also cause damage to or loss of any buried archaeological features which may be present within the site. Potential adverse residual impacts would be addressed through the implementation of an appropriate programme of archaeological mitigation consistent with Local Plan Policy HH1 and Core Strategy Policy CP58, and agreed with all relevant stakeholders. This would typically include a written scheme of investigation and/or archaeological watching brief.
Transport
5.16 The Proposed Development comprises Mess accommodation for Service personnel living and/or working on the Camp. The majority of trips will therefore be internal, having no impact on the local highway network. Other trips are likely to be outside the peak hours, and therefore have a negligible effect on local travel patterns or the
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operation of surrounding junctions. In addition, DIO is currently preparing an overarching Travel Plan for SPTA, which will introduce a series of measures aimed at reducing reliance on the private car and encouraging more sustainable travel choices, consistent with Local Plan Policy AT1 and Core Strategy Policies GP61 and CP62.
5.17 Cycle parking facilities are proposed as part of the development. Car parking demand arising from the Proposed Development will be met through new car parking provision, the detail of which will be determined through a holistic review of car parking requirements across the Camp, having regard to wider Travel Plan initiatives.
5.18 Accordingly, it is proposed that planning permission for the Proposed Development be granted subject to a planning condition requiring the submission and approval of car parking details.
Environmental
Ecology
5.19 The Salisbury Plain SAC, SPA and SSSI lie approximately 2.5km to the north-west, and are therefore isolated from the Proposed Development. Accordingly, it is considered unlikely that the proposed development would have a direct effect on the SPA / SAC. Furthermore, the Salisbury Plain Masterplan Habitats Regulations Assessment (HRA) has determined that, with agreed mitigation measures in place, the ABP development across Salisbury Plain is unlikely to have significant direct, indirect or cumulative effects on the nature conservation receptors for which Salisbury Plain has been designated.
5.20 The Camp at Perham Down has been subject to extensive ecological surveys since the initial planning application for PAC in 2003/4. As a result, there is a wealth of information, supplemented with on-going reviews of implemented mitigation measures, and a close working relationship with stakeholders such as Natural England, and the County Ecologist.
5.21 A Preliminary Ecological Appraisal was completed in March 2014, which supports the ecological assessment made in the OEA. This assessment work has been followed by specific species surveys for Great Crested Newts in June 2013, as well as Bat and
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Badger activity in July and August 2014 respectively. A Preliminary Environmental Appraisal was also completed for the Royal Engineers Training Area (RETA), which is adjacent to the north and west boundaries of the Camp. Further protected species surveys and a botanical survey are planned within the RETA during 2015.
5.22 The application site lies within a 500m buffer zone around a pond where a Great Crested Newt population was confirmed by the 2013 survey. This pond and other water features will be resurveyed in 2015 to determine whether a European Protected Species License is required for the Proposed Development.
5.23 No buildings or trees within the application site were identified as having the potential for bat roosts.
5.24 Two badger setts were identified close to the application site. An initial survey recommended monitoring one of the setts, which is on-top of a bund. The sett was monitored using infra-red cameras for 5 weeks during August and September 2014. This monitoring confirmed that the sett is currently disused. The other sett is located within an area of thick bramble scrub and other vegetation. During the August 2014 survey, one possible badger path was identified leading into the sett. However, the sett entrance is totally overgrown with brambles and other vegetation and appears disused. Nonethless, a precautionary ecological watching brief will be conducted during the removal of dense vegetatation.
5.25 Reptile surveys were carried out in October 2012, and identified two areas of suitable habitat close to the application site. Both were classified as having low populations of slow worm, and one was also classified as having a low population of common lizard. The report recommended a reptile relocation programme to be undertaken prior to the any construction works commencing.
5.26 Accordingly, no residual ecological impacts are anticipated as a consequence of the Proposed Development, consistent with Local Plan Policy NR3 and Core Strategy Policy CP50.
5.27 Also, in line with Aspire’s sustainable design principles, the proosed Mess will have bat bricks incorporated into its design.
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Contamination
5.28 Recent extensive construction work at Perham Down under PAC, including the provision of improved drainage containment measures, has addressed many potential contamination sources and pathways at the site. A series of intrusive Land Quality Assessments have also been completed during the past decade at sites close to the application site.
5.29 A Phase 1 desk study to review previous site investigations and identify potential contamination risks across the Camp was completed in October 2013. This informed a subsequent Phase 2 intrusive geotechnical and contamination site investigation, which was completed between August and October 2014. Supplementary monitoring work is continuing, with the full analysis and interpretation yet to be reported.
5.30 Intrusive investigations indicate that the underlying geology is ‘Upper Chalk of the Cretaceous period, overlain by Made Ground’. Although the recent site investigation is yet to be issued, information from earlier reports, indicates no visual or olfactory evidence of potential contamination is evident within the application site, which the 1926 Ordnance Survey map indicates was formerly developed as part of the military camp. Results of chemical analysis from previous site investigations carried out in 2003/4, indicate that the majority of the Perham Down camp was deemed unlikely to be contaminated, with only localised occurrences of contamination of limited extent.
5.31 The construction of the Proposed Development does have the potential to mobilise historic buried contamination hotspots. In addition, spillages from plant, materials and fuel storage during construction may also generate contamination. If significant sensitive receptors are identified to be at risk because of historic contamination a remediation plan will be developed. A Construction Environmental Management Plan (CEMP) will be prepared, in accordance with industry best practice, to implement pollution prevention and a response regime to reduce the risk of spillages and other contaminant mobilisation from construction work.
5.32 In summary, no residual contamination impacts are anticipated in connection with the Proposed Development.
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Water Resources
5.33 In accordance with a series of environmental commitments made by DIO and agreed with the Environment Agency, Natural England, and Wiltshire Council the impacts of water abstraction from boreholes supplying both existing and proposed MoD development will be mitigated through a combination of water efficiency improvements, demand management and infrastructure upgrades.
5.34 Drainage containment measures, including SuDS features, will also be incorporated to attenuate run-off, address flooding and provide pollution control.
5.35 This infrastructure is currently being designed on a site-wide basis (as opposed to building by building) to accommodate all of the proposed ABP development. It is therefore proposed that these details be secured through a planning condition imposed on the grant of planning permission.
Flood Risk
5.36 The Camp does not lie within a floodplain or an area of flood risk as defined by the Environment Agency, neither does the application site exceed 1 hectare. Accordingly, a Flood Risk Assessment is not required to support this application.
Landscape and Visual Impacts
5.37 A Preliminary Landscape Assessment (Capita, November 2013) was undertaken to inform masterplan development and identify potential landscape and visual impacts arising from the ABP. A series of receptor viewpoints were identified, largely consistent with the previous Landscape and Visual Impact Assessment carried out for PAC, and a photographic record taken1 in September 2013 (representing summer) and early March 2014 (representing winter).
1 In compliance with Landscape Institute Advice Note 01/11 and (unless otherwise stated) taken using a fixed focal length camera (Digital SLR, 50mm equivalent).
December 2014 I gva.co.uk 22 Defence Infrastructure Organisation Planning Statement
5.38 In general, the undulating topography in combination with the presence of mature woodland ensures that there are only limited views into the Camp. Views from the southwest and east are largely screened by Lambdown Furze and Great Perham Copse. As a result the visual envelope is relatively contained, although less so in the winter months.
5.39 There are glimpsed views of rooftops on the Camp from a few locations further afield on higher ground, where screening is limited; for example on Warren Hill firing range and from Wick Down. Distant views are also possible from Chute Causeway and the edge of Upper Chute approximately 5 kilometres north-east of the Camp. Close range, and at times uninterrupted, views are also possible from the roads which align the security fence and bisect the camp, namely Drummers Lane and Somme Road. The military residents along the boundaries of the camp also have close uninterrupted views of the site.
5.40 The PLA has been reviewed in relation to this application. The receptor viewpoints where there is potential for impact are:
Viewpoint 8 - Somme Road: This viewpoint is located adjacent to Somme Road, immediately to the northeast of the Camp. The photograph is taken near a track which provides access to the sports ground, and is orientated in a westerly direction. A mature hedgerow is evident in the foreground of the view. This partially screens views towards the existing Mess (SW0605). A belt of established woodland vegetation is evident across the background of the view (beyond the existing Mess), which provides screening to other parts of the Camp. Post development, the majority of the buildings on the Camp will remain screened by the existing, intervening vegetation aligning Somme Road and within the Camp. It is anticipated that the roof/upper levels of the proposed Mess will be visible through the taller vegetation to the right of view during winter months, less so when the vegetation is in full leaf during the summer. The change is anticipated to be incidental in the view and would result in a visual effect of minor adverse significance.
Viewpoint 9 - Sport Ground: This viewpoint is located within the sports ground, approximately 200m northeast of the Camp. The photograph is orientated in a westerly direction, overlooks a sports field, and is framed on both sides by mature vegetation. Individual and grouped trees to the nearside of Somme Road are
December 2014 I gva.co.uk 23 Defence Infrastructure Organisation Planning Statement
evident in the middle distance, and combine with the mature woodland planting aligning Somme Road to contain longer distance views. An existing Mess is decipherable through vegetation in the middle distance to the far left of the view. The proposed Mess would be visible through vegetation to the centre left of view. The new built form in this area will be similar in scale and appearance to the existing buildings decipherable in the far left of the view. The change, seen through, but below, the treetops would be barely perceptible during the summer months, but slightly more so in the winter. Nevertheless, the effect, albeit adverse, would be of negligible significance.
Viewpoint 10 - Somme Road II: This viewpoint is located on Somme Road approximately 200m north of the Camp. The photograph is taken on the grass verge, and is orientated in a south westerly direction. A mature hedgerow is evident in the foreground of the view, which screens the application site from the road (although longer views into the application site may be apparent during winter months). Telegraph poles are visible through a break in the hedgerow to the far right of view. The Proposed Development would be located some 40m beyond the existing hedgerow and, until the proposed new woodland planting has matured, the upper level/rooftops are anticipated to be visible above the hedgerow belt. This viewpoint is anticipated to experience a minor adverse significance of visual effect.
5.41 Photographs from the aforementioned viewpoints, together with plans showing the viewpoint locations, are provided at Appendix II.
5.42 Accordingly, it is considered that the Proposed Development will not significantly change the quality or character of the local landscape or lead to a loss of visual amenity, in accordance with Local Plan Policy NR7.
December 2014 I gva.co.uk 24 Defence Infrastructure Organisation Planning Statement
6. Conclusion
6.1 This application is one of a series of applications pursuant to the Salisbury Plain Masterplan. It seeks planning permission for a new ‘Paired’ Mess at Swinton Barracks, Perham Down as part of the ABP.
6.2 This Planning Statement has been prepared to address the planning issues raised by the Proposed Development, and demonstrates the following:
The ABP is critical to the delivery of future UK defence capability, with SPTA forming a key component of this national programme;
The Proposed Development, as part of a wider programme of investment across SPTA, will deliver significant economic benefits through job creation and increased spending in the local economy;
The proposed Mess has been designed to a high standard which respects the established character of the Camp, and sited so as to reinforce the current land- use zoning established through PAC;
There will be no significant adverse impacts on local amenity as a consequence of the Proposed Development;
The majority of trips generated by the Proposed Development will be internal to the Camp, and consequently any potential impact on the local highway network will be negligible;
There are no designated heritage assets on the Camp or within the vicinity of the application site, and an archaeological watching brief during construction will ensure that any impacts on unknown archaeological remains are satisfactorily mitigated;
No residual ecological or contamination impacts are anticipated as a consequence of the Proposed Development, including on the Salisbury Plain SPA, SAC and SSSI;
The impacts of water abstraction from boreholes supplying both existing and proposed MoD development will be mitigated through a combination of water efficiency improvements, demand management and infrastructure upgrades.
December 2014 I gva.co.uk 25 Defence Infrastructure Organisation Planning Statement
Drainage containment measures, including SuDS features, will also be incorporated to attenuate run-off, address flooding and provide pollution control;
The Proposed Development will not significantly change the quality or character of the local landscape or lead to a loss of visual amenity.
6.3 For these reasons, we commend the proposals to Wiltshire Council, and request that this application be approved without delay in accordance with the NPPF ‘presumption in favour of sustainable development’.
GVA December 2014
December 2014 I gva.co.uk 26 A Bilfinger Real Estate company
Appendix I Council’s EIA Screening Opinion
18th September 2014 Development Services – North Monkton Park N Harrison Esq Chippenham GVA Wiltshire 3 Brindleyplace SN15 1ER Birmingham B1 2JB Tel: 012490706444 Email: [email protected] www.wiltshire.gov.uk
Our Ref: 14/08164/SCR
Dear Mr Harrison,
Application No: 14/08164/SCR
Proposal: Screening opinion request in relation to proposed 4 new-build 40-bed Junior Ranks (JR) Single Living Accommodation (SLA) buildings; 1 new-build 'paired' Officers' and Senior Non-Commissioned Officers (SNCO) Mess; 1 new-build Officers' SLA building, providing circa 15 additional beds paces; and an extended technical area.
Site Address: Swinton Barracks, Perham Down, Wiltshire, SP11 9LQ
I refer to your above request, received 27th August 2014, under regulations 5 of the Town and Country Planning (Environmental Impact Assessment) (England and Wales) Regulations 2011 (EIA Regulations) for an opinion as to whether a development described above requires an Environmental Impact Assessment.
The site context as well as the extent and nature of development and its relationship to the wider Army Basing Programme (ABP) is comprehensively set out within your letter and accompanying plans, but in summary, include the following:
• 4 new-build 40-bed Junior Ranks SLA buildings sited to the north of the existing Junior Ranks SLA 'village'. The development will reflect the design of the existing JR SLA blocks, and reinforce the land use zoning for this part of the site. The buildings will be up to 4 storeys in height and provide a total floorspace of circa 5,038 sqm gross external area (GEA).
• 1 new-build 'paired' Officers' and SNCO Mess sited to the north of the existing SNCO mess. This will comprise 'paired' dining and public rooms, with a single kitchen. The building will be single storey, and provide a total floorspace of circa 2,095 sqm (GEA).
• 1 new-build Officers' SLA building, providing circa 15 additional bed spaces. This will be sited adjacent to the existing Officers' Mess south of Tidworth Road. It will have a total floorspace of circa 702 sqm (GEA) over 2 storeys;
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• The extension of the technical accommodation to the west of the proposed new 'paired' Officers' and SNCO Mess.
The EIA Regulations 2011 define ‘EIA Development’ in Regulation 2(1) as either:
(1) Schedule 1 development; or (2) Schedule 2 development likely to have significant effects on the environment by virtue of factors such as its nature, size or location.
It is agreed that the proposed development does not meet any of the descriptions of development set out within Schedule 1 of the 2011 Regulations.
However, the proposed development could perhaps fall to be considered against Schedule 2(10)(b) of the Regulations under the “Urban Development Projects” category. In particular, in relation to site area, category (b) sets an indicative threshold where the area of development would exceed 0.5Ha.
Considerations
In coming to a conclusion as to whether the works are EIA development by reason of Schedule 2(3)(a) of the Regulations, the proposal must also against criteria set out in Schedule 3 of the Regulations, guidance contained in Circular 02/99 as well as the more recently published Planning Practice Guidance (PPG).
In this particular instance, and with reference to Schedule 3, the Circular and the PPG, the development would in very large part take place inside of a substantial Ministry of Defence facility, which is defined by built form and activity. Only the new paired Officer/SNCO messing building being positioned outside of the existing camp boundary, necessitating a shifting of the security fencing. In this context, it is considered that the proposed development would not have a significant urbanising effect with regards to the landscape character of the area. Equally, there is no evidence that the development is likely to have significant long-term irreversible impacts on humans, ecology or on the environment and the development is not considered to have trans-boundary effects or to be of more than local significance. It is agreed that the site is not located within any “sensitive area” defined within the 2011 Regulations.
The Schedule 2 criteria and its application to the proposed development tabulated in your letter is considered to accurately reflect the situation.
It is salient to note that the cumulative environmental effects of the wider Army Basing Programme of development is considered within the ABP Salisbury Plain Masterplan and accompanying Overarching Environmental Appraisal (OEA). Both are documents which will be material considerations when determining the subsequent planning applications.
Matters to be addressed by individual planning applications
As part of the formulation of this opinion, several Statutory Consultees have commented upon your submission at this stage, raising several important issues. Whilst the proposed development may not necessitate EIA, it nevertheless remains the case that any subsequent planning application should still fully explore and address each of the following issues:
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Ecology - The site is outside of, but close to the Salisbury Plain Site of Special Scientific Interest (SSSI), Special Area of Conservation (SAC) and Special Protection Area (SPA). It is therefore important that the application should be supported by sufficient biodiversity and landscape information in order for you to assess the weight to give these material considerations when determining the application.
In particular, the Council’s Ecologist will require that any application addresses the following matters: (i) the indirect impacts of the demolition required to facilitate the development are assessed as part of the proposals; (ii) the preparation and submission of the relevant technical assessments so as to address the loss of grassland and habitats through development taking place; (iii) the in-combination abstraction and foul water discharge impacts of the ABP and details of how these are to be mitigated have been agreed with NE, EA and the Council; and (iv) clarity that the overarching Habitats Regulations Assessment has been completed and approved by Natural England and the Council.
It is noted that the development will necessitate the loss of established trees. It is recommended that any planning application be accompanied by a full tree survey and proposed compensatory planning where required.
Archaeology - As recognised in the submission, one of the ‘priority works’ areas is directly adjacent to the Boundary earthwork on Lamb Down scheduled monument. In addition, there is the potential for the ‘priority works’ to encounter significant archaeological remains. Accordingly, it is recommended that a field evaluation, in addition to the desk based assessment, is completed and presented as part of any application. The field evaluation should be undertaken in line with a written scheme of investigation. This information should reveal the impact of the proposed development on any buried archaeology and allow this service to give proportionate advice with regard to the proposed development. Any such works should be conducted by a professional, qualified archaeologist.
Landscape - The site is outside of, but close to the and North Wessex Downs Area of Outstanding Natural Beauty (AoNB). The application should consider the effect upon the landscape generally, taking account of any distance views possible from the AoNB.
Water environment – The Environment Agency have confirmed that they do not believe EIA is required in this particular instance. However, they do point out that any application submitted should nonetheless address matters such as water abstraction, surface water drainage / flood risk, water supply and waste water, sustainable construction and prevention of pollution during the construction phase, groundwater protection / contaminated land and the disposal of waste from the site.
Please do understand that the above does not represent an exhaustive list of environmental or other matters that may need to be raised and resolved during the determination of any planning application. Rather, it is merely an identification of immediate issues that the Statutory Consultees have commented upon, based upon your submission in respect of this request for a screening opinion.
Conclusion
In summary, and having assessed the documentation submitted to the Council against the relevant guidance and regulations, the development would not be likely to have significant effects on the environment by reason of factors such as its nature, size and location. Accordingly, it is considered that the proposed development does not require an EIA under Schedule 2 and I write to confirm that an Environmental Impact Assessment is not required in this instance.
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Yours sincerely
Simon T Smith Army Rebasing Planning Manager
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A Bilfinger Real Estate company
Appendix II LVIA Viewpoints
Perham Down - Viewpoint 08: Somme Road National Grid Reference: 425653,149372 Height of Camera Lens: 121m AOD Lens: Fixed 50mm Horizontal Field of View: VD195mm = 120°; VD300m = 42° Date: SUMMER = 30.09.2013 WINTER 04.03.2014 -60º -45º -30º -15º 0º 15º 30º 45º 60º
Senior Ranks SLA & Mess
Viewing Distance - This is the distance from eye to paper to gain a true representation of the image. VD at 195mm
-15º 0º 15º
Area 2 (Potential Living)
08
Viewpoint Location Plan Viewing Distance - This is the distance from eye to paper to gain a true representation of the image. VD at 300mm -60º -45º -30º -15º 0º 15º 30º 45º 60º
SUMMER VIEW: Viewing Distance - This is the distance from eye to paper to gain a true representation of the image. VD at 195mm
-60º -45º -30º -15º 0º 15º 30º 45º 60º
WINTER VIEW: Viewing Distance - This is the distance from eye to paper to gain a true representation of the image. VD at 195mm Perham Down - Viewpoint 09: Sports Ground National Grid Reference: 425788,149504 Height of Camera Lens: 119m AOD Lens: Fixed 50mm Horizontal Field of View: VD195mm = 120°; VD300m = 42° Date: SUMMER = 01.10.2013 WINTER 04.03.2014 -60º -45º -30º -15º 0º 15º 30º 45º 60º
Approximate Extents of the Site
Senior Ranks SLA & Mess
Viewing Distance - This is the distance from eye to paper to gain a true representation of the image. VD at 195mm
-15º 0º 15º
Area 2 (Potential Living)
09
Viewpoint Location Plan Viewing Distance - This is the distance from eye to paper to gain a true representation of the image. VD at 300mm -60º -45º -30º -15º 0º 15º 30º 45º 60º
SUMMER VIEW: Viewing Distance - This is the distance from eye to paper to gain a true representation of the image. VD at 195mm
-60º -45º -30º -15º 0º 15º 30º 45º 60º
WINTER VIEW: Viewing Distance - This is the distance from eye to paper to gain a true representation of the image. VD at 195mm Perham Down - Viewpoint 10: Somme Road II National Grid Reference: 425539,149594 Height of Camera Lens: 123m AOD Lens: Fixed 50mm Horizontal Field of View: VD195mm = 120°; VD300m = 42° Date: SUMMER = 01.10.2013 WINTER 04.03.2014 -60º -45º -30º -15º 0º 15º 30º 45º 60º
Approximate Extents of the Site
Viewing Distance - This is the distance from eye to paper to gain a true representation of the image. VD at 195mm
-15º 0º 15º
Area 2 Area 4 (Potential Living) (Potential Working)
10
Viewpoint Location Plan Viewing Distance - This is the distance from eye to paper to gain a true representation of the image. VD at 300mm -60º -45º -30º -15º 0º 15º 30º 45º 60º
SUMMER VIEW: Viewing Distance - This is the distance from eye to paper to gain a true representation of the image. VD at 195mm
-60º -45º -30º -15º 0º 15º 30º 45º 60º
WINTER VIEW: Viewing Distance - This is the distance from eye to paper to gain a true representation of the image. VD at 195mm