SCREEN HUB UK September 2020 Screen Industries Global Growth Hub
DOCUMENT Planning Statement 08 Contents
1. Introduction 1
2. Pinewood Studios 4
3. Site Description 8
4. Planning History 10
5. The Proposals 11
6. Planning Policy Context 16
7. Policy Assessment of the Proposals 27
8. Green Belt 45
9. Third Parties 60
10. The Planning Balance 63
Appendix 1: Planning history 67
Appendix 2: Planning policy matrix 70
Appendix 3: Residential amenity assessment 82
Appendix 4: Third party letters of support 84
Stuart / Irvine Sara Dutfield Client Pinewood Group Limited Our reference PINS3003
September 2020
1. Introduction
Introduction
1.1 This Planning Statement is submitted on behalf of Pinewood Group Limited (PGL) to Buckinghamshire Council (BC) in support of an outline planning application for the development of a Screen Industries Global Growth Hub (Screen Hub UK) on land to the south of Pinewood Studios.
1.2 The application site comprises c.32ha of land which has formerly been worked for gravel extraction, with restoration approaching completion.
1.3 The proposal is described as:
“Outline planning application with all matters reserved (except for principal points of access) for the phased development of a screen industries global growth hub of up to 750,000 sq ft (70,000 sq m) comprising:
A visitor attraction of 350,000 sq ft comprising a series of buildings 350,000 sq ft of film production buildings (including sound stages, workshops, offices and an external film backlot) An education hub (25,000 sq ft) A business growth hub (25,000 sq ft) Associated parking and servicing Green Infrastructure”
1.4 This Planning Statement identifies and appraises all the relevant planning policy considerations associated with the proposed development, and should be read in conjunction with the other documents and drawings submitted in support of the application, including:
• Document 01 - Planning application forms including associated certificates • Document 02 - Community Infrastructure Levy Form 1 • Document 03 – Site location plan • Document 04 – Site plan • Document 05 - Parameter plans: PP1A Site context (existing levels) PP1B Site context (proposed levels) PP3 Development zones PP3A Land use PP3B Land Use PP4 Green infrastructure PP5 Access and movements PP6A Building heights PP6B Building heights PP7 Development numbers and yield
1 • Document 06 - Illustrative masterplans: Illustrative Masterplan (A) 3770-FBA-XX-00-DR-A-01_110 Illustrative Masterplan (B) 3770-FBA-XX-00-DR-A-01_111
• Document 07 – The Case for Growth and Recovery • Document 08 – Planning Statement • Document 09 - Development Framework and Design & Access Statement • Document 10 - Transportation Assessment (inc. Framework Travel Plan) • Document 11 – Landscape Strategy • Document 12 – Arboricultural Report • Document 13 – Environmental Statement (NTS, Volumes 1 and 2) • Document 14 – Economic and Social Benefits Assessment • Document 15 – Flood Risk Assessment and Drainage Strategy • Document 16 – Consultation statement • Document 17 – Sustainability Statement
1.5 The application is in outline form with all matters reserved for future approval except principal means of access into the site.
1.6 In accordance with The Town and Country Planning (Development Management Procedure) (England) Order 2015, the application provides details of potential routes of access through the site on the Parameter Plans, although the fixed routes and designs will be secured through reserved matters.
Context
1.7 This Statement is prepared to assist BC in its determination of the application having regard to the requirements of the Development Plan, the National Planning Policy Framework (the Framework) and Planning Practice Guidance (PPG) and other material considerations. It evaluates the proposed development against local and national planning policies and carries out an overall planning balance.
Structure of Planning Statement
1.8 The remainder of the Statement is structured as follows:
Section 2: Provides an introduction to Pinewood Studios as an iconic brand within the world film industry; its reputation, heritage, scale, facilities, significant offer and role both nationally and internationally;
Section 3 and 4: a description of the site and its surroundings, planning designations and the relevant planning history is included;
Section 5: details the proposed development in full;
Section 6: a summary of the development plan policies, national policies, economic, and film and screen based media policy context, against which the development proposals will be assessed is provided;
Section 7: provides an assessment of compliance with the Development Plan;
2 Section 8: provides a Green Belt assessment;
Section 9: highlights the support received from third parties; and
Section 10: provides an assessment of the overall planning balance.
Environmental Impact Assessment
1.9 Schedule 2 of the Town and Country Planning (Environmental Impact Assessment) Regulations 2017 (hereafter referred to as the ‘EIA Regulations’) identifies projects where an EIA is required. The EIA Regulations implement the requirements of the European Community’s Directive on Environmental Assessment (85/337/EEC), as amended by the Council Directive No. 97/11/EC and 2011/92/EU. Further guidance is provided in the National Planning Practice Guidance (NPPG).
1.10 The size of the Site is above the 0.5ha ‘threshold’ for an urban development project, as set out in category 10b of Schedule 2 of the EIA Regulations, and therefore the need for EIA must be considered. The proposed development has not been the subject of screening but on review by EIA experts it was considered to be EIA development requiring an Environmental Statement (ES).
1.11 The structure of the ES which accompanies this application is as follows:
Non-technical summary Chapter 1 – Introduction Chapter 2 – Approach to EIA Chapter 3 – Description of the Site and Surrounding Area Chapter 4 – The Proposed Scheme Chapter 5 – Consideration of Alternatives Chapter 6 – Socio-Economics and Human Health Chapter 7 – Landscape and Visual Chapter 8 – Biodiversity Chapter 9 – Transport Chapter 10 – Climate Change Chapter 11 – Air Quality Chapter 12 – Noise and Vibration Chapter 13 – Assessment of Cumulative Effects Chapter 14 – Summary of ES and Schedule of Mitigation
3 2. Pinewood Studios
2.1 This section of the Planning Statement provides an overview of Pinewood Studios and its evolution into one of the leading players in the international film, high end TV and screen based media industry.
2.2 Pinewood has enjoyed an unparalleled reputation in the world film industry since it was established in 1936. It has become a market leader with a global reputation. It is the largest and most prolific film and television studio in the UK and one of the leading providers of production facilities to the screen-based creative industries in the world. It operates as the hub of the West London film and television production cluster.
2.3 Its status is clear from the following achievements and features:
Over 2,000 films have been produced at Pinewood Studios, winning 167 Oscars and 228 BAFTAs.
In the past year alone, PGL’s UK-based studios have been home to many highly acclaimed productions such as Rocketman, No Time To Die, Fast & Furious Presents: Hobbs & Shaw, Dumbo, Mary Poppins Returns, Mary Queen of Scots and Star Wars: The Rise of Skywalker.
Pinewood is the first and only facility in the world to receive an award from the British Academy of Film and Television Arts (BAFTA) in 2009 for Outstanding British Contribution to Cinema.
It offers a wide range of facilities essential for film, television and screen based production, on a scale that is currently rivalled by few studios worldwide and none in the UK.
2.4 The range of production facilities, services and skills available at Pinewood, is one of the most comprehensive in the world and provides a unique offer that attracts the best international producers and directors to make their films in the UK. Pinewood also accommodates a community of specialist businesses, enterprises and suppliers.
2.5 A unique feature of Pinewood’s offer is the co-location of stages with workshops and production offices and the essential array of specialist technicians, trades and crafts people who invest their extraordinary creativity, experience and skill into the myriad aspects of making a modern motion picture.
2.6 In granting outline planning permission on appeal for the Pinewood Studios Development Framework (‘PSDF’) development in 2014, the Secretary of State recognised the status of Pinewood, concluding that it ‘has a leading global status’ and ‘is an essential component of the UK film industry’.
4 The Pinewood Brand and its history
2.7 The history of Pinewood Studios began in 1934 when the Sheffield building tycoon Charles Boot purchased a Victorian manor house and estate in Buckinghamshire with the intention of creating Britain’s first international film studios to rival Hollywood. He formed a partnership with the flour millionaire J Arthur Rank and jute heiress Lady Yule, and together they invested £1 million in the design and construction of Pinewood Studios, which was opened on 30th September 1936.
2.8 There were twenty studios in the London area making films at that time, but what set Pinewood apart, was that it was a purpose-built new model in studio design; its design and functionality influenced by the operating methods of the Hollywood studios, and both Boot and Rank’s experience of the efficiencies of constructing and manufacturing on an industrial scale. It offered proximity to London but also the practical requirement of being located outside the metropolitan ‘smog zone’.
2.9 Pinewood was designed to provide four large and four small stages (although only five stages were actually completed in 1936) with mechanical loading doors opening onto a central roofed service area, through which scenery, props and wardrobe could travel under cover from the buildings where they were made and stored. The actors and production management were accommodated in offices and dressing rooms linked to the stages by connecting corridors, and the whole complex was serviced by a district heating system and powered by its own set of direct current generators.
2.10 The first film to be made at Pinewood was Herbert Wilcox’s musical London Melody, starring Anna Neagle and Tullio Carminati and released in 1937. This was followed by a further eight productions in Pinewood’s inaugural months including Carol Reed’s Talk of the Devil. In all, 24 films were made at the Studio in 1937 and with its proximity to London, its original country house (Heatherden Hall) and ornamental gardens, it had already become an attractive alternative to Hollywood for producers, directors and actors from America.
2.11 During the Second World War, Pinewood was requisitioned by the Government for storing food supplies; the Royal Mint and Lloyds of London were relocated there, and in 1941 it became the base for the Crown, Army, RAF and Polish Air Force photographic units.
2.12 The post-war years witnessed the resurgence of the British film industry and the revival of Pinewood as large sums were invested to refurbish it after the war. Preeminent directors such as David Lean, Michael Powell and Emeric Pressburger worked at Pinewood in the late 1940’s producing enduring classics such as Great Expectations, Oliver Twist, A Matter of Life and Death, The Red Shoes and Black Narcissus.
2.13 During the 1950s, films made at Pinewood ranged from phlegmatic accounts of British heroism such as Reach for the Sky and A Night to Remember to the situation comedy of Doctor in the House and the slapstick bathos of Norman Wisdom. In 1958 Carry on Sergeant initiated the series of thirty ‘Carry On’ films which were to be made at Pinewood by Peter Rogers and his ensemble cast during the ensuing two decades.
5 2.14 The first James Bond film, Dr No, starring Sean Connery and produced by Harry Saltzman and Albert R Broccoli, was made at Pinewood in 1962 for £1 million. It launched the iconic franchise that over the course of fifty years has made 25 Bond films. Of the 25 James Bond films, 23 have been made using the facilities at Pinewood Studios.
2.15 In response to the growth of television, four new stages were built at Pinewood during the 1960s designed specifically for the new medium. These became home to popular television series such as Gerry Anderson’s Space 1999 and ITC Entertainment’s The Persuaders! starring Roger Moore and Tony Curtis.
2.16 One of the most famous features of Pinewood Studios, and one of its unique assets as a production facility, is the 5,500sqm 007 Stage. Although it is now in its third incarnation, having twice been destroyed by accidental on-set fires, it was first built in 1975 for the Liparus tanker set in the tenth James Bond film The Spy Who Loved Me. Each rebuilt structure has been larger than its predecessor.
2.17 Pinewood was not immune from the impact of declining cinema attendance as a result of the rapid rise in home entertainment in the 1970s. In the 1980s, Pinewood Studios became a facility provider rather than a fully serviced studio, laying off its permanent, in-house complement of technicians, production managers, art departments and construction workers. A highly experienced freelance workforce was then created, employed on a film by film basis rather than full-time by the studio, which is the practice that continues today.
2.18 Until the end of the 20th century Pinewood Studios remained in the ownership of the Rank Organisation, though J Arthur had died in 1974 and its business priorities had moved on. The last investment in Pinewood by Rank was the construction of two large soundstages (R and S Stages) in 1998 and an office building dedicated to the director Stanley Kubrick, who had made Full Metal Jacket and his final film Eyes Wide Shut, at Pinewood.
2.19 In 2000 Pinewood Studios was sold by Rank and following the acquisition of Shepperton Studios in 2005, Pinewood Shepperton plc was listed on the London Stock Exchange.
2.20 Over the following 12 years, the strategy of Pinewood’s owners was to establish the Studio as a global leader in providing world-class facilities to producers not only of feature films but of all the screen based industries and services. Investment in new stages, workshops and other facilities has been underpinned by a reinforcement of Pinewood’s IT and utilities infrastructure to accommodate the demands of digital and 3-D cine-photography and CGI motion capture. There has been investment in new HD television studio technology which puts Pinewood at the forefront of this sector.
2.21 In 2016 the Studios was acquired by Aermont Capital.
2.22 The Pinewood brand has also been exported into five territories worldwide through partnership with new and existing studios in Canada, Germany, Malaysia, the Dominican Republic and Georgia, USA.
6 2.23 Today, Pinewood operates 77 stages globally and has advised on the construction of over 200,000 sqm of studio space in three continents over the last five years. Working with partners in diverse settings to align their visions for new production facilities with bespoke design and operations solutions, tailoring each project to the unique requirements of the local industry while maintaining the world class quality expected by the producers of international tentpole productions.
2.24 Pinewood has long-term relationships with all the major international studios, some for over 50 years. From 2010-2017, 32 percent of all international films with production budgets of over US$100 million were filmed at Pinewood facilities, whereas Pinewood’s nearest competitor hosted just 6 percent.
7 3. Site Description
The Site and its Context
3.1 The site lies within the administrative boundary of Buckinghamshire Council and to the west of Iver Heath. It is located 10 miles to the north west of Heathrow airport and 22 miles from central London. It lies to the south of the existing studios, west of Pinewood road and east of Black Park Country Park. It extends southwards from the edge of the studios to Uxbridge Road (A412).
3.2 The site is 32.6ha and comprises a number of open fields, which have been the subject of quarrying and subsequent land fill and part of the existing Pinewood Studios site. It excludes Park Lodge and Royal Lodge which are adjacent to the site.
3.3 The site has undergone significant change as a consequence of quarrying activities and it is currently being restored to its former agricultural use. As part of this mineral operation an access has been formed from Pinewood Road located between Park Lodge and Fir Tree Cottage. This extends into the southern half of the site, where the main hub for the quarry processing unit was located.
3.4 The boundaries of the site are marked principally by hedgerows and trees. This has been supplemented by bunding in some locations associated with the storage of top soil during the working of the quarry. Along the boundary to Pinewood Road, there are several agricultural field gates. The boundary to Uxbridge Road is marked by a wooden rail fence with some larger trees and hedgerow intermittently along its edge, and a single existing field access.
3.5 Topographically, the site is predominantly flat, save for some large temporary earth mounds which are a direct result of the mineral extraction and which are being used to backfill and restore the land. These will be removed as the restoration is being
8 completed, with levels being aligned with those that are currently present on site to the north and south.
3.6 The site sits immediately to the south of the existing Pinewood Studios, with part of the site overlapping into the studio estate. This area includes a number of existing workshop structures, which will be retained. There is currently a permissive footpath that runs along the southern edge of the existing studio. This will be re-provided as a consequence of the development.
3.7 Part of the northern boundary of the site abuts the curtilage of Park Lodge Farmhouse, a residential property with generous grounds.
3.8 Park Lodge and Royal Lodge sit broadly in the centre of the site, with a frontage to Pinewood Road. The curtilage to these two residential units is extensive (circa 2.4ha) and includes a number of trees and areas of existing vegetation.
3.9 The roads bounding the site are the A412, a dual carriageway and Pinewood Road, a single carriageway connecting Five Points Roundabout (FPR) with villages to the north including Fulmer and Gerrards Cross. Pinewood Road provides access to Pinewood Studios.
3.10 Pinewood Studios, to the north of the application site provides a full range of production facilities including sound stages, workshops, post production facilities and backlots. Along the boundary with the application site there is a large backlot (known as Paddock Lot), a number of workshops buildings and an area of car parking.
3.11 To the west Black Park Country Park is a 500 acre site including woodland, heathland and open space. The area immediately adjoining the application site comprises woodland with formal paths through it and are at least 30m from the boundary of the site.
9 4. Planning History
4.1 The planning history for the site is extensive but relates to the use of the site for quarrying and land fill activities.
4.2 The detailed planning history is set out in Appendix 1.
4.3 As these permissions relate to a use that is now coming to an end, they are not considered to be of direct relevance, other than to note that they have resulted in a site that has undergone significant, albeit, temporary change, with the site being active for some 15 years and being restored to agricultural use.
10 5. The Proposals
The Concept
5.1 Screen Hub UK takes the existing strategic economic asset of Pinewood Studios as a foundation and proposes an expansion of its role and scale to deliver an integrated screen/film-inspired growth hub at the heart of the Buckinghamshire and West London creative clusters.
5.2 The proposed development is an extension to the cluster of film-related uses based at Pinewood Studios with links to other screen based uses in Buckinghamshire and beyond.
5.3 The growth hub is intended to provide links between content producers/providers and the wider business, education/skills and cultural networks in support of growth of the creative and digital sector.
5.4 There are three principal elements proposed in the scheme:
A. A world-class, film-inspired visitor attraction – the ‘Pinewood Studio Experience’ B. Education and business growth hubs with shared community use – ‘Centre Stage’ C. Production studios – expansion of the existing iconic Studios
5.5 They will provide:
a film inspired internationally renowned visitor experience production facilities (sound stages, offices, workshops and backlots) an education and training hub (all ages from school to industry vocational) a business growth hub (start up and incubation and commercial space) car parking, landscaping and ecological enhancements vehicular and pedestrian accesses from Uxbridge Road and Pinewood Road community outreach and involvement / sharing
Screen Hub UK
A B C
Pinewood Studio Centre Production Experience Stage studios visitor educ/business existing and attraction growth/community new
Screen Industries Global Growth Hub
11 5.6 Together these form part of the creative cluster in Buckinghamshire, including the National Film and Television School in Beaconsfield.
5.7 The formal description of the proposed development is:
“Outline planning permission with all matters reserved (except for principal points of access) for the phased development of a screen industries global growth hub of up to 750,000 sq ft (70,000 sq m) comprising:
A visitor attraction of 350,000 sq ft comprising a series of buildings 350,000 sq ft of film production buildings (including sound stages, workshops, offices and an external film backlot) An education hub (25,000 sq ft) A business growth hub (25,000 sq ft) Associated parking and servicing Green Infrastructure”
Form of the Outline Application
5.8 The outline application is support by a series of parameter plans which provide the framework and set the principles for which future reserved matters applications will be brought forward1.
5.9 The parameters are explained further below.
5.10 A Development Framework Document2 builds upon the parameter plans and provides further clarity and understanding.
5.11 Illustrative masterplans with options have also been prepared (Dwg Nos: 3770-FBA-XX- 00-DR-A-01_110 and 111) and are submitted for illustrative purposes3. They are not for formal approval. The illustrative layouts demonstrate that the proposals can be appropriately accommodated within the site.
Parameter Plan PP1 (A and B): Site Context Plans
5.12 The plans show the existing site layout, including topographical features, trees and existing buildings. PP1A provides the existing site levels, whilst PP1B sets out the proposed levels.
Parameter Plan PP2: Development Zones
5.13 Parameter Plan PP2 identifies the development zones, clearly differentiated between visitor attraction and production studio, with the latter also including the education and growth hubs.
1 Application Doc 05 : Parameters Plans 2 Application Doc 09 : Development Framework and Design & Access Statement 3 Application Doc 06 : Illustrative masterplans
12 Parameter Plan PP3 (A and B): Land Use
5.14 The land use parameters identify building zones, green infrastructure, movement zones and the education and business growth hubs.
5.15 There are two different land use parameter plans, which show alternative locations / orientations of the visitor attraction. Approval is sought for both variations.
5.16 The visitor attraction will comprise one or more individual or interconnected main buildings (up to 10), together with smaller scale structures to accommodate related support / service facilities. The limit on the total number of main buildings will be flexibly applied in agreement with the local planning authority when determining reserved matters.
5.17 The production studio will be a series of buildings of different forms as required by the needs of film production. In addition to the identified floorspace, there will be an area of backlot for external filming.
5.18 The Education and Business Growth Hubs will be one or more individual or interconnected buildings (up to 5 main structures) sited within the movement zone adjacent to Pinewood Road.
Parameter Plan PP4: Green Infrastructure (GI)
5.19 A minimum of 9.8 ha of the application site will comprise GI with a key design principle to achieve a net biodiversity gain and set the scheme within a green/blue campus. The GI parameter plan defines the proposed areas of existing landscaping planting to be retained, as well new areas to be created including boundary treatments and stand offs and a strengthened landscape frontage to Pinewood Road. The existing tree belts in the north and south are retained and safeguarded from development through their identification with GI corridors. The extent of the green infrastructure within the parameters will accommodate access routes, both as shown on the access and movement parameter (PP5) and for internal access routes.
5.20 Boundary landscaping will be between 10m and 30m in depth (subject to detailed design) and reserved matters approvals.
5.21 Full details of the potential landscape and ecological measures are set out within the Landscape Strategy, Development Framework and Design and Access Statement, and Environmental Statement4 documents.
Parameter Plan PP5: Access and Movement
5.22 Three primary vehicular and pedestrian access points are proposed to be taken; one from the A412 Uxbridge Road and two from Pinewood Road. The visitor attraction to
4 Application Doc 11 – Landscape Strategy Application Doc 09 – Development Framework and Design & Access Statement Application Doc 13 – Environmental Statement
13 be accessed from Uxbridge Road and Pinewood Road. The new studio production space and business and education hubs to be served from Pinewood Road.
5.23 A further secondary vehicular access is proposed from Pinewood Road for service vehicles.
5.24 The application seeks detailed approval of the proposed means of vehicular access into the application site from the public highway. The proposals include the following:
Main access - a proposed ‘left in / left out’ junction off the A412 Uxbridge Road Main accesses – Two priority junctions off Pinewood Road; and Secondary access – from Pinewood Road, including a low key all access junction.
5.25 Internal access arrangements within the application site are reserved for subsequent approval.
Parameter Plan PP6 (A and B): Heights
5.26 These plans define the maximum height of built form on each proposed development zone, taking into account both potential orientations of the building zones.
5.27 Three height zones are proposed +9.2m, +14.5m and +21.5m. These heights have derived from the experience of existing buildings both at Shepperton and Pinewood Studios, following discussion with industry experts and production companies to understand existing and potential future building size requirements and with regard to adjoining land uses including residential properties.
5.28 The development will include buildings of varying heights across both the attraction and production zones, with the maximum height parameter only being directly relevant for the tallest of these structures.
Parameter Plan PP7: Development Numbers and Yield
5.29 In order to retain flexibility over the lifetime of the outline planning permission, consent is sought for the overall floorspace figures as shown at Table 5.1 below.
Table 5.1: floorspace (GEA) – for approval
Accommodation sq m sq ft Visitor attraction 32,516 350,000 Production Studio 32,516 350,000 Education and Business Hubs 4,645 50,000 Total 69,677 750,000
5.30 A total of 2,341 permanent surface car parking spaces and 25 coach spaces will be available within the site to support the development.
14 5.31 PP7 sets out the maximum yields sought (on the basis of GEA). It also captures other relevant key parameters, such as the areas of the building zones and green infrastructure.
Implementation – timescales
5.32 Planning approval is sought for an outline permission with reserved matters to be submitted over a ten year period due to the significant scale of the scheme. This is the life that was granted by the Secretary of State at Pinewood Studios (PSDF) and at Warner Bros Leavesden and by Spelthorne Borough Council at Shepperton Studios.
15 6. Planning Policy Context
6.1 Section 38(6) of the Planning and Compulsory Purchase Act 2001 (as amended) (‘The Act’) provides as follows:
“If regard is to be had to the development plan for the purpose of any determination under the Planning Acts the determination must be made in accordance with the plan unless materials considerations indicate otherwise.”
6.2 This section of the Planning Statement identifies policies in relation to economic growth and planning that are relevant to the consideration of the application at a national, regional and local level having regard to the statutory test set out above.
6.3 Extracts of the relevant planning policies referred to in the Planning Statement are provided at Appendix 2.
6.4 The sources of policy are:
A. The Development Plan B. Other material considerations including the National Planning Policy Framework (February 2019), Government Policy (non-planning), Local Economic Partnership Policies and Strategies and emerging development plan documents.
A. The Development Plan
6.5 The Development Plan for Buckinghamshire Council (South Bucks Area) comprises:
South Bucks LDF Core Strategy DPD (Adopted February 2011) Saved Polices from the South Bucks District Local Plan (Adopted 1999) Buckinghamshire Minerals and Waste Local Plan 2016-2036 (Adopted 25 July 2019)
6.6 As approved documents these carry significant weight save for any particular policies being time expired or out of date.
Adopted Proposals Map
6.7 The proposals map was adopted in February 2011 alongside the Core Strategy DPD but is a consolidated plan showing all designations within the Saved Local Plan. An extract of the adopted proposals map is provided at Figure 6.1.
6.8 The relevant designations are:
Green Belt Employment Land (comprising Pinewood Studios to the north of the Application Site) Biodiversity Opportunity Area and Colne Valley Park
16 Figure 6.1: Extract of Adopted Proposals Map
17 Core Strategy DPD
6.9 The Core Strategy DPD (CS), adopted in 2011, includes a suite of strategic and detailed development management policies used in the determination of planning applications including matters in relation to:
Community Needs Living Environment Maintaining Local Economic Prosperity Climate Change and Environmental Management
6.10 Of particular relevance to the determination of this planning application are:
Core Policy 6 – Local Infrastructure Needs Core Policy 7 – Accessibility and Transport Core Policy 9 – Natural Environment Core Policy 10 – Employment Core Policy 12 – Sustainable Energy Core Policy 13 – Environmental and Resource Management Core Policy 17 – Other Development Sites
Saved Polices from the South Bucks District Local Plan
6.11 The South Bucks District Local Plan was adopted on 22nd March 1999; a number of policies were ‘saved’ in 2007, and therefore remain part of the Development Plan.
6.12 Of particular relevance to the determination of this planning application are:
Policy GB15 - Green Belt Boundaries and the Control over Development in the Green Belt Policy GB4 - Employment Generating and Commercial Development in the Green Belt (excluding Green Belt Settlements) Policy EP3 - The Use, Design and Layout of Development Policy EP4 - Landscaping Policy T4 - New Built Development to Provide Tourist Facilities Policy E2 - Pinewood Studios Policy TR4 - Provision for those with Special Needs Policy TR5 - Accesses, Highway Works and Traffic Generation Policy TR7 - Parking Provision
Buckinghamshire Minerals and Waste Plan 2036
6.13 The Buckinghamshire Minerals and Waste Local Plan 2016-2036 was adopted on 25th July 2019.
6.14 Of particular relevance to the determination of this planning application are:
5 The wording of Policy GB1 is not consistent with the Framework and although the Green Belt allocation remains valid, the Framework takes precedence in determining the application.
18 Policy 25 - Delivering High Quality Restoration and Aftercare
B. Other Material Considerations
National Planning Policy Framework (The Framework)
6.15 The Framework is a key part of the Government’s Plan for growth and the associated reform of the planning system. Its publication, in February 2019, post-dates the Government’s economic growth policies and industrial strategy and accordingly its objective is clear, to assist in the recovery of the UK economy and to foster sustainable economic growth with a clear strategy and Government support. Significant weight should be attached to it.
6.16 The Framework sets out the purpose of the planning system as one of contributing to the achievement of sustainable development (paragraph 7), which is to be assessed on three dimensions: economic, social and environmental (paragraph 8), taking local circumstances into account (paragraph 9).
6.17 The economic policy guidance in the Framework places significant weight on the need to support economic growth through the planning system. Paragraph 80 is clear that:
“Significant weight should be placed on the need to support economic growth and productivity, taking into account both local business needs and wider opportunities for development. The approach taken should allow each area to build on its strengths, counter any weaknesses and address the challenges of the future. This is particularly important where Britain can be a global leader in driving innovation, and in areas with high levels of productivity, which should be able to capitalise on their performance and potential.”
6.18 The Framework references the Government’s Industrial Strategy in this regard, where the priority of growing the Creative Industries is key.
6.19 Paragraph 81 places emphasis on the need for a clear economic vision and strategy which positively and proactively encourages sustainable growth, with regard given to Local Industrial Strategies. The Buckinghamshire Local Enterprise Partnership Local Industrial Strategy is discussed further below but places substantial emphasis and support for the creative industries.
6.20 Paragraph 82 goes on to recognise that there are specific locational requirements for different sectors and that planning policies and decisions should make provision for clusters of, amongst other things, creative industries.
6.21 The Framework reiterates previous national policy relating to the Green Belt and confirms (at paragraph 144) that the fundamental aim of Green Belt policy is to prevent urban sprawl by keeping land permanently open. Paragraph 143 confirms that inappropriate development is, by definition, harmful to the Green Belt and should not be approved except in very special circumstances.
6.22 Paragraph 144 confirms that when considering any planning application, local planning authorities should ensure that substantial weight is given to any harm to the Green
19 Belt, and that very special circumstances will not exist unless the potential harm to the Green Belt by reason of inappropriateness, and any other harm, is clearly outweighed by other considerations.
6.23 The Framework contains guidance on a number of other themes. Those relevant to this application are:
Promoting sustainable transport Requiring good design Meeting the challenge of climate change, flooding and coastal change Conserving and enhancing the natural environment Conserving and enhancing the historic environment
Central Government Policy
UK Economic Growth Policy 6.24 Returning the UK economy to strong, sustainable and balanced growth is the single most important priority for the Government. The imperative to achieve economic growth and development is the cornerstone of government policy across all Departments and has been continually reiterated with increasing momentum since the Government took office.
6.25 The relevant policy documents and expression of policy aims and are set out below.
National Industrial strategy
6.26 The UK Government committed itself to the preparation of a national industrial strategy in 2017 through the then Prime Minister the Lady Theresa May MP. Launching the policy initiative the then PM and the Business Secretary highlighted the importance of a modern strategy:
“This is why our modern industrial strategy is a critical part of our plan for post-Brexit Britain. It will help deliver a stronger economy and a fairer society…..”
(Theresa May PM, Foreword to ‘Building our Industrial Strategy’ Green Paper January 2017)
“Our aim is to establish an industrial strategy for the long term – to provide a policy framework against which major public and private sector investment decisions can be made with confidence.”
(Greg Clark, Introduction to ‘Building our Industrial Strategy’ Green Paper January 2017)
6.27 The Industrial Strategy was approved and published in November 2017 with an ambition to:
“Create an economy that boosts productivity and earning power throughout the UK.”
(Industrial Strategy White Paper November 2017)
20 6.28 The structuring foundation of the Industrial Strategy is based upon four foundations of productivity:
Ideas : the world’s most innovative economy People : good job and greater earning power for all Business environment : the best place to start and grow a business Places : prosperous communities across the UK
6.29 The Industrial Strategy promotes five key areas to boost the productivity and earning power of people throughout the UK. The Creative Industries – a group of sectors which includes film and tourism are two of the five chosen pillars within the Industrial Strategy.
Creative Industries Sector Deal 6.30 The Creative Industries Sector Deal was agreed in 2018 noting that the sector was a priority for support and growth delivering a current value of £92bn to the economy, with film and high end television (HETV) alone attracting over £2bn of inward investment to the UK (2017), creating employment, boosting tourism and bringing the global talent to the UK6.
6.31 The importance of the creative industries sector and the role of film and HETV is at the heart of the Government’s new industrial strategy. This was emphasised at the launch of the Sector Deal in March 2018 when the Business Secretary Greg Clark said:
“…we put the creative industries at the heart of our ambitious Industrial Strategy and this joint deal is a landmark moment for our relationship with this world-leading sector.”
6.32 The Prime Minister reinforced this at a Creative Industries reception at Downing Street in May 2018 saying:
“Our ambitious sector deal for the creative industries, announced just before Easter, will see a further £150 million invested by government and industry, spreading success and making the sector fit to face the future.”
6.33 Film and HETV inward investment to the UK had grown substantially over the five years to 2017. Government policy targets growth in the investment revenue from £2bn to £4bn by 2025 requiring substantial increases in studio capacity and skills.
“Film inward investment in the UK has grown by 92 per cent over the last five years and high-end TV by 162 per cent. With substantial increases in studio capacity and investment in skills, it is feasible that in the period to 2025 our revenues could nearly double to approximately £4bn a year.”
“Pinewood Studios Group is investing in a major extension of its studio facility in Buckinghamshire, adding six new soundstages, to be ready in 2019. This is phase two of an expansion programme which saw five new stages opened in 2016, and which is currently operating at 100% capacity. All of this amounts to a £200m investment
6 Foreword to Creative Industries Sector Deal
21 initiative. The group also has plans for a major expansion at its Shepperton Studios, where it has recently acquired a new plot of land adjacent to the existing site.”
(Creative Industries Sector Deal, p.54)
Tourism Sector Deal 6.34 The Tourism Sector Deal was approved by Government in 2019 with an objective of building a world-class experience economy. The Deal is intended to build upon the 38 million international visitors to the UK (2018) by targeting increases in productivity and investment.
6.35 Investment is targeted at the tourism infrastructure (facilities and attractions); people (careers and skills); productivity and data.
6.36 The foundations of the Deal can therefore be summarised as:
upgrading infrastructure boosting productivity developing skills developing destinations
6.37 A specific theme is ‘investment in attractions’7 including ‘film and TV tourism’ with case studies cited of8:
Harry Potter Studios Tour Game of Thrones The Crown, Paddington, Poldark
6.38 The proposed Pinewood Studio Experience is a prime example of the type of investment in attractions envisaged in the Deal.
Local Industrial Strategy: Buckinghamshire LEP 6.39 Picking up on the national and sector policy directions, the Buckinghamshire LEP prepared a Local Industrial Strategy (LIS) which was approved by HM Government in July 2019. The then Secretary of State Greg Clark MP described the LIS as
“From firm foundations, this Local Industrial Strategy lays the ground for a new relationship with government, building on a clear focus for the Arc and demonstrating the pivotal role Buckinghamshire will play in delivering economic lift off for the UK.”
6.40 A key theme of the LIS is ‘Mobilising Buckinghamshire’s internationally significant economic assets’.
6.41 One of the local strengths is identified as:
“Pinewood Studios and the National Film and Television School
7 Tourism Sector Deal page 46 8 Tourism Sector Deal page 48
22 Pinewood Studios is a centre of excellence for film and TV production and has hosted internationally renowned franchises including Star Wars and James Bond. There are over 250 business on the site and major expansion is currently underway.”
(page 22)
6.42 The Creative and Digital sector in Buckinghamshire is identified within the LEP’s ambition for growth:
“Creative and digital
Buckinghamshire LEP will work to:
consolidate a global creative industries capability and further support exporting and inward investment in the film, TV and games sector;
develop and enhance the Screen Industries Global Growth Hub at Pinewood Studios to improve links between creative content providers and the wider business and specialist education networks both on and beyond the Pinewood lot;
secure investment in key research facilities and programmes; and
through the Creative Sector Action Group and Skills Advisory Panel, the LEP will work to: improve collaboration between different parts of the education system; engage businesses in identifying local priorities and challenges; and supporting skills providers to respond to local economic priorities.”
6.43 The centre piece of the strategy is the proposed Screen Industries Global Growth Hub at Pinewood which is now the subject of this planning application.
Economic Recovery Strategy: Buckinghamshire LEP 6.44 Events since early 2020 have impacted the implementation of economic strategies. The LEP has prepared an Economic Recovery Strategy (ERS) at the request of HM Government with a focus on short term interventions to help with the recovery of local economies and employment.
6.45 The Buckinghamshire LEP ERS has brought a new focus upon economic investment and schemes that can be delivered in the reasonable near term and proposes:
“Creative and digital
Screen Based Global Growth Hub, mirrored on the BBF Growth Hub but sector specific at Pinewood Studios
Buckinghamshire Film Offer – establish a Buckinghamshire Film Office to maximise production spend within the County
Building on the Government’s Tourism Sector Deal, develop a film inspired ‘experience’ similar to the Warner Brothers studio Tour/The Making of Harry Potter
23 Look to identify and support new studio development – Pinewood, Marlow and Halton”
(Buckinghamshire LEP Economic Recovery Strategy)
6.46 The proposed Screen Hub UK is consistent with the industrial and recovery strategies and economic priorities of HM Government and Buckinghamshire LEP. The scheme therefore has strong support from the public sector which adds considerable weight in planning decision-making.
6.47 There is a clear direction from national to local level of the importance of Pinewood and the concept of a global growth hub. This provenance sits outside of the Development Plan, which pre-dates the Industrial Strategy and the work of the LEP. It represents a clear direction of economic development, bespoke to the opportunity that exists at Pinewood and part of a national and regional context.
6.48 The emphasis on the growth hub as an integral feature of the LEP recovery strategy, in response to economic challenges associated with Covid and Brexit, demonstrates not only its importance to Buckinghamshire, but also to the timing of its realisation.
6.49 Supporting the growth hub is an urgent and substantive need, which is required now to boost the regional and national economy. This further elevates its importance and the weight to be attached as a material consideration, such that it is realising both a long term benefit and is responding to the urgent current context.
Chiltern and South Bucks Economic Development Strategy – January 2017 6.50 At the local level, the Chiltern and South Bucks Economic Development Strategy acknowledges the important economic contribution made by Pinewood Studios. For example, the Economic Strategy highlights Pinewood Studios as being amongst the local area’s biggest employers and notes that “The creative industries9 employ 6,400 people across Chiltern and South Bucks, representing 8.6% of all employment, more than double the national share”. The creative industries are therefore critical to the local economy for jobs.
Economic Policy Summary 6.51 There is strong and consistent policy and strategy support for the development of the UK creative industry section at all levels and particularly surrounding Pinewood Studios, which itself is acknowledged as a key economic asset in furthering growth.
Emerging plans and other policies
Chiltern and South Bucks Local Plan 2036 6.52 The Chiltern and South Buckinghamshire Local Plan 2036 was submitted for examination on 26 September 2019.
6.53 Following the submission of the emerging Local Plan, the Inspector has raised concerns with how the Council has engaged with the duty-to-cooperate process and recommended that consideration is given to its withdrawal.
24 6.54 As a result, at this stage, the emerging Local Plan has very limited weight in the determination process of this planning application.
Iver Heath Neighbourhood Plan 6.55 The Parish of Iver is a designated Neighbourhood Plan Area. The entire parish is included within the Neighbourhood Plan Area, which includes the Application Site. The Iver Neighbourhood Plan has not progressed beyond initial community engagement undertaken in 2017 and can therefore have no weight in the determination of this application.
Burnham Beeches Special Area of Conservation – mitigation strategy 6.56 The strategy is intended to address both the requirement to avoid, or mitigate, adverse impacts on the integrity of Burnham Beeches SAC from local plan led development as set out in the Chiltern and South Bucks Local Plan and the requirement to prevent further deterioration of the SAC features as a result of public access and disturbance.
6.57 Detailed consideration to Burnham Beeches is set out within the ecological assessments which support the planning application.
Colne Valley Regional Park 6.58 The Colne Valley Regional Park (CVP) is a mosaic of farmland, woodland and water (rivers, canals and lakes) covering 43 square miles on the (urban) fringe of west London. The landscape is a mix of towns green spaces and waterways.
6.59 The Park was established in 1965 and its operation is now managed through The Colne Valley Community Interest Company.
6.60 The ‘vision’ for the park area is
“a sustainable network of high quality countryside, villages, green spaces and other amenities that provide a regionally significant destination for recreational and cultural pursuits. The Colne Valley Park will be a pleasant environment in which people live, work and play….”
6.61 The objectives of the park are:
(1) maintenance and enhancement of the landscape, historic environment and waterscape of the Park
(2) safeguarding of the Park from inappropriate development and encouraging good design
(3) conservation and enhancement of biodiversity
(4) opportunities for countryside recreation
(5) a vibrant and sustainable rural economy
(6) community participation and environmental education with the promotion of social well-being through access to high quality green space
25 Overall Summary
6.62 The policy provisions of most relevance to the determination of this application are:
Green Belt Economic Development Environmental Considerations Sustainability Transportation
26 7. Policy Assessment of the Proposals
Approach
7.1 The legislative basis for decision making is Section 70(2) of the Town & Country Planning Act 1990 which requires a local planning authority in determining a planning application to have regard to the development plan insofar as it is relevant and other considerations that are material, and Section 38(6) of the Act.
7.2 Other material considerations can be very wide and have a significant influence upon decision-making. However, such considerations are not all of the same weight which is an important distinction given the planning balance that has to be drawn. This Statement deals with the matter of planning balance and weight.
7.3 The Framework makes it clear that development plans must be prepared with the objective of contributing to the achievement of sustainable development and that they should be consistent with its policies and kept up to date. Wherever a development plan has no relevant policies, or the policies which are most important for determining the application are out of date, permission should be granted unless, the application of policies in the Framework provides a clear reason for refusal, or any adverse impact of approving the application should significantly and demonstrably outweigh the benefits, when assessed against the Framework as a whole.
7.4 On this basis, and having regard to Section 38(6) of the Act, the key issues to be considered in determining the planning application are:
A. whether the proposals accord with the development plan when read as a whole, and;
B. if not, whether there are considerations which indicate that the application should be determined otherwise than in accordance with the plan e.g. this includes an assessment of whether the proposals accord with the policy and guidance of the Framework (and other Government policy), and as part of this assessment;
C. whether the proposals would amount of sustainable development as defined in the Framework
7.5 These matters are considered in the following chapters of this Statement and draw upon the technical information and evidence base contained in the key documents supporting the planning application.
27 A. Whether the proposals accord with the development plan when read as a whole
Principle of the development and its location within the Green Belt 7.6 Policy GB1 and GB4 of the Adopted Local Plan identifies the application site as within the Green Belt and defines a limited range of forms of development that would be acceptable. The proposed development does not accord with these provisions.
7.7 Policy GB4 similarly states that proposals to establish new employment generating or other commercial sites or extend the curtilages of existing sites will not be permitted in the Green Belt.
7.8 The relevant Green Belt policies set out within the Adopted Local Plan are limited to the consideration of development which is appropriate to the Green Belt and does not explicitly acknowledge the scope provided by national policy to outweigh the presumption against inappropriate development in the Green Belt, and justify its approval in very special circumstances. It therefore of low significance and of limited weight.
7.9 This long-established cornerstone of national policy is set out at paragraphs 143 and 144 of the Framework, and states that:
“Inappropriate development is, by definition, harmful to the Green Belt and should not be approved except in very special circumstances”
and that:
“When considering any planning application, local planning authorities should ensure that substantial weight is given to any harm to the Green Belt. Very special circumstances will not exist unless the potential harm to the Green Belt by reason of inappropriateness, and any other harm, is clearly outweighed by other considerations.”
7.10 The Applicant acknowledges that the proposed development constitutes inappropriate development under the terms of the Local Plan policies. The Applicant therefore accepts that the proposed development is in conflict with the development plan in relation to Green Belt policy, but consider that very special circumstances exist because any and all harm arising is clearly outweighed by other considerations (see section 8.0).
7.11 Policy GB1 does not reference exception by very special circumstances (VSC) and is, therefore, inconsistent with the Framework such that only limited weight can be attached to it. In any event, this application is approached, as it must, on the basis that this long standing national provision (as confirmed by the Framework) applies.
7.12 A Green Belt assessment and the VSC case is set out at Section 8.0.
7.13 In terms of other plan aspects, the Adopted Core Strategy includes a spatial vision that refers to:
28 “…. a strong entrepreneurial spirit in the business world, with a steady stream of new small and medium sized businesses providing job opportunities that match the skills and size of the resident workforce.”
7.14 A supporting objective to this goes on to:
“Promote a balanced local economy in terms of jobs, skills and the local labour supply, and support existing businesses and small start-up businesses.”
7.15 This sits alongside a spatial strategy that refers to :
“New high quality employment generating development will be focused on existing employment sites and within the Principal Settlements.”
7.16 Core Policy 10 sets out the economic intent and is framed in a positive way, supportive of economic growth. Its supported text notes that:
“It is important that existing and new businesses in South Bucks are supported by generally protecting employment sites from redevelopment for other uses, and allowing appropriate redevelopment or expansion on existing employment sites.”
7.17 In the supporting text to Core Policy 10, reference is made to Pinewood Studios and notes the contribution that it will make to job creation (in the context of the PSDF permission).
7.18 Broader objectives are also noted within the Adopted Local Plan, which identifies five key ‘aims’, including:
- To maintain a strong and healthy local economy as a source of jobs and prosperity.
- To enhance the quality of life for the District’s residents.
7.19 When taken together, the Adopted Local Plan and Core Strategy do identify clear policies of restraint, particularly in respect of the Green Belt. However, they also recognise the importance of the economy and engendering an entrepreneurial spirit. These objectives sit at the heart of the Development Plan.
Layout and Design 7.20 Policy EP3 is a broad policy that relates to the use, design and layout of development. It references scale, layout, siting, height, design, external materials and use and suggests that proposals should be compatible with the character and amenities of the site itself, adjoining development and the locality in general.
7.21 The Development Framework & Design and Access Statement has set out the design rationale for the proposed development, noting that the scheme is outline in nature. In defining the development parameters, regard has been given to key considerations such as those outlined in Policy EP3.
7.22 The scheme is substantial in scale, but this is reflective of the form of development proposed and responds to the scale that exists at Pinewood. It is not out of scale with the application site, which itself is substantial. The development makes best use of the
29 land available, but also makes provision for extensive green infrastructure, which is a dominant feature particularly on the outer edges of the site.
7.23 In the context of the requirements of EP3, detailed compliance will be more relevant at the reserved matters stage. However, the proposals provide a firm framework for delivering a high quality development, in accordance with the intent and requirements of the policy.
Access and Transportation 7.24 Policies TR4, TR5 and TR7 relate to matters of highway, access and parking. A comprehensive Transport Assessment and Framework Travel Plan has been prepared, which respond to the provisions of the policy.
7.25 The Transport Assessment has considered each element of the proposed development in the context of the advice set out within the Framework which covers the same ground as the Development Plan policies. The Framework post-dates the Development Plan policies albeit they are aligned in purpose.
7.26 The Transport Assessment concludes that the development proposal is acceptable in transport terms and fully complies with the ‘three transport tests’ set out in paragraph 108 of the Framework, as follows:
The opportunities for travel by sustainable modes will be appropriately taken up through the comprehensive sustainable transport strategy.
Safe and suitable access for all modes of transport will be provided including vehicular accesses on to Pinewood Road and the A412 Uxbridge Road that comply with design standards and will operate without notable queuing and delay.
As a result of the proposed mitigation strategy, that includes Five Points Roundabout (FPR) and Sevenhills Road (SHR), the traffic impact of the scheme will be beneficial, i.e. there will be a net improvement in the operation of local junctions. The impact will certainly be well below the ‘severe’ level that could make the proposal unacceptable in transport terms (as provided by the Framework.
7.27 There are good opportunities for sustainable travel in the local area, with numerous walking and cycling routes already in place, and local bus services are supplemented by the operation of shuttle bus services by PGL from Pinewood Studios to nearby stations.
7.28 The shuttle buses provide excellent connectivity between the site and to three local rail stations, which are served by frequent services operating to and from London Paddington, Reading and other key destinations. Slough is served by the highest frequency of services and the introduction of the Elizabeth Line will provide a step change in capacity and frequency of these services, delivering improved connectivity to Central London.
7.29 The site is well located to take up the opportunities for sustainable travel and a comprehensive and robust sustainable travel strategy has been proposed which includes:
30 A Travel Plan that will supplement/compliment the successful Travel Plan that is already operated across the Pinewood Studios site;
Local footway and cycleway improvements;
A visitor booking strategy to maximise the use of sustainable modes and minimise traffic generation. The ticketing strategy will also ensure that all arrivals and departures are timed/controlled, as well as delivering the best possible experience for visitors (i.e. no overcrowding); and
The provision of frequent branded and high-quality shuttle bus services connecting with the Elizabeth Line at Slough. Further shuttle bus connections with Gerrards Cross railway station could also be explored in the future.
7.30 The development proposal has the potential to generate a significant number of trips. It is important that it is able to do so in order for the important and significant economic benefits of the scheme to be realised.
7.31 This significant generation of trips does not result in a significant traffic impact. The implementation of a robust sustainable transport strategy (see Section 5 of the TA) will minimise the number of car trips, and the timings of operations at the Experience will mean that a significant proportion of arrivals and departures by car will occur outside of the network peak hours (i.e. at weekends and during the school summer holidays when traffic flows on the local highway network will be lower).
7.32 Car parking is proposed to be provided at an appropriate level. For the visitor attraction, car parking levels have been set taking account of the sustainable transport strategy and in light of benchmarking exercises undertaken. For the production area, car parking has been provided based on experience in relation to both Pinewood and Shepperton Studios. The level of parking will ensure that there is no detrimental impact on the wider highway network from overspill car parking.
7.33 It is proposed to deliver both the Five Points Roundabout (FPR) and Sevenhills Road (SHR) improvement schemes through the Screen Hub UK development (i.e. if the FPR is delivered under the PSDF consent then Screen Hub UK will deliver the SHR improvement scheme and vice versa). This will be assured by planning condition and/or S106 agreement.
7.34 With the benefit of this mitigation, the impact on key junctions is set out in Table 7.1 and shows that it will more than mitigate the impact of the development proposal. The result is a net improvement in the operation of the local highway network.
31 Table 7.1: Summary of Operational Assessments
Junction With Development with FPR and SHR Mitigation Pinewood Road / Pinewood East Access Below Capacity Pinewood Road / Pinewood West Access Below Capacity Pinewood Road / Sevenhills Road Below Capacity (with new roundabout) A412 Denham Road / Sevenhills Road Below Capacity (with new signals) Pinewood Road / Pinewood Green Below Capacity Five Points Roundabout Below Capacity (with new signals and SHR upgrade) A412 Church Road / Thornbridge Road No Change compared with ‘Without Development with SHR’ A412 Church Road / Bangors Road North No Change compared with ‘Without Development / A412 Denham Road with SHR’
7.35 The traffic impact will be demonstrably short of a level that is ‘severe’, being the relevant test in the Framework, and therefore is clearly acceptable when assessed against the Framework and the relevant policies of the Development Plan.
Local Amenity 7.36 Within Policy EP3, there is reference to the scale of a proposed use being compatible with and not adversely affecting the character or amenities of neighbouring properties or the locality in general. The local character includes the substantial existing Pinewood Studios.
7.37 The Development Framework & Design and Access Statement9 illustrates how the development relates to its context, including neighbouring properties. The proposed development is substantive in scale and reflects the form and nature of the existing Pinewood Studios. It is not inconsistent with this character and its impact on the wider locality will not be significant other than the principle of introducing development onto a site that is being restored to agricultural use.
7.38 Within the ES, consideration is given to the visual impact of the proposed development. This includes a range of visual receptors, some of which are adjacent to residential areas. The assessment concludes that the only properties where there would be an impact of significance are Park Lodge and Royal Lodge (see LVIA below).
7.39 For all the other properties, the impacts are mitigated to not significant by the provision of landscaping within the green infrastructure framework.
7.40 Park Lodge and Royal Lodge are close to the application site. The visual impact assessment concludes that the impact would be moderate or moderate major, depending on the Experience layout option. It is important to note that this is an
9 Application Doc 09 – Development Framework and Design & Access Statement
32 expression of the degree of change from the existing base line and not a conclusion of impact upon residential amenity, which is dealt with separately at Appendix 3.
7.41 There is mitigation proposed around Park Lodge and Royal Lodge. This will include a landscape buffer of at least 25m in depth, which will filter views of the development. In addition, there will be a greater depth of buffer to the east of the properties and lower height parameters in all directions around the property. These features would mean that the nearest buildings could be 60-90m away from the properties and indeed, could be of a height that is substantially lower than the maximum height parameter.
7.42 The scale of change from the existing base line is significant. However, given the extent of green infrastructure and buffer provisions, together with the aspect of the dwellings (which look eastwards to Pinewood Drive, across their own residential curtilage), the impacts on residential amenity are low and satisfactory10.
Ecology and Nature Conservation including Arboriculture 7.43 Core Policy 9 refers to the natural environment and sets a clear expectation of the achievement of a net gain in biodiversity, whilst also referring to the objectives of the Colne Valley.
7.44 The ES gives consideration to the construction and operational impacts associated with the development, including the effects on bats, badger, breeding birds and reptiles, and operational effects on statutory designated sites, Local Conservation Objective (South Bucks Heaths and Parklands Biodiversity Opportunity Area), habitats, bats and breeding birds and Black Park.
7.45 Through the provision of mitigation measures, which includes landscape and habitat enhancement, no significant impacts are likely during the construction or operational phases.
7.46 The proposed development will require the rerouting of the permissive path that currently links Pinewood Road with Black Park. A more southerly connection is notionally proposed to be resolved over the process of the application. A replacement provision into Black Park would appear to be acceptable subject to discussion with Buckinghamshire Council.
7.47 As a result of the provision of primary mitigation including the provision of no less than 9.8ha of green infrastructure and demonstrable biodiversity net gain of not less than 10%, the impact will be positive to an extent that goes beyond the expectations of the Development Plan.
Landscape and Visual Effects 7.48 The ES includes a comprehensive assessment of the landscape and visual impact of development. It recognises that the development of the site will have an impact on the character of the area but that such impacts are local in scale and importance. The green infrastructure is an integral feature of the development and this plays a role in filtering views of the development.
10 A more detailed assessment of residential amenity is included at Appendix 3
33
34 Table 7.2: Summary of Residual and Significant Effects
Receptor Is the effect significant (post mitigation) Iver Heath Mixed Use Terrace LCA Yes Recreational users of the footpaths in Black Park No Residents at Park Lodge Farm No Local community to the east of Pinewood Road No Local community at Royal Lodge/Park Lodge Yes (scale of change)* Local community to the west of Pinewood Road No Local community along Uxbridge Road No Users of Pinewood Road No Users of the A412 Uxbridge Road No Residents of Warren House Farm on Church Road No Residents on Slough Road close to the roundabout No
* this is not a conclusion on residential amenity which is considered at Appendix 3
7.49 There are a number of receptors where there is the potential for a significant impact. However, taking into consideration the mitigation proposals, the number is reduced to only two possible significant impacts, associated with the general landscape and to Park Lodge / Royal Lodge (referred to above).
7.50 The Development Plan considers landscape and visual impact within broader policies relating to design matters and detailed development management style policies. The development proposals respond positively to the intent of these policies, with landscape being a key driver of the development. This is illustrated in the Landscape Strategy Document together with the Development Framework11.
7.51 The extent of landscaping and green infrastructure more generally create a positive framework for the development of the site. Where there are visual impacts, mitigation is provided. This mitigation forms part of the wider green network that extends fully around the site.
7.52 Development will be visible from outside of the site itself. This is not in itself a negative and with the benefit of the landscape framework, views will be filtered and set within a landscaped character, which includes both existing vegetation and new planting. This will deliver a sensitive and well-structured context for the site, with the proposed development being set within it – a green campus.
7.53 Such a framework responds positively to the intent of the policies within the Development Plan.
11 Application Doc 11 – Landscape Strategy Application Doc 09 – Development Framework and Design & Access Statement
35 Air Quality 7.54 Air quality has been considered within the ES, having regard to the impacts of emissions from construction and operational road traffic on NO2, PM10 and PM2.5 concentrations at sensitive receptors. This has included both existing sensitive receptors and the potential future users.
7.55 The air quality impacts of emissions from road traffic emissions associated with the construction phase on NO2 concentrations at sensitive receptors is considered not significant. The modelling assessment for the construction phase can be considered a ‘worst case’ assessment as it has been assumed the whole site will be developed simultaneously, whereas in reality this will not be the case.
7.56 The air quality impacts of emissions from road traffic associated with the operational phase on NO2 concentrations at sensitive receptors is considered significant for some specific receptors, but not significant for the remainder, including in the vicinity of the site around Iver Heath. The receptors where a significant impact could occur are around the junction of the A40 and M40.
7.57 A number of mitigation measures have been recommended in the Travel Plan, which would reduce the level of effects identified within the noise assessment, noting that the assessment has been undertaken on a worst case scenario.
7.58 Similarly, there remains some uncertainty regarding future NOx emissions. There is a growing body of evidence that shows that the most recent diesel vehicles have substantially lower NOx emissions than earlier generations and this will be reflected in lower ambient concentrations of NO2 in the future. This could suggest that the level of impact will be less than significant as a consequence.
7.59 The A40 / M40 junction is a significant element of the strategic road network, with substantive traffic travelling through it on a daily basis. The proportion that relates to the proposed development is exceptionally small and consequently, whilst the impact is noted as being significant, this is set firmly in the context of a wider pre-existing issue to which the development will contribute marginally.
Table 7.3 - Summary of Air Quality Residual and Significant Effects
Effect Receptor Residual Is the Effect Effect Significant Construction Phase Exposure to elevated Willets Lane (E36) Minor No pollutant concentrations (adverse) (emissions from vehicle Denham Road (E15 Minor No exhausts) and E31) (beneficial) Operational Phase Exposure to elevated Receptors: E34 and Moderate Yes pollutant concentrations E36 located close to (emissions from vehicle the A40 / M40 exhausts) roundabout.
36 Exposure to pollutant None Negligible No concentrations in excess of the relevant air quality objectives
Ground Conditions 7.60 The site is currently undergoing the final stages of restoration following mineral extraction and subsequent land fill. Due to the stage of restoration, the site is subject to environmental permits and waste permits. These permits provide the regulatory means of control over the monitoring and mitigation of any ground conditions or contamination issues.
7.61 The monitoring undertaken to date has not identified any issues and the process of surrendering the permits will include on-going monitoring post restoration as part of the after-care regime. This includes gas and groundwater monitoring, which has been taking place over an extended period.
7.62 The Development Plan does not place any specific policy requirements, other than Core Policy 13, which relates to environmental and resource management or specific mineral development polices within the Bucks Minerals and Waste Local Plan. The proposed development responds positively to these policies, particularly Policy 25, which includes reference to:
The restoration of sites for economic development purposes will be supported where fully in accordance with relevant planning policy and a secondary after-use is included that incorporates an ecologically beneficial after-use within the restored function
7.63 The proposed development responds directly to the intent of the policy.
Heritage 7.64 There are limited heritage assets in the vicinity of the site. There are two listed buildings, one of which is within Pinewood Studios (Heatherden Hall) and the other is Little Coppice, which is a Grade 2 listed cottage located to the east of Pinewood Road.
7.65 This cottage is well contained by existing landscaping and whilst there is a visual relationship between the application site and the cottage, the views are distant as the cottage is set well back from the edge of Pinewood Road and the proposed landscaping will act as a filter.
7.66 Heatherden Hall is set within formal garden, surrounded by a significant tree belt, minimising any interaction between it and the application site.
7.67 Policy Core Policy 8 of the Core Strategy refers to the historic environment and suggests that heritage assets will be afforded the highest level of protection. However, the level of impact on such assets is negligible and no heritage harm arises.
Lighting 7.68 A framework lighting strategy forms part of the ES (Appendix 4.1). This has been provided as a basis upon which the lighting impact of the proposed development will
37 be assessed at the reserved matters stage, this being the appropriate point to consider the detail of lighting.
7.69 The outline assessment has identified likely sensitive receptors, reviewed the proposed scheme and defined parameters such that at the design stage the external obtrusive light will be minimised and it will not impact on the sensitive receptors.
7.70 The detailed design and calculations in relation to external lighting will be undertaken in future stages of the project and will be guided by legislation, national and local planning policy and lighting design guides and the strategy demonstrates that a lighting scheme can be designed which fully complies with the aims and objectives of those.
Noise and Vibration 7.71 The noise assessment is contained within the ES and assesses a range of impacts associated with the construction and operation of the proposed development. This assessment has set out the following conclusions in respect of impact and significance:
Table 7.4: Summary of Residual and Significant Effects
Effect Residual Effect Is the Effect Significant Noise from construction Minor adverse No activities (excluding traffic) Noise from construction road Minor adverse No traffic noise Construction vibration from use Minor adverse No of compaction plant Negligible No Operational road traffic noise on Minor adverse No surrounding roads Operational road traffic noise Minor adverse No within Proposed Scheme Negligible No
7.72 Whilst not significant, there will be some noise impacts associated with the development. At the reserved matters stage, there will need to be consideration given to appropriate mitigation to ensure that the amenity of residential properties adjacent to the scheme are protected.
7.73 To enable this, there will be a noise mitigation strategy submitted alongside the reserved matters submission, which will identify the detailed impact of the scheme and what mitigation may be required. This would include layout considerations together with the provision of attenuation, such as land form and fencing in areas where an impact may occur. More detailed matters of operation can also be controlled through a noise management plan.
7.74 As a consequence, the noise associated with the construction and operation of the development can be appropriately managed with no material residual impact.
38 Sustainability and Energy 7.75 Core Strategy policies 12 and 13 deal with sustainable energy and environmental and resource management. They require new developments to secure at least 10% of their energy from renewable, low carbon sources and be water efficient and protect water quality.
7.76 The submitted sustainability statement12 demonstrates how the proposed development will deliver a high quality, sustainable development through providing a range of benefits and mitigating and adapting to climate change.
7.77 Measures proposed include the commitment to achieve, where feasible, a BREEAM Very Good rating with an aspiration to target the excellent level credits in energy and water and the appointment of a Sustainability Champion.
7.78 The measures proposed respond positively to national and local planning policy, as well as the climate emergency recently declared by Buckinghamshire Council.
Conclusion
7.79 The proposed development has been assessed against the provisions of the Development Plan and it has been shown that, with the exception of Green Belt, it is in accordance with relevant polices. However, given the significance of Green Belt policy the scheme is not in accordance with the development plan when read as a whole.
7.80 A Green Belt assessment is set out in Section 8.0.
7.81 The effect upon the environment, local amenity and the living conditions and quality of life of adjacent residents will be acceptable, in design, construction and technical terms. Where there are some residual impacts, these are limited and carry low weight.
B. Whether the proposals accord with the policy and guidance of the Framework
7.82 The Framework contains guidance on a number of themes.
7.83 Those relevant to this application are set out below and the scheme assessed against them:
• Building a strong competitive economy • Delivering sustainable development • Promoting sustainable transport • Requiring good design • Conserving and enhancing the natural environment • Green Belt
Building a strong competitive economy 7.84 The proposed development contributes to both the local and national economy through meeting a recognised need.
12 Application doc 17 – Sustainability Statement
39 7.85 As the Buckinghamshire LEP has acknowledged, the role of Pinewood is of significant importance, both as a driver of the economy and as a specific response in its recovery strategy. The development respond directly to those objectives and to those economic dimensions that the Framework identifies as being of importance. The role of the proposals as an innovative response of global importance is of particular relevance.
7.86 The guidance in paragraph 80 of the Framework suggests that planning decisions should help create the conditions in which businesses can invest, expand and adapt. The development responds directly to this, enabling the delivery of a global growth hub and supporting substantive investment.
7.87 The Framework confirms that significant weight should be placed on the need to support economic growth and productivity. The development represents a major opportunity that can only be realised at Pinewood, supporting both screen based industry and tourism, whilst also responding to specific commercial and educational opportunities.
Delivering Sustainable Development 7.88 Details on the sustainability credentials of the development are set out in C. below.
7.89 The development complies with the principles of the Framework in delivering a sustainable form of development in economic, environmental and social terms.
Promoting sustainable transport 7.90 The application is supported by a full Transport Assessment and Framework Travel Plan detailed in paragraphs 7.24 to 7.34 and is in accordance with paragraphs 108 to 111 of the Framework.
Requiring good design 7.91 Paragraph 124 of the Framework identifies the great importance placed on the design of the built environment and its contribution in making development acceptable to communities. The Development Framework / Design and Access Statement submitted in support of the application set out a series of design themes which have been considered through the design evolution of the scheme.
7.92 The parameters approach ensures that the framework for future development is transparent and that sensitivities in relation to design, visual appearance and the amenity of adjoining users are addressed in an acceptable way.
7.93 Whilst detailed design is a reserved matter, the parameters approach ensures that the proposed development accords with the principles of good design set out within the Framework.
Conserving and enhancing the natural environment 7.94 Paragraph 170 of the Framework states that planning decisions should contribute to and enhance the natural and local environment.
7.95 Relevant technical documents are submitted in support of the development proposals, including a Landscape Strategy and Ecological Assessment. These demonstrate that
40 there is a significant net gain in biodiversity, delivered through an extensive network of green infrastructure.
Green Belt 7.96 A full assessment of the proposals against the relevant policies of the Framework is included at Section 8.0. It demonstrates that, whilst the development constitutes inappropriate development and there is harm to the Green Belt by virtue of impact on openness and encroachment, very special circumstances exist because all such harm is clearly outweighed by other considerations, so as to warrant the grant of planning permission.
C. Whether the proposals would amount to sustainable development as defined in the Framework
7.97 This section provides an outline of how the proposed development constitutes sustainable development as defined by the Framework and the weight that should be attached to it.
Approach
The Framework 7.98 The Framework identifies at paragraph 7 the purpose of planning and of the Framework as one of achieving sustainable development. Sustainable development is aligned with growth and it indicates that such development should go ahead without delay.
7.99 Taken as a whole, the Framework constitutes the Government’s view of what sustainable development means in practice for the planning system. The Framework re-states the statutory test in section 38(6) of the Act.
7.100 The sustainability credentials of the proposals are a material consideration. The assessment of the proposals as sustainable development in accordance with the Framework as a whole is therefore relevant, significant and of considerable weight given the priority attached to it.
7.101 The Framework provides guiding principles for the assessment of sustainable development including economic, social and environmental discussions.
7.102 These three objectives are elaborated in paragraph 8, which notes:
• economic objective – to help build a strong, responsive and competitive economy, by ensuring that sufficient land of the right type is available in the right places and at the right time to support growth, innovation and improved productivity; and by identifying and coordinating the provision of infrastructure
• social objective – to support strong, vibrant and healthy communities, by ensuring that a sufficient number of range of homes can be provided to meet the needs of present and future generations; and by fostering a well-designed and safe built
41 environment, with accessible services and open spaces that reflect current and future needs and support communities’ health, social and cultural well-being
• environmental objective – to contribute to protecting and enhancing our natural, built and historic environment; including making effective use of land, helping to improve biodiversity, using natural resources prudently, minimising waste and pollution, and mitigating and adapting to climate change, including moving to a low carbon economy.
7.103 These objectives should not be taken in isolation and decisions need to take local circumstances into account so they respond to different opportunities for sustainable development in different areas. There is not a fixed UK standard and therefore each proposed development has to be individually assessed in its own context. A summary is set out below against each objective.
Table 7.5: Sustainability Objectives Summary
Economic The provision of approximately 1,500 direct and indirect jobs during construction with a contribution of £311m GVA to the wider UK economy. Once completed the development will deliver a range of significant beneficial economic and social impacts for the UK and the Buckinghamshire LEP area, including: 1,438 gross direct FTE jobs Indirectly a further 2,128 FTE jobs would be supported across the UK economy £230m GVA per annum to the UK economy A tourism / visitor spend of £124m per annum An investment of circa £450m In addition, the education and business hubs would seek to support: Start up and support for new screen related businesses, with an initial aim of 50 new businesses. Training and reskilling, with an initial target of 500 people.
Social Measures to enhance the health and wellbeing through the creation of green spaces and healthy working environments, with the development set within well defined green infrastructure. Sustainable transport enhancements including the continuation and expansion of sustainable transport plans associated with the existing studios and the creation of substantive new links to support connectivity between the visitor attraction and non-car based networks (including the Elizabeth Line and Crossrail).
42 Improvements to existing junctions on the local highway network to provide betterment to the operation of junctions. This will include the delivery of both the Seven Hill Road improvements and enhancements to Five Points Roundabout. The creation of Centre Stage, as a multi-functional hub that will provide the education/business growth and community uses/accommodation. The contribution of the Screen Hub UK to ‘social cohesion’ and wellbeing through the creation of jobs, the education provision and the proposed community-cultural shared use of the Centre Stage Hub. Specific benefits could include: school visits to the experience as outreach and awareness of film and screen also making use of facilities education courses or modules across film and screen media specialist academy providing practical training courses in film production with an emphasis on craft skills entrepreneurial training and accommodation with specialist expertise/facilities (studio and production) shared accommodation and services for community use a screening cinema/theatre (refer to “The Case for Growth and Recovery” document for more detail)
Environmental Good design which responds to the constraints and opportunities of the site including the delivery of substantive areas of green infrastructure. Comprehensive green/blue infrastructure to deliver a significant gain in biodiversity and quality of the ecological asset. A sustainability strategy in relation to energy, water, waste and carbon reduction, including a commitment to mitigating and adapting to the impacts of climate change. A sustainable transport plan.
The Sustainability Statement 7.104 The Sustainability Statement demonstrates how the proposed development:
• will be delivered in accordance with PGL’s sustainability policy • will deliver a range of economic, social and environmental benefits • can deliver sustainable transport and accessibility
7.105 PGL has a proactive approach to sustainability which includes a set of corporate energy, carbon reduction and waste targets. Ensuring the development is delivered in accordance with these targets is a key aim.
43 7.106 At a corporate level PGL’s sustainability goals include:
• Reduce carbon emissions by 50% of the 2010/11 benchmark by 2030;
• Continue to drive a zero waste to landfill policy.
7.107 PGL has also taken the step to purchase 100% renewable electricity to ensure all its operations are supplied by renewables.
7.108 To ensure new developments are sustainable PGL have adopted a range of Environmental and Social Governance (ESG) requirements which are applied from the outset of the design process. The PGL ESG requirements address a wide range of sustainability criteria related to key sustainability issues such as resource use, health and wellbeing and climate resilience.
7.109 The range of economic, social and environmental benefits to be delivered are included within Table 7.5.
7.110 In this context it is concluded the expansion reflects the sustainability objectives of PGL, provides a sustainable, transport context and will deliver a range of economic, social and environmental benefits.
Conclusion
7.111 Taking the three objectives together the sustainable development status of the proposals is demonstrated.
44 8. Green Belt
8.1 In accordance with the Framework, this section of the Planning Statement will assess whether:
“the potential harm to the Green Belt by reason of inappropriateness, and any other harm resulting from the proposals, is clearly outweighed by other considerations” (per paragraph 144 of the Framework).
8.2 The chapter considers the degree of harm caused to openness and purposes as a result of the proposed scheme. It goes on to debate the scope of the Screen Industries Global Growth Hub (Screen Hub UK) proposals to enhance the beneficial use of land in the Green Belt. Finally it will consider whether very special circumstances exist to justify a grant of planning permission.
Assessment of harm to the Green Belt
8.3 The fundamental aim of Green Belt is to prevent urban sprawl by keeping land permanently open (paragraph 133 of the Framework). This is achieved by protecting its intrinsic openness (the absence of built development) rather than visual amenity (experience or aspect), or the visual quality of land or a landscape.
8.4 Visual aspects may be a consideration, principally in the context of the appearance of openness. Green Belt is not a policy that relates to the quality of the landscape or its protection. These aims are well established and set out in the Framework.
8.5 The proposals constitute inappropriate development for the purposes of paragraphs 143 and 144 of the Framework and are ‘by definition’ harmful. This is a policy harm to be given substantial weight.
Effect on the purposes of including land within the Green Belt 8.6 The Framework identifies five purposes that Green Belt serves (paragraph 134):
to check the unrestricted sprawl of large built-up areas;
to prevent neighbouring towns merging into one another;
to assist in safeguarding the countryside from encroachment;
to preserve the setting and special character of historic towns; and
to assist in urban regeneration, by encouraging the recycling of derelict and other urban land.
8.7 The proposals are assessed against these purposes below:
To check the unrestricted sprawl of large built up areas 8.8 The proposed development will result in an extension of the built-up area.
45 8.9 The scale of this expansion on to Green Belt land is circa 32ha within a substantially larger swathe of Green Belt extending across 87% of the former South Bucks administrative area.
8.10 The application site does not sit adjacent to, or between ‘large built up areas’.
8.11 Identified and significant features, such as Black Park and Uxbridge Road provide clear and firm development boundaries.
8.12 As the proposal is justified by exception it will not represent ‘unrestricted’ sprawl.
8.13 Consequently, there is no conflict with this purpose.
To prevent neighbouring towns from merging into one another 8.14 The proposed development is situated to the west of Iver Heath, forming part of the wider gap between Gerrards Cross and Iver Heath and between Slough and Iver Heath. It also forms part of the gaps between Iver Heath and the Green Belt settlements of Fulmer and Wexham Street.
8.15 The area is contained by Black Park to the west and by the existing Pinewood Studios to the north. This containment limits the erosion of the gap between settlements and suggests that the site makes a limited contribution to preventing coalescence with other settlements.
8.16 The proposed development will not result in the merging of towns in any physical sense as set out in the Framework. The existing distances and retained breadth of separation between settlements will ensure that the merging of neighbouring towns (or settlements) will not take place as a consequence of the proposed development and the Green Belt will not be fragmented.
8.17 There is limited harm to this Green Belt purpose.
Safeguarding the countryside from encroachment 8.18 The proposed development will result in the physical encroachment onto land which, post restoration, would be regarded as countryside.
8.19 This purpose relates principally to openness and potentially a contribution to the beneficial use of land within the Green Belt.
8.20 There is some existing development within the site, at Royal Lodge and Park Lodge. These are large scale, modern residential properties with substantive outbuildings.
8.21 Given the extent of development proposed, there is harm to this purpose and whilst the presence of Black Park provides a firm and enduring boundary, the development will develop the existing fields between Pinewood Road and the woodland edge, mitigated by the green boundary treatments.
To preserve the setting and special character of historic towns 8.22 This purpose is not compromised and not relevant to the assessment. The site is not within any proximity to a historic town.
46 8.23 Therefore, there is no conflict with this purpose.
To assist in urban regeneration, by encouraging the recycling of derelict and other urban land 8.24 This purpose will not be compromised because the proposed development is geographically fixed at Pinewood. There is no alternative and it cannot be disaggregated.
8.25 There are no non-Green Belt sites that could be used as a preference and so support urban regeneration and recycling of derelict and urban land.
8.26 There is therefore no conflict with this policy purpose.
Conclusion on Green Belt Purposes
8.27 For the reasons set out above it is acknowledged that the proposals would constitute inappropriate development and give rise to substantial harm arising from a loss of openness and encroachment into countryside and limited harm in relation to the merging of neighbouring towns.
Use of Land within the Green Belt
8.28 Once Green Belts have been defined local planning authorities should plan positively to enhance the beneficial use of the land within them (paragraph 141 of the Framework).
8.29 These opportunities include:
providing for access; providing for outdoor sport and recreation; retaining and enhancing landscapes, visual amenity and biodiversity; and improving damaged and derelict land.
8.30 This is an encouragement to make better use of Green Belt land once defined within the context of its principal purposes. The extent to which the proposals contribute to the beneficial use of land in the Green Belt is a material consideration and is assessed below.
To provide access, outdoor sport and recreation 8.31 The proposed development will remove an existing permissive path (the Peace Path) that runs through the site from Pinewood Road to Black Park.
8.32 A permissive path between Pinewood Road and Black Park will be reprovided on an alternative route.
To retain and enhance landscapes, visual amenity and biodiversity 8.33 The masterplanning and landscape design process which has been followed in preparing the proposals has ensured that the likely impact of the development on local landscape character and the visual amenity of the Green Belt is minimised.
47 8.34 Overall the development is likely to give rise to some negative landscape and visual effects during construction and when operational. The provision of extensive green infrastructure, located on all outer boundaries of the site will mitigate these impacts, with filtered views of the development.
8.35 The work that has been undertaken in the design process around ecology and biodiversity is extensive. The scheme will deliver a substantive net biodiversity / ecological gain.
8.36 This benefit is significant and should be weighed positively in the assessment
To improve damaged and derelict land 8.37 The site is not damaged or derelict land and is in the process of final restoration post minerals extraction works. The proposals therefore result in a negligible impact on the improvement of damaged / derelict land.
Conclusion on the use of land within the Green Belt 8.38 Overall, the development will have a positive effect upon the opportunity to secure the beneficial use of land within the Green Belt, due primarily to the significant green infrastructure provision and the resulting gain in net biodiversity value.
Conclusion on the overall assessment of harm to the Green Belt
8.39 Taking Green Belt as a whole in order to provide an input to the planning balance, the proposed development:
is inappropriate development and, by definition, harm to the Green Belt and its characteristic of openness would arise
would result in harm to the Green Belt purpose of encroachment into countryside
would have limited harm to the purpose of preventing the merging of towns
would in addition have a substantial impact on landscape character by degree of change from a restored quarry
8.40 In accordance with paragraph 144 of the Framework the identified harm to Green Belt arising from the proposals should be given substantial weight in the determination of the application.
8.41 The key balancing consideration is whether this harm is clearly outweighed by other considerations, such that very special circumstances exist so as to justify a grant of planning permission.
Material considerations supporting the proposals
8.42 On the basis that the proposals constitute inappropriate development within the Green Belt, material considerations are required to justify the proposed development, and which would comprise very special circumstances to justify a grant of planning permission. These considerations are:
48 (1) The geographically fixed location of Pinewood Studios (there is not a choice of location)
(2) The implementation of Government/LEP approved Industrial Strategy
(3) The economic benefits in support of economic recovery predominantly new employment, retraining/reskilling, growth of the local economy, tourism boost
(4) The environmental benefits, predominantly a significant gain in ecological asset and biodiversity and furtherance of Colne Valley Park objectives
(5) The social/community benefits, opportunity for shared facilities and extensions to permissive path network
(6) The enhancement of arts, culture and tourism
8.43 These considerations are examined in greater detail in the remainder of this chapter.
(1) The geographically fixed location of Pinewood Studios
8.44 The opportunity to deliver a growth hub only exists at Pinewood.
8.45 The presence of the existing studio, together with its unique and worldwide reputation creates an opportunity that cannot be replicated in any other geography.
8.46 The existing studio provides a legacy that includes some of the most celebrated and successful movies, together with cutting edge innovation in the way in which movies and television are filmed and produced.
8.47 This relationship creates a link not only to the past and present of film making, but also to its future, with Pinewood being current home to Disney and other word renowned film companies who will continue to use the site for the production of blockbuster movies.
8.48 The creation of a visitor attraction, built around this geographic connection will provide an authentic experience that has world wide appeal. This appeal only exists because it sits at the Pinewood home, where the movies are made.
8.49 The geographic ‘fix’ also applies to the other elements of the proposal. The provision of additional floorspace for film production represents an expansion of existing capacity at Pinewood, whilst also creating an opportunity to deliver a working film studio that has a relationship with the visitor attraction. This link adds to the authenticity of the attraction.
8.50 Further film production space would respond to the substantial demand that exists in both the West London Cluster and at Pinewood itself. The scale of the additional floorspace is such that it is capable of accommodating the production of a large ‘blockbuster’ scale movie.
8.51 The business and education hubs are also locationally tied to the existing film studio and indeed to each other. Centre Stage is a multi-functional hub that will provide
49 education/business growth and community uses/accommodation (in a way that is complementary to other local initiatives and investments). The key components of the Centre are:
an education hub a business growth hub shared community use a possible screening cinema/theatre common services facilities
8.52 Each of these components is tied to the existing film studio, where there can be a direct interrelationship with its intellectual and commercial presence and advantage taken of the skills, opportunities and facilities present within Pinewood. A hub in its truest sense, which simply cannot exist elsewhere.
8.53 Although each of the elements of the scheme have their own individual geographic ties to the Pinewood site, they should be considered as a single inter-related entity that is unique not only to the geography of Pinewood but also to the concept of a screen industries global growth hub. It would be an internationally renowned facility because of its association with the Pinewood brand and location.
8.54 Pinewood Studios is well utilised, with the PSDF having identified redeveloped opportunities within Pinewood West, together with expansion on Pinewood East. These opportunities are being developed. To accommodate the growth associated with the growth hub, it requires additional land outside the existing confines of the studio and by implication further expansion into the Green Belt.
8.55 The existing studio is set within the Green Belt and given the locational imperative defined above there would be no alternative but to utilise Green Belt land in order to accommodate the development proposal.
(2) The implementation of Government/LEP approved Industrial Strategy
8.56 The screen industries global growth hub is defined within the LEP industrial and recovery strategy. It responds directly to the industrial strategy at both national and LEP levels.
8.57 The various levels/layers of industrial and economic strategies provide for13:
major growth of the film and high end TV studio and skills capacity in the UK noting Pinewood as a leading provider and site
the enhancement/mobilisation and development of Pinewood Studios (and National Film and Television School) as internationally significant economic assets
the growth of the creative and digital sector in Buckinghamshire including the development of a Screen Industries Global Growth Hub at Pinewood
13 See Section 6 above
50 targeting Pinewood Studios for the Growth Hub (above), a film-inspired visitor ‘experience’, new studio development, and a Buckinghamshire Film Office in the Economic Recovery Strategy
8.58 The proposed Screen Hub UK is consistent with the industrial and recovery strategies and economic priorities of HM Government and Buckinghamshire LEP. The scheme therefore has strong support from the public sector which adds considerable weight in planning decision-making.
8.59 There is a clear direction from national to local level of the importance of Pinewood and the concept of a global growth hub. This provenance sits outside of the Development Plan, which pre-dates the Industrial Strategy and the work of the LEP. It represents a clear direction of economic development, bespoke to the opportunity that exists at Pinewood and part of a national and regional context.
8.60 The emphasis on the growth hub as an integral feature of the LEP recovery strategy, in response to economic challenges associated with Covid and Brexit, demonstrates not only its importance to Buckinghamshire, but also to the timing of its realisation.
8.61 The demand for screen-based content production (including digital streaming services) in the UK remain strong with a continuing shortfall in facilities. The ‘targets’ set out by Government in the Creative Industries Sector Deal have not been met to date.
8.62 The proposed studio expansion is planned to be operated alongside the existing Pinewood Studios and to play a role in the ‘Live Pinewood’ elements of Experience Pinewood.
8.63 The new studios space is intended to integrate with the existing studios and would add capacity for, broadly, the scale required for a single major film production. More typically it would operate alongside the existing Studio estate and provide flexibility for multiple productions at the same time.
Studio capacity UK 8.64 There is a continuing demand-led requirement for inward investment and home film production space which is not being met. The British Film Commission as a Government-funded agency to attract and support film-making in the UK is clear that there remains a studio shortage and that the ambition of Government in the Creative Industries Sector Deal has not been met.
8.65 In the British Film Commission letter of support they indicate that:
“The BFC leads on maximising and supporting the production of major international feature film and high-end TV (HETV) in the UK, strengthening and promoting the UK’s film and TV infrastructure, and liaising between the Government and the film and TV industry to secure and maintain production-friendly policies.
The UK film and TV sector is a world-wide economic and cultural success story. The sector, and its benefits, are growing faster than any other part of the UK economy. This success demonstrably impacts not just the UK’s creative economy but also our national economy. However, with this success have come major challenges. A key area of the
51 BFC’s work is advising and helping source locations, key crew and talent and, crucially, studio space for major productions. The increase in content demand, which has not abated during the Covid-19 pandemic, has led to severe stage space capacity shortages. This, in turn, has led to the loss of multiple feature films and TV series to competitor jurisdictions, with the resultant loss of millions of pounds in GDP and thousands of UK jobs. We are still committed to the growth of inward investment in UK film and high-end TV as targeted in the Creative Industries Sector Deal; a more than doubling in growth to approximately £4bn a year by 2025. To achieve this, we need further skills development for the industry and significantly more studio space, notwithstanding the welcome schemes at Shepperton, Belfast Harbour, Dagenham, Elstree and elsewhere, the diversity of which meet the varying demands of our film, TV and streaming clients.
The scale of the investment and economic benefits are clearly substantial and would be welcome in our industry as we all seek routes to recovery and growth.
We are pleased to be able to confirm our support for the Screen Industries Global Growth Hub project and if we can assist in bringing it forward in any way please contact me.”
8.66 The British Film Institute make similar points in their letter of support:
“The proposed visitor attraction (The Pinewood Studios Experience) with its inspiration being drawn from the Studios’ heritage and world-class reputation plays directly into the cultural appreciation and understanding of film. I was particularly interested in the potential links to film-related education, the potential role that content from the BFI National Archive might play, your plans for developing a skills programme and also your plans to provide space for start-up and growth businesses so vital to the future success of the screen sector economy. As these projects develop, we would be very interested in discussing whether there would be opportunities for programmes such as the BFI Film Academy and Creative Enterprise to find a place as part of the Screen Hub you are developing.
Finally, we are all focussed upon how our industries can contribute to the recovery effort that is needed in the UK (and globally) arising from the dramatic impacts of the CV-19 pandemic. The film, TV and moving image sector has not been immune but has fared better than most and we believe that it can be a force for good in the recovery effort. A project of the scale and potential of the Global Screen Growth Hub would I am sure make a strong contribution. We wish you well with the planning and design of the project which we are pleased to support.”
8.67 The reported continuing shortage is despite all the permitted studio space at Pinewood and Shepperton Studios being brought forward and other, smaller, regeneration-led schemes being granted planning permission, including:
Elstree : a joint development between Sky and NBCUniversal for c. 550,000 sq ft comprising of twelve stages, workshop and offices
52 Dagenham : a local authority led regeneration scheme that will provide c. 260,000 sq ft comprising 6 stages, workshops and offices
Ashford : a landowner led large mixed use regeneration scheme including c. 170,000 sq ft of film/tv studios comprising 4 sound stages, workshops, offices and a media village. The development also includes a hotel, serviced apartments, residential units and general commercial and retail space
Reading : a potential development being promoted by Blackhall Studios and the University of Reading for c. 500,000 sq ft of studio space on land within the Thames Valley Science Park
8.68 Supporting the growth hub is an urgent and substantive need, which is required now to boost the regional and national economy. This further elevates its importance and the weight to be attached as a material consideration, such that it is realising both a long term benefit and is responding to the urgent current need.
(3) The economic benefits in support of economic recovery predominantly new employment, retraining/reskilling, growth of the local economy, tourism boost
8.69 A development of the scale and type proposed – a £450m investment – has the potential to bring substantial economic benefits directly and indirectly and locally to nationally.
8.70 The investment is being proposed at a time when the global pandemic of COVID-19 has had a substantial adverse impact upon the national economy in a short passage of time. This context has added urgency and importance to the cascade of industrial (and economic) strategy summarised above. The need to support all aspects of recovery is high in relation to:
reopening of existing economic activities across all sectors
recasting/repurposing of uses and development that have permanently lost their former economic position
a priority for new economic development
A national picture 8.71 The economic headline figures at a national level include:
Across Great Britain as a whole, there were 2.62 million out of work benefit claimants as of July 2020.
Total claimant figures have increased by 121% across Great Britain since January 2020.
Jobseeker’s Allowance (JSA) claimant figures show that circa 132,835 people were recorded as seeking employment in construction-related trades (as at July 2020).
53 There were a total of 252,700 people seeking work in sales and customer service and roles and in elementary occupations (such as kitchen and catering assistants; waiters, waitresses; bar staff; leisure and theme park attendants; security guards and related occupations)
A local picture 8.72 The Buckinghamshire LEP has published a summary of the economic impacts that are being acutely experienced within the Buckinghamshire economy. These include:
the impact on the aviation industry is severe on direct employment and in the supply chain with an anticipated long return to ‘normality’ – the reskilling from aviation to film and other sectors is a priority
the automotive industry has been significantly affected although recovery is expected to be swifter
the retail and hospitality sectors have been hard hit although temporarily supported by government scheme. The impacts upon the food and drink sector in the post support period is uncertain
the unemployment claimant count increased by 10,000 people in the period March – May 2020. As of July 2020, there were circa 15,235 people claiming out- of-work benefits.
one-third of the workforce were furloughed in July with a risk of significant numbers not being re-employed
8.73 The recovery strategy focuses upon strengthening Buckinghamshire’s economic assets, in particular in the creative and digital sector.
Government 8.74 HM Government is placing substantial weight upon identifying and funding routes to recovery. This includes:
investment in infrastructure (public and private sector)
encouragement and support for construction and development (Build, build, build)
£900m for ‘shovel-ready’ projects over the UK (much delivered through the LEPs)
a programme of planning reform to seek to make the grant of planning permission for development simpler and faster in support of growth
8.75 The priority that is being placed upon economic recovery (in part) through new developments and uses will change the nature of planning decision – making, particularly in relation to drawing the planning balances necessary between harms and benefits.
8.76 This will have strong application for Green Belt decision-making – in particular the identification of very special circumstances and weight to be attached to economic and
54 social benefits. The implication is that the economic case carries significantly greater weight.
8.77 The UK economy has been stressed by the effects from the COVID-19 pandemic with business closures and unemployment all rising significantly. The need to support development that will provide the basis of a recovery is urgent and supported by Government. The need to bring forward economic development is critical and to be given additional weight in planning decision-making.
Economic Impact Assessment 8.78 The application includes a technical assessment of economic impact which covers: jobs (construction and operational), increase in economic activity value (GVA), tourism effects, business growth and education/skilling14.
Investment value 8.79 The full development extends to a built floorspace of 750,000 sq ft over a site area of 32 ha (77 a). The estimated construction cost/involvement is £450m.
Employment/jobs 8.80 The protection and creation of jobs is a critical output of the application scheme. The jobs are estimated for operation of the scheme and for its construction.
Operational jobs 8.81 The estimation of jobs includes sources of:
visitor attraction education hub studio production business growth hub
8.82 The job numbers total 3,567 (FTE) and are made up as in the table below.
Table 8.1: Job generation
Source Number FTEs A DIRECT Experience 392 Production studio 941 Education hub 39 Business hub 66 Total direct 1,438 B INDIRECT AND INDUCED
All uses / total indirect and induced 1,230 C OTHER Spill over effects 198 Visitor expenditure 701 Total net additional 899
TOTAL A + B + C 3,567
14 Application Doc 15 – Economic and Social Benefits Assessment
55 Construction jobs 8.83 The estimate of construction jobs is 1,648 pa over a three year construction period.
Gross Value Added (GVA) 8.84 GVA is a measure of the contribution of an enterprise to the value of goods and services generated in a given area.
8.85 For the completed development the increase in GVA is estimated at £230m pa.
Tourism spend 8.86 The additional tourism spend is estimated at £124m pa.
Education 8.87 The education hub is intended to provide for all ages although with a short-term focus upon reskilling of the local workforce following the permanent impact on some sectors (eg. aviation). A minimum target of reskilling of 500 people pa is proposed in the first three years from set up.
Business growth 8.88 The business growth hub is targeted to support the set-up and growth of 50 new businesses in the first three years from set up.
Conclusion 8.89 The economic benefits are substantive both individually and cumulatively.
8.90 Pinewood is already one of the leading employers in Buckinghamshire and its expansion provides a further opportunity to deliver high value jobs in a sector that is both stable and open for continued growth. This contrasts with the wider economic context where unemployment is growing significantly and there is considerable economic uncertainty.
8.91 In addition, the visitor attraction will open up opportunities for a broader range of skills and roles, many of which relate to sectors where unemployment growth has been significant.
8.92 The level of job creation and wider suite of economic benefits is a significant and substantial material consideration in any economic and social context. However, the weight to be attached in decision-making in the current economic condition is significantly increased.
(4) The environmental benefits, predominantly a significant gain in ecological asset and biodiversity and furtherance of Colne Valley Park objectives
8.93 The environmental benefits relate to the protection and enhancement of the natural environment, making effective use of land, improving biodiversity and most appropriate use of resources in adapting to climate change.
8.94 The proposed development site is a part restored aggregates quarry which has been backfilled with inert waste. The existing natural asset value is therefore low. The
56 scheme proposes a comprehensive green/blue infrastructure to deliver a significant gain in biodiversity and quality of the ecological asset.
8.95 The development will sit within a green campus, with around 10 hectares of land dedicated to green infrastructure. This will be delivered through a strategy to create a strong and resilient framework for development, informed by landscape, visual and ecological assessment. The strategy will realise a range of opportunities to reinforce, extend and enhancing landscape and ecological assets in an integrated manner.
8.96 The key existing landscape features, predominantly located around the perimeter of the site, will be central to this process with their assets used to create significant and lasting green and blue infrastructure.
8.97 There are three core strands that will help deliver the strategy:
An enhanced woodland framework – the strengthening and management of existing woodland and the creation of new woodland and scrub planting to create meaningful woodland corridors.
The creation of ecological corridors – the strengthening and enhancement of existing corridors and their significant extension through the design of new woodland, planting and meadows supported by ecological features such as log piles.
An integrated SuDS provision - the provision of any required attenuation and infiltration facilities, designed to provide associated landscape and ecological benefit. Many of these large swale systems would run parallel with the proposed woodland corridors with each reinforcing the landscape and ecological benefit of the other.
8.98 The strategy aligns with the aims and objectives associated with the Colne Valley Regional Park Action Plan:
Protect: restore and strengthen the landscape character, focusing on key habitats providing resilience and long term sustainability
Manage: existing habitats and features including veteran trees to conserve and enhance biodiversity
Enhance: creation of new woodland, heathland and acidic grassland and wetland habitats
8.99 The proposed development will deliver a site where the ecological and biodiversity value will have been significantly enhanced, by at least 10% on site and there being local potential to increase this further.
8.100 The creation of a strong green network within and around the development will include corridors that are 25-30m deep, with woodland planting and ecological connectivity. They will create substantive linkages between Black Park and the enhanced green infrastructure along Pinewood Road.
57 8.101 These features are significantly more valuable than the existing site, either in the context of its previous use as a site for mineral extraction and landfill, or its restoration to open agricultural fields with no material ecological or landscape gain.
8.102 This gain is both substantive in its own right and supportive of wider policy objectives, both at the national level in the Framework and locally in response to the Colne Valley.
8.103 It is a material consideration of significant weight.
(5) The social/community benefits, including opportunity for shared facilities and extensions to permissive path network
8.104 As part of the proposed development the applicant proposes a range of related community benefits which include:
Community shared use of the ‘Centre Stage’ hub building – accommodation and services15
Workspace opportunity within the Centre Stage building16
Community engagement and partnership activities (eg. film screenings, school visits, careers advice and fairs, volunteering, working with the Pinewood Community Fund17
Providing linkage with and extension of the established Pinewood permissive path network
Support for local communities from the Pinewood Community Fund under the Group’s ‘Set for More’ programme
(6) The enhancement of arts, culture and tourism
Arts and culture and tourism 8.105 The cultural dimension of film and creative industries was highlighted in the Prime Minister’s speech to its leaders at Downing Street on 8 May 2018.
“But of course, the value of culture and creativity lies not only in its economic strength. Just as important is the less tangible contribution that it makes to our national life. The work you do brings joy to millions. It fosters unity, gives us a common currency. It helps to define and build our sense of national character.”
“But our support goes beyond the financial. As we leave the European Union, we will continue to work with our European friends to protect cultural heritage and promote cultural diversity.”
15 See Application Doc 07 – The Case for Growth chapter 2 16 See Application Doc 07 – The Case for Growth chapter 2 17 See Application Doc 07 – The Case for Growth Appendix 5 – Pinewood Community Fund
58 8.106 The contribution that Pinewood makes to arts and culture in the UK is substantial in retaining, supporting and expanding all of the elements that go into film production and which supports the ‘less tangible’ referenced by the Prime Minister. The proposed development will make a direct contribution to achieving these expectations.
8.107 The support of culture and the arts is therefore a material consideration in determination of the application and is of high significance and weight.
Supporting the tourism industry 8.108 Alongside the substantive economic benefits (generation of £125m additional visitor spend per annum), there are wider benefits both regionally and nationally in terms associated with the creation of an iconic international visitor attraction. This adds further appeal to the UK as a destination for overseas visitors, whilst also adding weight to the cultural and tourism capital that already exists.
8.109 The accessibility of the visitor attraction to London is a major factor, particularly with strong connectivity with key public transport infrastructure. It will sit alongside other Buckinghamshire attractions as a tourism draw and also creates the opportunity to add to the broader network of major tourism draws in the region and beyond, such as Windsor Castle, Bicester Village, Bath and Stonehenge, each of which are national and international recognition.
8.110 The creation of the attraction also creates the opportunity to highlight the cultural value of film making at Pinewood and the long tradition of ground breaking innovation. Providing an attraction that can illustrate this is a benefit in educational and social terms of national importance.
8.111 The tourism impacts are of high significance and weight.
Conclusion
8.112 All of the matters above are material consideration to weigh in the decision-making balance.
59 9. Third Parties
9.1 The views of third parties are material considerations although they do not all carry the same weight. Their influence is not in numbers but relevant to the planning and content. This section summarises the third party representations received directly by the applicants ahead of the submission of the application. Full copies of the letters are included at Appendix 4.
Industry Experts
9.2 Letters of support have been received from the following:
• Creative England – the national agency dedicated to growing the creative industries and the talent that drive them, recognises the pressure that the economy is under as a result of COVID-19 and the scale of adjustment arising from the UK’s departure from the EU. They remain convinced that the Creative Industries can play a leading role in helping the recovery and are committed to the support and development of the industry. They acknowledge that the global demand for content will continue to grow and the production of screen based content in the UK therefore remains strong. Recognition is also given to the Local Industrial Strategy’s proposal for a Screen Industries Global Growth Hub and that the Pinewood Group proposals will play an important part in the implementation of that proposal.
• British Film Commission (BFC) – the BFC leads on maximising and supporting the production of major international feature film and high-end television in the UK; strengthening and promoting the UK’s film and television production infrastructure; and liaising between the government and the film and television industry to secure and maintain production-friendly policies. In considering the proposals for Screen Hub UK they state:
“The proposed visitor attraction at Pinewood sounds interesting and of high potential, particularly as it is associated with a brand and location at the heart of British filmmaking. We are particularly interested in the potential cross over between the visitor attraction and live film and TV production. For this reason, the BFC has a productive partnership with VisitBritain, the national tourism agency, responsible for marketing Britain worldwide and developing Britain’s visitor economy. VisitBritain’s research shows that film and TV are powerful motivators for travel with almost a third of potential visitors to the UK keen to visit places ‘seen-on-screen’. Screen sector tourism is increasingly significant as travellers choose to visit destinations that formed the sets of their favourite TV shows and films. The abiding success of the Warner Bros. Studio Tour - The Making of Harry Potter perfectly demonstrates this.
The UK film and TV sector is a world-wide economic and cultural success story. The sector, and its benefits, are growing faster than any other part of the UK economy. This success demonstrably impacts not just the UK’s creative economy but also our national economy. However, with this success have come major
60 challenges. A key area of the BFC’s work is advising and helping source locations, key crew and talent and, crucially, studio space for major productions. The increase in content demand, which has not abated during the Covid-19 pandemic, has led to severe stage space capacity shortages. This, in turn, has led to the loss of multiple feature films and TV series to competitor jurisdictions, with the resultant loss of millions of pounds in GDP and thousands of UK jobs. We are still committed to the growth of inward investment in UK film and high-end TV as targeted in the Creative Industries Sector Deal; a more than doubling in growth to approximately £4bn a year by 2025. To achieve this, we need further skills development for the industry and significantly more studio space, notwithstanding the welcome schemes at Shepperton, Belfast Harbour, Dagenham, Elstree and elsewhere, the diversity of which meet the varying demands of our film, TV and streaming clients.
The scale of the investment and economic benefits are clearly substantial and would be welcome in our industry as we all seek routes to recovery and growth.”
• British Film Institute (BFI)
“The proposed visitor attraction (The Pinewood Studios Experience) with its inspiration being drawn from the Studios’ heritage and world-class reputation plays directly into the cultural appreciation and understanding of film. I was particularly interested in the potential links to film-related education, the potential role that content from the BFI National Archive might play, your plans for developing a skills programme and also your plans to provide space for start- up and growth businesses so vital to the future success of the screen sector economy. As these projects develop, we would be very interested in discussing whether there would be opportunities for programmes such as the BFI Film Academy and Creative Enterprise to find a place as part of the Screen Hub you are developing.
Finally, we are all focussed upon how our industries can contribute to the recovery effort that is needed in the UK (and globally) arising from the dramatic impacts of the CV-19 pandemic. The film, TV and moving image sector has not been immune but has fared better than most and we believe that it can be a force for good in the recovery effort. A project of the scale and potential of the Global Screen Growth Hub would I am sure make a strong contribution. We wish you well with the planning and design of the project which we are pleased to support.”
• VisitBritain who express their enthusiasm and support for the Pinewood Studio Experience initiative:
“At VisitBritain, we are acutely aware of the importance of the British film industry as one of our fastest-growing and most successful exports and know that film tourism generates a significant contribution of this overall boost to our economy. Indeed, figures estimate that more than £6 billion of visitor spend a year is attributable to British films, with many of the most lucrative and recognisable franchises such as Star Wars and the James Bond series being filmed at Pinewood.
61 With all the damage that our tourism industry has sustained over the last year due to the Covid-19 pandemic, it is more important than ever that the UK continues to invest in exciting new projects and destinations that can drive the return of visitors in greater numbers. We welcome the vision for a world-class visitor attraction at Pinewood.
With the new, expanded site and facilities, I am sure that Pinewood will drive greater inward investment in the film, television and game sectors: this will, in turn, export even farther and wider the success story that is British cinema.
We believe that the Pinewood Studios Experience represents a significant opportunity to reinforce and grow Pinewood’s heritage and the wider reputation of the UK as a leading tourist destination.”
• Department for Digital, Culture, Media and Sport - Rt Hon Oliver Dowden CBE, MP
“The government is committed to unlocking and harnessing the potential of the UK film and television sector and its extraordinary array of talent. Taken together it contributes over £4.6 billion per year to UK GDP, reflecting the importance of the sector and its truly global impact.
Many of the most popular and globally successful films are shot at Pinewood Studios. Given its hugely important role in leading the way in British film production, I warmly welcome the proposed Pinewood Studios Experience initiative and its ambition to expand both its site and facilities, driving investment and helping deliver the government's priorities for UK film.
Not only would this proposed development play a vital role in strengthening our creative industries, it would also provide a significant and much-needed boost to our tourism industry at a time when the consequences of the Covid-19 pandemic have been damaging to this crucially important sector.
The proposed Pinewood Studios Experience represents a significant opportunity for cementing both Pinewood's heritage and the wider reputation of the UK as a world-class visitor destination.
It is entirely appropriate that local planning decisions are made locally, but I am happy to put on record my support in principle for this exciting proposal, which has the potential to form an important part of this government's work in championing the success story of British film to a global audience.”
9.3 In summary there is genuine and strong support for the proposed development form industry experts which carry substantial weight.
62 10. The Planning Balance
Approach
10.1 The approach to determination of the planning application is clearly established and will involve judgements on the overall balance of advantage and disadvantage.
10.2 The legal and guidance framework can be summarised as:
(1) Determining the application in accordance with the development plan unless material considerations indicate otherwise18.
The relevant content of the development plan is set out in Section 6.0 above which includes the site being within the Green Belt.
(2) In applying Green Belt policy the most up to date guidance is as set out in the Framework.
The relevant guidance is at paragraphs 143-145. These indicate that non-Green Belt compliant development (‘inappropriate development’) is by definition harmful to the Green Belt and should not be approved except in very special circumstances.
Very special circumstances will not exist unless the potential harm to the Green Belt by reason of inappropriateness, and any other harm resulting from the proposal, is clearly outweighed by other considerations.
A question of balance
10.3 There is no prescribed formula for making the necessary judgements on harm and other considerations and their relative weight. The balance is for the decision-maker properly explained and justified.
The Development Plan
Green Belt harm 10.4 The Green Belt assessment deals with Green Belt purposes and the overall assessment of harm (see Section 8). It demonstrates that the proposed development:
constitutes inappropriate development and, by definition, would be harmful to the Green Belt;
would, in addition, give rise to some harm arising from a loss of openness and encroachment into countryside (having regard to Green Belt purposes);
18 Section 38(6) Planning and Compulsory Purchase Act 2004 and Section 70(2) Town and Country Planning Act 1990
63 would have limited impact on the purpose of preventing the merging of towns.
10.5 Substantial weight should be attached to this Green Belt harm (including definitional harm) that has been identified.
Other harms 10.6 In the assessment above the proposed development is confirmed as technically acceptable although with other residual harms to landscape character, visual impact, residential amenity and air quality as assessed below.
10.7 The landscape impact19 is significant and arises from the redevelopment of an agricultural field (when fully restored) but is materially mitigated by the proposed green infrastructure of the scheme’s ecological gains.
10.8 The visual impact represents a significant degree of change but in terms of visual amenity generally is low impact. In relation to properties Royal Lodge and Park Lodge only the impact is low and satisfactory20.
10.9 The air quality impact is significant but highly localised at the Junction of the A40 and M40, for which the proposed development is only responsible for a small part. This scale of impact is mitigated by a robust travel plan and a direction of travel towards lower vehicle emissions more generally. The air quality impacts are consequently low.
10.10 These are overall weighted as minor to moderate for decision-making.
Other material considerations – positive impacts and benefits
10.11 There are a range of positive impacts, benefits and factors that are to be weighed against the harms identified above.
10.12 In summary they are:
(1) The fixed location of Pinewood
The proposed Screen Hub UK is intrinsically and essentially related to the specific Pinewood site/location and is not capable of authentic successful delivery elsewhere. It is therefore geographically fixed. This factor is of high significance and weight.
(2) Implementing Government/LEP industrial strategy
The proposed Screen Hub UK would be consistent with national and local industrial strategy in principle and deliver a site specific proposal. This is of high significance and weight.
(3) Economic and social benefits
19 Iver Heath Mixed Use Terrace Landscape Character Area 20 See Appendix 3
64 The economic benefits arising from the scheme are substantial. The scheme would be one of the largest in Buckinghamshire of recent times at £450m and the potential for job creation and growth in the economy at local and national level in a priority business sector is considerable (c. 3,500 jobs and a GVA contribution of £230m pa). These impacts are of high significance and weight.
The positive impacts on social wellbeing are commensurate with the economic benefits and are of moderate to high significance and weight.
(4) Environmental benefits
The proposed scheme includes a substantial increase in biodiversity and ecological asset value to a level that is beyond minimum requirement.
On site there is a biodiversity net gain of no less than 10% which would rise to +15% (or more) if the potential for enhancements at the Pinewood-owned Alderbourne Farm is taken into account. This is a matter for review over the course of the application.
The scheme has the potential to contribute significantly to the objectives of the Colne Valley Park (the details of which can be refined over the course of the application).
The scale of the proposed green/blue infrastructure gain is substantial and of high significance and weight.
(5) Community benefits
The community benefits of shared use of buildings, local engagement/partnership and the extension of the Pinewood permissive path network (including the potential of Alderbourne Farm). They are of moderate significance and weight.
(6) Arts, culture and tourism benefits
The presence and operation of Pinewood Studios adds immeasurably to the role of film in the cultural life and business of the UK. It is of high significance and weight.
Planning balance summary
10.13 The Green Belt status of the site creates a presumption against a grant of planning permission for the proposed development and harms to the Green Belt arise which are to be afforded substantial weight.
10.14 There is a significant impact on landscape character (by degree of change), low impact on visual amenity (mitigated) and on air quality (a single receptor).
10.15 There are no other material adverse impacts with all technical matters acceptable.
10.16 To be weighed against these ‘harms’ are the material considerations of:
fixed location (not footloose)
implementing Government/LEP strategy
65 benefits in relation to: the economy and social wellbeing environmental and ecological enhancement community arts, culture and tourism
10.17 The scale of these is considerable at a national to local level and the weight to be attached to them is substantial. The economic benefits alone are of major significance.
10.18 In the planning balance the judgement is drawn that the Green Belt harms and other harms are outweighed by the other considerations including the scale of benefits.
10.19 This conclusion is made stronger by the COVID-19 context and the priority to be given to economic investment to support recovery. Taking this into account the planning balance moves even further towards the Green Belt presumption being outweighed by the scheme’s policy support and related benefits.
Conclusion
10.20 In the circumstances of this case very special circumstances arise which justifies the grant of planning permission for Screen Hub UK in the Green Belt.
66 Appendix 1: Planning history
CM/36/16 Variation of conditions 1 of CM/03/14 of original planning permission 11/01719/CM in order to allow extension of operational period until 31 December 2020
Application Permitted - 23.11.2016
CM/37/16 Variation of condition 2 of CC/01/14 of original planning permission 11/01717/CM in order to allow extension of operational period until 31 December 2020
Application Permitted - 23.11.2016
CM/38/16 Variation of condition 1 of CM/02/14 of original planning permission 11/01718CM in order to allow extension of operational period until 31 December 2020
Application Permitted - 23.11.2016
CM/39/16 Variation of condition 1 of CM/04/14 of original application 11/01720/CM in order to allow extension of operational period until 31 December 2020
Application Permitted - 23.11.2016
CM/02/14 Variation to conditions 1, 3 and 16 of planning permission 11/01718/CM in order to allow the use of mobile processing plant until 31 December 2015 and to allow final restoration to be completed by 31 December 2020.
Application Permitted - 14.02.2014
CM/03/14 Variation to conditions 1, 2 and 15 of planning permission 11/01719/CM in order to allow the use of mobile processing plant until 31 December 2015 and to allow final restoration to be completed by 31 December 2020.
Application Permitted - 14.02.2014
CM/04/14 Variation to conditions 1, 3 and 22 of planning permission 11/01720/CM in order to allow the use of mobile processing plant until 31 December 2015 and to allow final restoration to be completed by 31 December 2020.
Application Permitted - 14.02.2014
CM/01/14 Variation to conditions 2, 3 and 16 of planning permission 11/01717/CM in order to allow the use of mobile processing plant until 31 December 2015 and to allow final restoration to be completed by 31 December 2020.
Application Permitted - 14.02.2014
11/01719/CM Application to vary conditions 2, 7, 8 and 20 of planning permission SBD/8202/07 to amend the approved phasing scheme and extend the lifetime of the site to 31st December 2015
Application Permitted - 2.07.2012
11/01718/CM Application to vary condition 2 of planning permission SBD/8203/05 to extend the lifetime of the site until 31st December 2015.
Application Permitted - 2.07.2012
11/01720/CM Application to vary condition 2 of planning permission SBD/8220/04 to extend the lifetime of the site until 31st December 2015
Application Permitted - 2.07.2012
11/01717/CM An application involving the extraction of sand and gravel from 0.9 hectares (2.2 acres) of land within a 1.4 hectare parcel of land and restoration mainly to agriculture following infilling the void with inert waste with a narrow tree belt on the northeastern boundary
Application Permitted - 2.07.2012
SBD/8202/07 Variation of conditions 3 and 5 of planning permission SBD/8220/04 and conditions 3, 4 and 5 of consent SBD/8203/05 in relation to phasing of work
Application Permitted - 24.09.2007
SBD/8203/05 Application to extract sand and gravel from 1 hectare with restoration to agricultural land
Application Permitted - 4.10.2005
SBD/8209/01 Extension of area of extraction of sand and gravel upon western margin of permitted site
Withdrawn 30.05.2002
SBD/8220/04 Application to vary conditions 1 and 5 of consent No. SBD/8218/02
Application Permitted - 17.02.2005
SBD/8212/03 Variation of condition 2 of permission SBD/595/90 to modify the site access.
Application Permitted - 5.12.2003
SBD/8214/00 Proposed extension of area of extraction of sand and gravel from western margin of permitted site
Withdrawn - 20.11.2000
SBD/8218/02 Establishment of a recycling facility, extension of sand and gravel working and re-phasing of site
Application Permitted - 15.07.2003
SBD/8213/00 Erection of ready mixed concrete plant
Application Permitted - 2002
SBD/595/90 Extraction and processing of sand and gravel with re-filling with inert material and restoration to agriculture
Application Permitted - 25.09.1994
Appendix 2: Planning policy matrix
Saved Polices from the South Bucks District Local Plan (Adopted 1999) Consolidated Version (February 2011)
Policy Policy wording GB1 Green Belt The area in which Green Belt policies will be applied is defined Boundaries and the on the Proposals Map. Control over Development Within the Green Belt, planning permission will not be granted in the Green Belt for development other than for the change of use of existing buildings or land or the construction of new buildings or extensions to existing buildings as set out below:- a) Development for agriculture or forestry; b) Essential facilities for outdoor sport, outdoor recreation or outdoor leisure, in accordance with the policies in Chapter 7 of this Plan; c) Mineral working and subsequent restoration of the land, in accordance with the policies in the Buckinghamshire Replacement Minerals Local Plan; d) Cemeteries; e) Limited extension, alteration or replacement of existing dwellings, in accordance with Policies GB10 and GB11 of this Plan; f) Limited infilling in existing villages, in accordance with Policy GB3 of this Plan; g) Other uses of land and essential facilities for them which would not compromise the purposes of including land in the Green Belt and which would permanently retain its open and undeveloped character; h) The re-use of buildings of permanent and substantial construction in accordance with policy GB2.
Development falling into the categories above will only be permitted where:-
I. the proposal would not adversely affect the character or amenities of the Green Belt, nearby properties or the locality in general and would be in accordance with EP3 (Use, Design and Layout of Development); and II. the scale, height, layout, siting, form, design and materials of any new building would not adversely affect the character or amenities of the Green Belt, nearby properties or the locality in general and the proposal would be in accordance with Policy EP3; and
III. proposals for extensions to existing buildings would harmonise with the scale, height, form and design of the original building; and IV. the proposal would comply with all other relevant policies in this Plan. GB4 Employment Proposals to establish new employment generating or other Generating and commercial sites or extend the curtilages of existing sites will not Commercial Development be permitted in the Green Belt. Where the proposal involves the in the Green Belt re-use of buildings in the Green Belt new employment (excluding Green Belt generating development may be acceptable subject to the Settlements) provisions of Policy GB2 (Re-use of Buildings in the Green Belt). Extensions or additional buildings for existing employment generating or other commercial development will not be permitted in the Green Belt, unless, in the case of extensions, they are in connection with the re-use of buildings subject to Policy GB2 (Re-use of Buildings in the Green Belt). The change of use of employment generating or other commercial premises will only be permitted in the Green Belt in accordance with Policy GB2 and where:- (a) the proposal would be for another employment generating use; and (b) the proposal would be compatible with, and would not adversely affect the character or amenities of the Green Belt, of nearby properties or the locality in general, and would be in accordance with policy EP3 (Use, Design and Layout of Development) and; (c) the proposal would comply with all the other policies in this plan. Particular attention is drawn to policies TR5 (Accesses, Highway Works and Traffic Generation), TR7 (Parking Provision), and EP4 (Landscaping). EP3 The Use, Design and Development will only be permitted where its scale, layout, Layout of Development siting, height, design, external materials and use are compatible with the character and amenities of the site itself, adjoining development and the locality in general. Poor designs which are out of scale or character with their surroundings will not be permitted. In assessing proposals, the Council will have regard to:- (a) Scale of Development Development should be in scale with surrounding development, including any buildings which are to be retained on the site, and should not adversely affect the character or amenities of any nearby properties or the locality in general. The retention and provision of space between buildings should respect the scale of spaces in the locality.
(b) Layout of Development and Siting of Buildings The layout of development and the siting of buildings should make positive use of the intrinsic qualities and features of the site including its topography, landscaping, water features, and views into or out of the site. The siting of buildings should not adversely affect the character or amenities of any nearby properties or the locality in general. The layout should not be dominated by large areas set aside for parking, servicing or access, and where extensive space is required for such activities, it should be subdivided by landscaping. The layout of new development should, where possible, create attractive groupings of buildings and spaces between buildings. (c) Height of Development The height of new development should respect the height of surrounding development, including any buildings on the site which are to be retained, and the height of buildings in the locality generally. Proposed extensions to existing buildings should reflect the height of those buildings. (d) Building Form, Design and Fenestration Buildings should be of a form and design which would respect and harmonise with surrounding properties, including any buildings on the site which are to be retained, and with buildings in the locality in general. Proposed extensions to existing buildings should reflect the form and design of those buildings. The fenestration of extensions to existing buildings should respect the fenestration of those existing buildings. The fenestration of buildings should safeguard against the loss of privacy to residential properties by reason of overlooking. (e) Materials The external materials to be used in new developments should be of a type and quality which harmonise with the materials of surrounding development including any existing buildings on the site which are to be retained. Where an existing building is to be extended, the extension should usually be constructed in materials to match the existing building as closely as possible. (f) Use of Land and Buildings The use of land and buildings should be compatible with the uses of adjacent land and buildings and with the character and amenities of the locality in general. Permission will not be granted for uses which would be, or which would have the potential to be, detrimental to the character and amenities of nearby properties or the locality in general by reason of noise, vibration, smell, pollution, disturbance,
visual intrusion, loss of privacy, the impact of traffic, or other nuisance. The scale of a proposed use should be compatible with and not adversely affect the character or amenities of neighbouring properties or the locality in general. Where permission is granted, conditions may be imposed in order to minimise to an acceptable level the impact on adjacent uses. EP4 Landscaping Development proposals will be expected to:- (a) incorporate appropriate hard and soft landscaping as an integral part of the development proposal; and (b) take account of, and retain, existing planting and landscape features, which are or may become important elements in the character and appearance of the site or the wider area; and (c) where appropriate provide for the planting of appropriate additional trees and shrubs including native species and; (d) make proper provision for the subsequent maintenance and retention of the existing and proposed planting. T4 New Built New, purpose-built tourist facilities will only be permitted within Development to Provide the developed areas, subject to compliance with (d), (e) and (f) Tourist Facilities below. Outside the developed area, such facilities will only be permitted where:- (a) the building is strictly essential and ancillary to the tourist potential of associated land or buildings; and (b) the building is small-scale in terms of floorspace, height and bulk, and of a design appropriate to the character of the area; and (c) the building is sited within an existing group or complex of buildings or, where such a siting is not possible, is sited in a readily screened, unexposed location; and (d) it would not adversely affect the character or amenities of nearby properties or the locality in general and would be in accordance with policy EP3 (Use, Design and Layout of Development); and (e) adequate parking for both staff and visitors would be provided within the application site; and (f) the proposal would comply with all the other policies in this Plan. Particular attention is drawn to policies TR5 (Accesses, Highway Works and Traffic Generation) and EP7 (Signs and Advertisements). E2 Pinewood Studios The Pinewood Studios site as identified on the proposals map is allocated for film studio use. Extensions, new buildings and conversions within the site will be permitted provided that:
a) the proposals are for uses directly connected with film production or associated industries; and b) the proposals would be in accordance with all the other policies in the plan. Particular attention is drawn to policies EP3 (Use, Design and Layout of Development). Proposals for redevelopment or re-use of the studios will only be permitted where: i) it is demonstrated that the site is no longer required for studio use; and ii) the proposal would be for an employment generating use; and iii) the proposals would not result in a significantly higher level of employment than currently exists at the site; and iv) the proposal would result in a reduction in the overall footprint of buildings on the site and incorporate substantial landscaping; and v) the proposal would be in accordance with all the other policies in this plan. Particular attention is drawn to policies EP3 (Use, Design and Layout of Development). In the event of any redevelopment the Council will prepare a development brief for the site. TR4 Provision for those The District Council will encourage improved access for all with Special Needs persons having special needs, including those people in wheelchairs, with walking difficulties, those who are partially sighted or blind, the elderly, and those with young children needing pushchairs. In particular permission will not be granted for proposals which do not make appropriate provision for those with special needs in relation to the site layout and the access into buildings. Neither will permission be granted for proposals which have an adverse effect on the safety or convenience of facilities for those with special needs. TR5 Accesses, Highway In considering proposals involving a new or altered access onto Works and Traffic the highway, works on the highway, the creation of a new Generation highway or the generation of additional traffic the District Council will have regard to their effect on safety, congestion and the environment. Development will only be permitted where:- (a) the proposal complies with the standards of the relevant Highway Authority; and (b) the operational capacity of the highway would not be exceeded, or where the proposal would not exacerbate the situation on a highway where the operational capacity had already been exceeded; and (c) traffic movements, or the provision of transport infrastructure, would not have an adverse effect on the amenities of nearby properties on the use, quality or character of the locality in general, including rural lanes.
Where off-site improvements to the highway are required to serve a development, the District Council will not grant permission unless the applicant enters into a planning obligation to secure the implementation of those works. Proposals involving either the construction of a new site access, or a material increase in the use of an existing site access, directly onto the strategic highway network will not be acceptable if they would be likely to result in the encouragement of the use of the network for short local trips or compromise the safe movement and free flow of traffic on the network or the safe use of the road by others. TR7 Parking Provision Development will only be permitted only where:- (a) it complies with the parking standards set out in Appendix 6; and (b) parking provision is made on land owned or controlled by the applicant and the proposals would not reduce the level of parking provision serving other development; and (c) parking provision is made on the development site or, where this is not possible, on other land in the immediate vicinity provided that it is likely to be used to meet parking needs associated with the development; and (d) it would not be likely to result in non-residential on-street parking in residential areas. Parking Standards Where planning applications are made for new development, (Appendix 6) redevelopment, extensions to existing development, conversions or changes of use, the adequacy of the proposed parking facilities should be assessed against the parking standards set out in this Appendix. The standards indicate the normal operational minimum requirement for parking spaces, though they can be varied in the circumstances set out in the Plan. The maximum standard can be taken to be 10% above the operational minimum standard. Proposals should ensure that development proposals meet the minimum standard and do not exceed the maximum standard. Where a type of development is proposed which is not included in these standards the parking requirement will be assessed by taking into account the information submitted with the application, site and locality characteristics and experience with similar developments. It is not uncommon for a proposed use of land/buildings to involve a secondary or ancillary use. When an ancillary use is involved the whole of the proposed development will be required to meet the parking standards for the primary use, rather than part meeting the standards for the primary use and part meeting the standards for ancillary use.
The standards are all based on gross floor area unless otherwise specified. Where parking standards are based on the gross floor area, the gross floor area will be taken to be the total floor area of the building(s) including basement, ground and upper floors proposed. The gross floor area will be measured using the external dimensions of the building(s). Provision will be required on site for delivery to and servicing of a site in connection with the proposed use. Where the standards require provision to be made for the parking of vehicles (including cars, vans, lorries, motorbikes or other specialist vehicles such as ambulances) provision should also be made for access into those spaces and the manoeuvring of such vehicles on the site.
6% of the total spaces should be Special Needs parking spaces.
South Bucks LDF Core Strategy DPD (Adopted February 2011)
Core Strategy Policy wording Core Policy 6 Existing physical, social and Green Infrastructure will be protected Local Infrastructure (unless it is clear that it is no longer needed, or alternative appropriate Needs provision is made elsewhere). The Council will work in partnership with service and infrastructure providers to ensure new or improved infrastructure is delivered where and when it is needed, including that set out in the Infrastructure Schedule (see Appendix 6). Existing facilities and services which serve older people will be protected. The provision of additional facilities and services for older people will be supported, where opportunities arise through redevelopment in sustainable locations. New development will be required to provide for the necessary infrastructure needs arising from the proposal, either directly or via an appropriate financial contribution. The Council will use planning conditions and obligations where appropriate to secure the timely provision of essential infrastructure directly and reasonably related to a development. The Council will also work with infrastructure providers, local communities and other key stakeholders to develop a Community Infrastructure Levy, as a further source of funding for improvements in local infrastructure Core Policy 7 The Council will seek to improve accessibility to services and ensure a Accessibility and safe and sustainable transport network by supporting the rebalancing Transport of the transport system in favour of more sustainable modes of
transport, whilst recognising that in rural parts of the District, the car will remain the primary mode of travel. This rebalancing will be achieved by: • Focusing new development that generates substantial transport movements in locations that are accessible by public transport, walking and cycling. • Working with the highway authority, Rights of Way and Access Group, and others to improve transport choices for local residents, especially in rural parts of the District. • Encouraging safe and attractive improvements to pedestrian and cyclist routes and facilities. • Supporting the greater use of rail services, including improvements to parking at train stations and connecting bus services where viable. • Ensuring that the impact of new development on the road network is minimised and mitigated through the use of ‘mobility management’ measures such as Travel Plans, parking charges and car parking levels. • Supporting public transport schemes, including Crossrail, as long as there are strong environmental safeguards in place. Existing traffic congestion to the east of Beaconsfield will be addressed through a range of measures, which could include provision of an A355 / A40 Relief Road later in the Plan period. The adverse impacts associated with HGV movements in and around Iver Village and Richings Park will be addressed through land use changes. Should these prove unsuccessful, or other opportunities arise, further consideration will be given to the scope for provision of a relief road or other alternative means of access to the employment sites in the South of Iver Opportunity Area. Impacts on Junction 1 of the M40 will be kept under review, with mitigation measures, including infrastructure improvements, potentially being needed later in the Plan period. Further details of the measures that will be taken to implement this policy, including when travel plans will be required and the application of new parking standards, will be addressed in the Development Management DPD. Core Policy 9 The highest priority will be given to the conservation and enhancement Natural of the natural beauty of the Chilterns Area of Outstanding Natural Environment Beauty, and the integrity of Burnham Beeches Special Area of Conservation. The conservation and enhancement of the Chilterns AONB and its setting will be achieved by ensuring that all development complies with the purposes of the AONB and its Management Plan. The conservation and enhancement of Burnham Beeches SAC, and its surrounding supporting biodiversity resources, will be achieved through restricting the amount of development in close proximity to the site, and ensuring that development causes no adverse effect on the integrity of the SAC. Further details on mechanisms for achieving this will be given in the Development Management DPD.
More generally, the landscape characteristics and biodiversity resources within South Bucks will be conserved and enhanced by: • Not permitting new development that would harm landscape character or nature conservation interests, unless the importance of the development outweighs the harm caused, the Council is satisfied that the development cannot reasonably be located on an alternative site that would result in less or no harm and appropriate mitigation or compensation is provided, resulting in a net gain in Biodiversity. • Seeking the conservation, enhancement and net gain in local biodiversity resources within the Biodiversity Opportunity Areas, on other non-designated land, on rivers and their associated habitats, and as part of development proposals. • Maintaining existing ecological corridors and avoiding habitat fragmentation. • Conserving and enhancing landscapes, informed by Green Infrastructure Plans and the District Council’s Landscape Character Assessment. • Improving the rural/urban fringe by supporting and implementing initiatives in the Colne Valley Park Action Plan. • Seeking biodiversity, recreational, leisure and amenity improvements for the River Thames setting where opportunities arise, for example at Mill Lane (see Core Policy 15). Further guidance on the protection and enhancement of landscape and biodiversity resources will be given in the Development Management DPD. Core Policy 10 Important employment sites will be retained in employment use (B Use Employment Class). A subsequent Development Management DPD will identify the important employment sites in South Bucks District. There will be a general presumption that other employment sites (B Use Class) will also be retained in employment use (B Use Class). In limited circumstances, including where there is no reasonable prospect of a site being used for the permitted purpose, or where the site is creating significant amenity issues, the priority will be for the site or premises to be reused or redeveloped (where appropriate) for an alternative economic use (i.e. a use which provides employment opportunities, generates wealth or produces an economic output or product). The change of use of employment land and floorspace (B Use Class) to retail use (outside of the District and Local Centres defined in Core Policy 11) will only be permitted in limited circumstances - where there is evidence that the proposal would not have a significant adverse impact upon nearby District and Local Centres, and there are no sequentially preferable alternative sites available. Should a significant imbalance between local job opportunities and the size of the resident workforce arise, the District Council will identify any employment land to be released for alternative uses, or the preferred
location for new employment generating floorspace, through the LDF process. New employment development will be accommodated in the District and Local Centres, on the Opportunity Sites and through appropriate intensification on existing employment sites excluded from the Green Belt, where there is good access by a variety of transport modes. The Council will work with key stakeholders to improve access to high speed and next generation broadband throughout the District by supporting the provision of necessary new ICT infrastructure. The Council will seek to increase the presence of high value and knowledge based businesses in South Bucks. Support will be given to small-scale and start-up businesses, by promoting and supporting home-working (where there is no adverse impact on residential amenity) and encouraging the provision of managed workspace. The Council will also support rural diversification schemes, providing they benefit the local community. Further guidance on the application of this Core Policy will be provided in the Development Management DPD. CP12 Sustainable The Council will promote and encourage energy efficiency and Energy renewable / low carbon energy in all new development through a range of measures in order to contribute towards meeting national targets for reducing CO2 emissions. These will include the following: • Requiring that all developments of 10 or more dwellings and 1,000sqm or more non-residential floor space secure at least 10% of their energy from decentralised and renewable or low-carbon sources, unless demonstrated that it is not viable or feasible. • In addition, requiring developers of the Opportunity Sites and other significant sites (as defined in the supporting text to Core Policy 17) to incorporate decentralised and renewable or low carbon technologies into their schemes, unless demonstrated that it is not viable or feasible. • Encouraging homeowners to improve the energy efficiency of their properties, including seeking proportionate energy efficiency improvements when granting planning permission for conversions and extensions. • Encouraging renewable and low carbon energy infrastructure, including stand alone facilities, in suitable locations, provided that these are designed to minimise any adverse impacts. Further guidance on implementing this policy, including criteria to be used to assess renewable / low carbon energy proposals coming forward and examining future capacity, will be set out in a Supplementary Planning Document. The requirements in this policy will be kept under review in the light of new evidence and technological advances and may be updated in a future Development Plan Document. CP13 The Council will seek to ensure the prudent and sustainable Environmental and management of the District’s environmental resources by:
Resource • Promoting best practice in sustainable design and construction. All Management new development must be water efficient and incorporate Sustainable Drainage Systems (SuDs) where feasible. All new residential development should achieve a minimum water efficiency target of 105 litres per person per day. • Protecting and enhancing water quality and encouraging the remediation of land affected by contamination to bring it back to beneficial use. Particular regard should be had to maintaining the integrity of Burnham Beeches SAC. • Seeking improvements in air quality, especially in the Air Quality Management Area adjacent to the motorways and close to Burnham Beeches SAC. New development will be directed away from existing sources of noise and air pollution to avoid adverse impacts on local communities. The Council will work closely with other local authorities to minimise aircraft noise from Heathrow Airport. Vulnerable development will be steered away from areas at risk of flooding wherever possible, in accordance with PPS25. CP17 Other Should other significant sites come forward for development on land Development Sites excluded from the Green Belt, a Development Brief will normally need to be prepared, prior to submission of a planning application. In order to offer the opportunity for environmental improvements through appropriate redevelopment, the Council may designate additional Major Developed Sites in the Green Belt (MDS) in subsequent Development Plan Documents.
Buckinghamshire Minerals and Waste Plan 2036
Adopted Plan Policy wording Policy 25: Minerals and waste development of a temporary nature must include a Delivering High restoration scheme that will result in the site being progressively restored Quality to an acceptable condition and stable landform as soon as is practicable Restoration and and provide for high quality aftercare arrangements including ongoing Aftercare management and monitoring where necessary. The after-use of a site will be determined in relation to the land-use context and surrounding environmental character (including wider ecological networks) and should take account of landowner interests and the requirements of the local community. Schemes should include objectives that will contribute towards: biodiversity gains, enhancement of the local environment and amenity, climate change mitigation and adaptation, benefits for the local community and economy (as appropriate). Where relevant the restoration of the site must meet the following requirements:
• Sites that are to be restored to the previous land-use must include a secondary after-use that includes environmental enhancement. Where a site is located within best and most versatile agricultural land, the land should be restored to a condition where the long- term potential of the land is safeguarded and soil resources are conserved, however this does not preclude the requirement for incorporating a secondary after-use.
• Where specific and favourable conditions occur and when adjacent to identified habitat or designated asset(s), precedence must be given to environmental enhancement objectives, the creation of Biodiversity Action Plan habitat, ecological networks, promotion of geodiversity and enhancement of the historic environment.
• Sites located within river corridors should address flood risk management and support River Basin Management Plan actions.
• Sites located within or adjacent to the Chilterns Area of Outstanding Natural Beauty, Colne Valley Regional Park or the Green Belt should seek to enhance the characteristics and qualities for which the area was designated giving consideration to the provision of green infrastructure and opportunities for access and recreation.
• Sites located within the Great Ouse Valley should support the Buckingham Canal restoration.
The restoration of sites for economic development purposes will be supported where fully in accordance with relevant planning policy and a secondary after-use is included that incorporates an ecologically beneficial after-use within the restored function.
Appendix 3: Residential amenity assessment
Impact on Residential Amenity - Park Lodge and Royal Lodge
1. The proposed development sits around the residential curtilage of two properties, Park Lodge and Royal Lodge. These properties are set within an extensive shared curtilage, extending to approximately 2.45ha (6.05 acres). They are accessed via a shared driveway from Pinewood Road.
2. Most of the curtilage is undeveloped, with the two dwellings forming a group of buildings at the western end of the site. This group includes the two dwellings and a large outbuilding, which is understood to contain an indoor swimming pool.
Visual Impact 3. The Environmental Statement (Chapter 7) states that the impact of the proposed development on the residents of Park Lodge and Royal Lodge will be significant.
4. The assessed magnitude of change has been identified as ‘large’ and will be perceived as adverse as the new buildings and car parking will appear in currently relatively rural views.
5. Once landscape mitigation has been provided and has reached a degree of maturity, the magnitude of change will be reduced to medium (in respect of Parameter PP3A) but will remain large (in respect of PP3B).
6. Taking account of the sensitivity of the dwellings as receptors and the magnitude of change, the ES assessment has concluded that:
For PP3A, the adverse effect will be ‘moderate-major’ following construction, reducing to ‘moderate’ once the landscaping has become established For PP3A, the adverse effect will be ‘moderate-major’ both following construction and once the landscaping has become established.
Assessing Impact 7. When assessing the degree of impact on amenity the focus should turn on whether there has been a key breach in the acceptable resulting environment. It is relevant to test whether:
The only available view from a property is blocked The development is an overwhelming presence in views in all directions from the property The development is ‘unpleasantly encroaching’ or The development is inescapably dominant from the property
8. None of these apply in respect of Park Lodge and Royal Lodge.
9. The view from the properties is not blocked, indeed there remains open aspects to the east, looking towards Pinewood Road and landscaped views around the dwellings themselves.
10. The development will not be an overwhelming presence given the extensive separation that exists and the role that intervening landscaping will play. The building zones are between 60m (at their closest point) and 90m away and views of these will not be dominant.
11. The nature of the existing and proposed landscaping, including the proposed buffer and associated woodland planting will ensure that the development does not unpleasantly encroach on the two residential properties and will ensure that the presence of the development does not overwhelm.
12. Finally, the scheme will not dominate the two houses. The extensive plot within which they sit, together with the landscaped buffer will be the dominant features for the residents of the properties and whilst the proposed development will be present, it will sit beyond these features.
Conclusion 13. There is undoubted change in the context and outlook of the properties at Park Lodge and Royal Lodge. This has been recognised in the LVIA assessment and the impact categorised as significant adverse.
14. However, in assessing the new environment within which these properties would then be located, the actual residual impact on residential amenity will be low.
15. The properties will sit within an attractive, spacious landscaped environment and whilst their outlook will change significantly, sufficient amenity will be retained, commensurate with their scale and location.
16. In planning terms therefore, when taking account of the proposed mitigation, the weight to be attached to the impact of the proposed development on Royal Lodge and Park Lodge, is low and the relationship is satisfactory.
Appendix 4: Third party letters of support
(a) Secretary of State for Culture, Media and Sport
(b) Creative England
(c) Visit Britain
(d) British Film Institute
(e) British Film Commission
3rd September 2020
Andrew M. Smith Corporate Affairs Director Pinewood Group Ltd Pinewood studios Pinewood Road Iver Heath Buckinghamshire SL2 4FB
Dear Andrew,
SCREEN BASED GLOBAL GROWTH HUB, PINEWOOD STUDIOS
It was lovely to see you again and hear more about the emerging thinking for the Screen Based Global Growth Hub based at Pinewood. Having conferred with my team further to our meeting on 21st August I wanted to formally register our interest and support.
As you know, the UK economy is under considerable pressure from the impact of COVID-19 and the scale of adjustment arising from a new national status outside of the EU. Notwithstanding these impacts we remain convinced that the Creative Industries can play a leading role in helping us to build back better and therefore continue to be committed to the support and development of the Creative Industries as set out in the Industrial Strategy Creative Industries Sector Deal.
That Deal saw a commitment to the continuing growth of the film and high-end TV industry to approximately £4bn pa by 2025 requiring a substantial increase in studio capacity and skills. This scale of ambition for the UK film and HETV sector is not dimmed although has obviously been affected by recent international events. Inward investment film production is resuming in the UK, I was delighted to read that Universal’s Jurassic World: Dominion was the first film in the UK to resuming shooting on 6 July at Pinewood. The global demand for content will continue to grow and the production of screen-based content in the UK therefore remains strong.
Time has moved on since the Government approved the Sector Deal and we have seen the strategy expressed in more detail in the work of the Buckinghamshire LEP. Their Local Industrial Strategy (LIS) of July 2019 identified Pinewood Studios and the National Film and Television School as part of Buckinghamshire’s ‘internationally significant economic assets’ being that of ‘Creative and Digital’. The Strategy ambition is to “consolidate a global creative industries capability and further support exporting and inward investment in the film, TV and games sector”.
As part of this work the LIS proposes the development of a Screen Industries Global Growth Hub at Pinewood Studios and the development you outlined, will play an important part of the implementation of this proposal. We also note that the Bucks LEP Economic Recovery Strategy has
placed even greater emphasis on the Creative and Digital Sector as a driver of recovery with the identification of a range of initiatives, including:
• Screen Based Global Growth Hub at Pinewood Studios • Buckinghamshire Film Office • Film-inspired ‘experience’ at Pinewood Studios similar to ‘The Making of Harry Potter’ at Leavesden • New studio development at Pinewood, Marlow and Hatton We see the comprehensive nature of the development now proposed at Pinewood to be a key delivery step for these strategies and proposals.
The proposed visitor attraction will bring obvious economic benefits to the wider national and local economy in support of economic and social recovery. It will celebrate and reinforce the unique position of Pinewood Studios at Iver as an icon of the global film industry – it is difficult to see how this could be achieved anywhere else in the UK to such effect. As you know, Creative England, in association with VisitEngland produced a report in 2015, ‘Quantifying Film and Television Tourism in England’. We are also supportive of the further provision of new film production facilities which are still required to meet global demand and complementary to the establishment of studio space elsewhere in the South East and UK more widely.
As I mentioned to you when we met, I’ve since also had a meeting with the co-chairs of the Buckinghamshire Cultural Partnership. As promised, I didn’t share your new plans, but can also see a real fit with their proposals for the wider cultural offering within the county too.
The proposed screen industries growth hub has the potential to make a significant contribution to skilling/reskilling at a time of major employment change and in assisting related business start-ups, incubation and growth. As you know, this is something which Creative England has worked with Pinewood and Buckinghamshire Business First last year. The growth hub has the potential to make a significant contribution to the UK economic recovery. We are pleased to offer our support.
Very best wishes
Caroline Norbury, MBE Chief Executive, Creative England
Andrew Smith Head of Corporate Affairs Pinewood Studios T : +44 (0)20 7578 1000 Iver Heath Buckinghamshire SL0 0NH
28 September 2020
Dear Andrew,
I am writing in my capacity as the Chairman of VisitBritain to express my enthusiasm and support for the Pinewood Studios Experience initiative being developed by Pinewood Studios.
At VisitBritain, we are acutely aware of the importance of the British film industry as one of our fastest-growing and most successful exports and know that film tourism generates a significant contribution of this overall boost to our economy. Indeed, figures estimate that more than £6 billion of visitor spend a year is attributable to British films, with many of the most lucrative and recognisable franchises such as Star Wars and the James Bond series being filmed at Pinewood.
With all the damage that our tourism industry has sustained over the last year due to the Covid-19 pandemic, it is more important than ever that the UK continues to invest in exciting new projects and destinations that can drive the return of visitors in greater numbers. We welcome the vision for a world-class visitor attraction at Pinewood.
With the new, expanded site and facilities, I am sure that Pinewood will drive greater inward investment in the film, television and game sectors: this will, in turn, export even farther and wider the success story that is British cinema.
We believe that the Pinewood Studios Experience represents a significant opportunity to reinforce and grow Pinewood’s heritage and the wider reputation of the UK as a leading tourist destination. We look forward to working with Pinewood to ensure that this opportunity is seized.
Yours sincerely
Rt Hon Sir Patrick McLoughlin CH Chairman of the BTA Board
Letter of support from BFI Andrew M. Smith Corporate Affairs Director Pinewood Studios Pinewood Road Iver Heath Buckinghamshire SL2 4FB
23rd September 2020
Dear Andrew,
The BFI is a cultural and education charity, core funded by Government, with a unique role in shaping the economic and creative success of film, TV and the moving image across the UK.
As you know, the breadth of our work extends from caring for the BFI National Archive, one of the largest and most important collections of film and television in the world, to curating and presenting the greatest international public programme of world cinema for audiences – in cinemas, at festivals and online. As a distributor of National Lottery funding, we actively seek out and support the next generation of filmmakers and support the development of skills in the sector. We work closely with Government and industry to make the UK the most creatively exciting and prosperous place in the world to make film.
With all this in mind, your briefing on the proposed Screen Industries Global Growth Hub at Pinewood is great interest to us on many levels as highlighted below.
The proposed visitor attraction (The Pinewood Studios Experience) with its inspiration being drawn from the Studios’ heritage and world-class reputation plays directly into the cultural appreciation and understanding of film. I was particularly interested in the potential links to film-related education, the potential role that content from the BFI National Archive might play, your plans for developing a skills programme and also your plans to provide space for start-up and growth businesses so vital to the future success of the screen sector economy. As these projects develop, we would be very interested in discussing whether there would be opportunities for programmes such as the BFI Film Academy and Creative Enterprise to find a place as part of the Screen Hub you are developing.
Finally, we are all focussed upon how our industries can contribute to the recovery effort that is needed in the UK (and globally) arising from the dramatic impacts of the CV-19 pandemic. The film, TV and moving image sector has not been immune but has fared better than most and we believe that it can be a force for good in the recovery effort. A project of the scale and potential of the Global Screen Growth Hub would I am sure make a strong contribution. We wish you well with the planning and design of the project which we are pleased to support.
Yours sincerely,
Ben Roberts, Chief Executive ……………
British Film Commission The Arts Building Morris Place London N4 3JG
Tel +44 (0)20 7613 7675 www.britishfilmcommission.org.uk Andrew M. Smith Corporate Affairs Director Pinewood Studios Pinewood Road Iver Heath Buckinghamshire SL2 4FB
14 September 2020
Dear Andrew
Your presentation to me explaining the emerging thinking for the Screen Based Global Growth Hub based at Pinewood was of great interest and is certainly most timely.
As you now, the British Film Commission (BFC) is the UK Government’s national organisation responsible for supporting inward investment film and TV production in the UK, funded by the Department for Digital, Culture, Media and Sport through the BFI, and by the Department for International Trade, with corporate sponsorship from key film and TV clients including HBO, Netflix, Walt Disney Studios, and Warner Bros.
The BFC leads on maximising and supporting the production of major international feature film and high-end TV (HETV) in the UK, strengthening and promoting the UK’s film and TV infrastructure, and liaising between the Government and the film and TV industry to secure and maintain production-friendly policies.
We are keenly interested in, and supportive of, investment in the promotion of the screen industries at a cultural level noting the emergence of projects in the film tourism field, for example the £24m Game of Thrones attraction in Banbridge in Northern Ireland.
The proposed visitor attraction at Pinewood sounds interesting and of high potential, particularly as it is associated with a brand and location at the heart of British filmmaking. We are particularly interested in the potential cross over between the visitor attraction and live film and TV production. For this reason, the BFC has a productive partnership with VisitBritain, the national tourism agency, responsible for marketing Britain worldwide and developing Britain’s visitor economy. VisitBritain’s research shows that film and TV are powerful motivators for travel with almost a third of potential visitors to the UK keen to visit places ‘seen- on-screen’. Screen sector tourism is increasingly significant as travellers choose to visit destinations that formed the sets of their favourite TV shows and films. The abiding success of the Warner Bros. Studio Tour - The Making of Harry Potter perfectly demonstrates this.
The UK film and TV sector is a world-wide economic and cultural success story. The sector, and its benefits, are growing faster than any other part of the UK economy. This success demonstrably impacts not just the UK’s creative economy but also our national economy. However, with this success have come major
Film London is a company limited by guarantee – registered in England and Wales no. 4699825. The British Film Commission is the national division of Film London.
challenges. A key area of the BFC’s work is advising and helping source locations, key crew and talent and, crucially, studio space for major productions. The increase in content demand, which has not abated during the Covid-19 pandemic, has led to severe stage space capacity shortages. This, in turn, has led to the loss of multiple feature films and TV series to competitor jurisdictions, with the resultant loss of millions of pounds in GDP and thousands of UK jobs. We are still committed to the growth of inward investment in UK film and high-end TV as targeted in the Creative Industries Sector Deal; a more than doubling in growth to approximately £4bn a year by 2025. To achieve this, we need further skills development for the industry and significantly more studio space, notwithstanding the welcome schemes at Shepperton, Belfast Harbour, Dagenham, Elstree and elsewhere, the diversity of which meet the varying demands of our film, TV and streaming clients.
The scale of the investment and economic benefits are clearly substantial and would be welcome in our industry as we all seek routes to recovery and growth.
We are pleased to be able to confirm our support for the Screen Industries Global Growth Hub project and if we can assist in bringing it forward in any way please contact me.
Yours sincerely
Adrian Wootton OBE CEO British Film Commission and Film London
Film London is a company limited by guarantee – registered in England and Wales no. 4699825. The British Film Commission is the national division of Film London.