planning report D&P/0300K/01
20 October 2015
Brunel University, Kingston Lane, Uxbridge
in the London Borough of Hillingdon
planning application no.532/APP/2015/3350
Strategic planning application stage 1 referral
Town & Country Planning Act 1990 (as amended); Greater London Authority Acts 1999 and 2007;
Town & Country Planning (Mayor of London) Order 2008.
The proposal
Full planning application for construction of a research laboratory building, together with associated
facilities.
The applicant
The applicant is Brunel University, and the architect is Pascall+Watson.
Strategic issues
The key strategic planning issue which is assessed in this short report is the acceptability of the
proposed research laboratory development on Green Belt. Other planning issues including
transport concerns that TfL raised can be dealt with by the Council.
Recommendation
That Hillingdon Council be advised that the application complies with the London Plan, for the
reasons set out in paragraph 40 of this report and does not need to be referred back to the Mayor.
The Council should, however, take account of the comments made in that paragraph of this report.
Context
1
On 15 September 2015 the Mayor of London received documents from Hillingdon Council
notifying him of a planning application of potential strategic importance to develop the above site for
the above uses. Under the provisions of The Town & Country Planning (Mayor of London) Order 2008
the Mayor has until 26 October 2015 to provide the Council with a statement setting out whether he
considers that the application complies with the London Plan, and his reasons for taking that view.
The Mayor may also provide other comments. This report sets out information for the Mayor’s use in
deciding what decision to make.
2
The application is referable under Category 3D of the Schedule of the Order 2008:
“Development- (a) on land allocated as Green Belt or Metropolitan Open Land in the development
plan, in proposals for such a plan, or in proposals for the alteration or replacement of such a plan; and
(b) which would involve the construction of a building with a floor space of more than 1,000 square
metres or a material change in the use of such a building”.
3
Once Hillingdon Council has resolved to determine the application, it is required to refer it
back to the Mayor for his decision, as to whether to direct refusal or allow the Council to determine it
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itself, unless otherwise advised. In this instance the Council does not need to refer the application
back to the Mayor.
4
The Mayor of London’s statement on this case will be made available on the GLA website
www.london.gov.uk.
Site description
5
Brunel University is a campus university located in Green Belt on the outskirts of Uxbridge,
West London. The campus is organised into eight constituent academic schools and with ten research
institutes. It comprises a mixture of educational, social and residential buildings to the south of
Uxbridge.
6
The application site for the current proposals involves a car park, totalling 0.37 hectares,
located within Brunel University’s Uxbridge Campus. The proposed new building is to be located
within the south-east corner of the campus, within the heart of the Science Park area of the Uxbridge
campus zones. To the east, the proposed building faces the existing campus Gardiner Building. An
academic square or quad garden is proposed in this location to provide a landscape outlook for both
the new facility and the existing building occupants. To the north the proposed building faces the
existing campus Russell Building.
7
The site has line of mature trees to the southern boundary which, together with a 3-5m tall
and mature hedgerow running the length of entire southern boundary, separating the site it from the
private road of Nursery Lane. The perimeter trees and tall boundary hedging are all to be retained.
8
The main access to the AMCC building will be off the main campus circulation route of the
South Loop Road, adaption of the existing access to the parking area. Lost parking spaces will be
accommodated by a separate planning application for a multi-storey car-park solution, submitted at
the same time as this application.
9
Pedestrian access will be separated from the vehicular access via the north-east corner of the
site. Service access and deliveries will be limited to 7.5T fixed-bed Lorries and refuse and recycling
collection will be limited to the existing campus strategic plan using the South Loop Road access. A
new service yard for unloading and turning will be created at the western end of the site, restricted
vehicle movements away from student and staff pedestrians.
10
The nearest part of the Transport for London Road Network (TLRN) is located approximately
2.7km to the north east of the site. The nearest London Underground station is Uxbridge, located
approximately 1.5km north of the site. The station is served by the Metropolitan and Piccadilly Line
with frequent services to destinations in Central London. Two bus routes, U1 and U3 provide direct
connection to the university site from Uxbridge Station with a combined frequency of nine buses per
hour. As such, the site has a very poor public transport accessibility level - PTAL rating of 1a, on the
scale of 1 to 6.
Site location of the proposed Research Facility AMCC 2 (looking eastward): Source – applicant’s design and access statement.
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Details of the proposal
11
The proposals involve a full planning application for construction of a research laboratory
building (AMCC 2), together with associated substation, stores, car parking, access and landscaping.
12
The specific proposals of the AMCC 2 (Advanced Metals Casting Centre 2) include: A main building of 1,476sqm floor space (gross internal area).
 The building would need to accommodate research equipment that is up to 8mts high, which
would be lower than the existing AMCC 1 building (which is 14mts).
 A new landscaped ‘Academic Square’.
 A direct pathway to the AMCC 1 building.
 Car parking spaces (including one disabled parking space), four secure cycle lockers and a
servicing area.
 A number of external transformer and storage buildings.
 Additional landscaping, to supplement that already existing.
Case history
13
The applicant states that the University has held a pre-application meeting with the Council
on 23rd July 2015. This advice has been helpful in drawing together the planning application, in
confirming that there are no objections to the principle of development, provided certain technical
issues are satisfactorily addressed, and also in determining the planning application documentation
that would be required.
14
Similar planning application for a research laboratory (AMCC 1) building gained planning
permission in the summer of 2014 to accommodate new research equipment. The application was
referred to the Mayor and it was strongly supported (D&P/0300i).
Strategic planning issues and relevant policies and guidance
15
The relevant issues and corresponding policies are as follows:
 Green Belt
 Education
 World City
London Plan;
London Plan; Mayor’s Social Infrastructure SPG;
London Plan;
16
For the purposes of Section 38(6) of the Planning and Compulsory Purchase Act 2004, the
development plan in force for the area 2012 Hillingdon Local Plan: Part 1 - Strategic Policies, and
the Part 2 - Saved policies of the Unitary Development Plan (2012), and the London Plan
(Consolidated with Alterations since 2011).
17
The National Planning Policy Framework and Technical Guide to the National Planning Policy
Framework, the Mayor’s Social Infrastructure SPG (2015) and the draft Minor Alteration to the
London Plan (MALP,2015), and the Council’s emerging Local Plan: Part 2 - Development
Management Policies and Site Allocations and Designations are also relevant material considerations.
Principle of land use: Development of Research Laboratory on Green Belt
18
One of the Mayor’s visions and objectives is enabling London to be an internationally
competitive and successful city with a strong and diverse economy and an entrepreneurial spirit that
benefit all Londoners and all parts of London; a city which is at the leading edge of innovation and
research and which is comfortable with – and makes the most of – its rich heritage and cultural
resources. The London Plan points out that the next 20 years are likely to see continued changes to
the London economy, with new sectors and enterprises emerging, building on the capital’s rich
resources of research and innovation and its world-class universities and specialist institutions.
page 3
19
Policy 2.1 of the London Plan states that the Mayor and the GLA Group, and all other
strategic agencies should ensure that London retains and extends its global role as a sustainable
centre for business, innovation, creativity, health, education and research, culture and art and as a
place to live, visit and enjoy.
20
Policy 4.10 of the London Plan points out that the Mayor, boroughs and other relevant
agencies and stakeholders should support innovation and research, including strong promotion of
London as a research location and encourage the application of the products of research in the
capital’s economic development and give strong support for London’s higher and further education
institutions and their development, recognising their needs for accommodation.
21
The planning statement states that the facility known as AMCC1 Research Laboratory
gained planning permission in the summer of 2014 to accommodate new research equipment. The
success of this research programme has led to additional research funding to provide research
support capability, within the proposed AMCC2 Research Laboratory facility.
22
The statement reiterates that the proposed research building would be used as part of the
University’s existing Advanced Metals Casting Centre 2 (AMCC 2). The proposed ‘AMCC 2’ building
would support the UK manufacturing sector by conducting research and development in the
resource efficient processing of high performance alloys for automotive applications. The facilities
would be installed in a purpose-built laboratory, complete with power, water and gas supply. This
would establish a unique national scale up facility for light metal casting research. The UK metal
casting industry is a key player in the global market. It adds £2.6bn/year to the UK economy,
employs directly around 30,000 people.
23
The application site is part of a larger area identified as Green Belt. The University campus
has historically been identified as a ‘Major Developed Site’, at which certain forms of infilling and
redevelopment will be considered appropriate. Therefore, the applicant has argued the current
application should also be considered in this context and that the development is appropriate.
24
Within the exceptions listed in NPPF at paragraph 89, it states that limited infilling and
partial or complete redevelopment of previously developed sites which would not have a greater
impact on the openness of the Green Belt and the purpose of including land within it than the
existing development would be acceptable.
25
The site where the proposed building is to be located is currently used for car parking and
is within the curtilage of the developed Brunel University site and therefore can be considered as a
previously developed site. The works would not therefore increase the developed area of the site
and their impact on the openness of the Green Belt in this location is limited as the proposed
buildings are up to 8mts much lower than the recently built AMCC 1 laboratory building which has a
height of 14mts. It is considered that the current proposal is a limited infilling and therefore, an
appropriate development.
26
Furthermore, Brunel University is identified in the Hillingdon Local Plan as a major
developed site within the Green Belt. Although the NPPF no longer refers to major development
sites, Policy PR22 of the Hillingdon Local Plan: Part 2 – Saved UDP policies (November 2012)
reserves the campus for development associated with the functioning of the University as a centre
of academic learning and research while safeguarding the function and open nature of the Green
Belt. The proposed use for educational research is therefore considered appropriate at this location.
27
Very special circumstances: The London Plan (Policy 7.16) and National Planning Policy
Framework (paragraph 89) set out forms of development that are not inappropriate in the Green
Belt. All other forms of development are, by definition, ‘inappropriate’. In order for ‘inappropriate’
development to be acceptable in the Green Belt, very special circumstances must apply.
28
Notwithstanding the above argument about the appropriateness of the development,
should it be considered that the proposals constitute ‘inappropriate development’ within the Green
Belt; the applicant has set out ‘very special circumstances’ justifying the proposed scheme. These
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relate to the substantial employment, education, inward investment and sustainability benefits of
the proposals. Therefore, the applicant has concluded that these clearly outweigh any harm that
might exist to the Green Belt.
29
As the applicant demonstrated there exist ‘very special circumstances’ in this instance and it
is pertinent to note that Brunel University has been on its Uxbridge campus since its formal
inception in 1966. The national planning guidance which preceded PPG2 and NPPF in its current
form, allowed new development to take place within “institutions standing in extensive grounds”,
since such institutions pre-dated Green Belt policy.
30
Furthermore, as discussed above the proposed research laboratory building will deliver
strategic planning benefits to London by ensuring the University stays at the forefront in
engineering research thus securing the future of the University, both in terms of its status as an
education institution and as a key local employer carrying out strategically important research. Most
notably, the proposal would contain the university’s growth on a single site, in line with Mayor’s
objectives to make more efficient use of the available land resource which clearly outweighs other
planning considerations.
31
Therefore, given the planning context and history of the application site, the limited impact
on the openness of the Green Belt, the benefits as outlined above, on balance; it is considered that
‘very special circumstances’ exist to allow this development.
32
In summary, the proposed development of the Research Laboratory building and its
associated works on Green Belt, is strongly supported in land use principle.
Visual impact assessment
33
The planning application provides sufficient information with which to assess the visual
impact of the proposed development in comparison with the existing built form, on the openness of
the Green Belt, which is considered to be limited as discussed above (see also the figures below.)
Visual impact analysis from different vantage points: Source- applicant’s planning document.
Transport for London’s comments
34
A transport assessment has been submitted. It stated that that the proposed building will be
occupied by current employees of the university, with little additional trips expected to be
generated; TfL is therefore content that there would be little impact to the local transport and
highway network resulting from the proposal.
page 5
35
The proposed development will result in a net loss of 66 parking spaces on the development
site; with fifteen car parking spaces being retained, including one disabled space. TfL requests that
one additional disabled parking space is provided, taking the total up to two, in line with the latest
London Plan car parking standards and London Plan Policy 6.13. TfL also recommends that 10 per
cent of all spaces should be provided with electric vehicle charging facilities with an additional 10 per
cent passive provision for electric vehicles in the future.
36
TfL notes that four cycle parking spaces are proposed; however, this provision is short by two
spaces based on Land Use as set out in the London Plan cycle parking standards. TfL requests that
six cycle parking spaces for staff should be provided as well as a minimum of one for visitors.
Local planning authority’s position
37
Hillingdon Council planning officers have yet to confirm their position. However, they have
confirmed that there are no objections to the principle of development provided certain technical
issues are satisfactorily addressed.
Legal considerations
38
Under the arrangements set out in Article 4 of the Town and Country Planning (Mayor of
London) Order 2008 the Mayor is required to provide the local planning authority with a statement
setting out whether he considers that the application complies with the London Plan, and his
reasons for taking that view. Unless notified otherwise by the Mayor, the Council must consult the
Mayor again under Article 5 of the Order if it subsequently resolves to make a draft decision on the
application, in order that the Mayor may decide whether to allow the draft decision to proceed
unchanged or direct the Council under Article 6 of the Order to refuse the application. There is no
obligation at this present stage for the Mayor to indicate his intentions regarding a possible
direction, and no such decision should be inferred from the Mayor’s statement and comments.
Financial considerations
39
There are no financial considerations at this stage.
Conclusion
40
The key strategic planning issue which is assessed in this short report is the acceptability of
the proposed development on Green Belt. Other planning issues including transport concerns TfL
raised can be dealt with the Council. The proposed research laboratory development complies with
the London Plan as set out below:
41

Principle of land use - research laboratory development on Green Belt: The proposal
for a research laboratory facility on Green Belt is strongly supported, as it promotes the
Mayor’s vision and objective; enabling London as an internationally competitive and
successful city with a strong and diverse economy and an entrepreneurial spirit that benefit
all Londoners and all parts of London.

Very special circumstances: As discussed above the proposed development is considered
as appropriate development as it fulfils the NPPF exceptions of limited infilling, however,
should it be considered that the proposals constitute ‘inappropriate development’ within the
Green Belt, very special circumstances have been demonstrated justifying the proposed
development on the Green Belt.

Visual impact: The visual impact of the development is considered minimal.
The Mayor does not need to be consulted again on this application.
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For further information, contact GLA Planning Unit (Development & Projects Team):
Colin Wilson, Senior Manager (Development & Projects)
020 7983 4783 email colin.wilson@london.gov.uk
Justin Carr, Strategic Planning Manager (Development & Projects)
020 7983 4895 email justin.carr@london.gov.uk
Tefera Tibebe, Case Officer
020 7983 4312 email tefera.tibebe@london.gov.uk
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