INFORMAL PLANNING AND DESIGN ADVICE NOTE
October 2013
Former Norbury Elderly Persons Unit, Crabtree Road, S5 7BB
Introduction
1.
This note provides general planning advice on the development potential of the above site. It includes some design guidance
based on planning policies. It is an informal officer view given without prejudice to any decision made in the formal
determination of a planning application.
Figure 1 – site boundary
Executive Summary
2.
The preferred use for this site is housing (housing or residential care
home). The open space fronting Barnsley Road must be safeguarded
and the developable area should also take into account the siting of
mature trees. A proposal must ensure that the amenity of local
residents at 4 – 10 Crabtree Road is protected.
Site Description
3.
The site is approximately 0.77 hectares and located at the junctions of
Crabtree Road, Norwood Road and Barnsley Road (figure 1). To the
north and west, the site is adjoined by residential properties at 4 – 10
Crabtree Road and on Norwood Road. To the east, the site adjoins
Crabtree Pond Nature Reserve.
4.
The single and two storey buildings of the former Norbury Elderly
Persons Unit (EPU) and Resource Centre are set back from the road
with mature trees and grassed areas fronting Barnsley Road and
Crabtree Road
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October 2013
Assessment of Planning Issues
5.
The following section discusses the principal planning issues. A detailed list of the relevant planning policies is included at
Appendix 1.
Principle of Development
6.
The principle of demolishing the buildings on site was established with the approval of application 13/00607/DPNRG3.
7.
The majority of the site is designated as a Housing Area (0.63Ha.) and the area along the front of Barnsley Road is defined as
Open Space (0.14Ha.) under the adopted Core Strategy (2009) and shown at Figure 6, Appendix 1. Any development that
would result in the loss of Open Space is unlikely to be acceptable because an Open Space Assessment (Appendix 2) shows
a quantitative shortage of both informal and formal open space in the local area.
8.
Although the Housing Area measures 0.63Ha. The developable area may be restricted by the mature trees which contribute
significantly to the street scene and the area’s character. A tree and vegetation survey should be carried out (see Appendix 1
for requirement details) but initial observations indicate that any new building works should avoid the sloping topography
where trees may be vulnerable.
9.
The preferred use for the Housing Area is residential (housing or residential care home). The following uses may be
acceptable but only if there are no suitable and available sites at Pitsmoor and Fir Vale Neighbourhood Centres (in
accordance with national planning policy):



Small convenience shop development with less than 200sqm gross floor area; or
Small-scale offices of less than 250sqm gross floor area; or
Drinking establishments and hotels.
10. A range of other uses would be decided on their individual merits including community uses (e.g. health centres, crèches,
places of worship).
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Housing
11. The density recommendation here is 40-60 dwellings per hectare because the site is on Barnsley Road which is a high
frequency bus route. Densities outside of this range may be allowed where they achieve good design, reflect the character of
the area or protect a sensitive area.
12. The following principles should be adhered to:





New buildings should be well designed and in scale and character with neighbouring buildings; and
New development should be laid out well with all new roads serving more than five dwellings being of an adoptable
standard; and
The site would not be overdeveloped or deprive residents of light, privacy or security; and
It would provide safe access to the highway network and appropriate off-street parking and not endanger pedestrians;
and
Be on a scale consistent with the residential character of the area.
13. The design of new housing developments will be expected:



To accommodate the change in levels across the site to provide an inclusive scheme;
to provide adequate private gardens or communal open space to ensure that basic standards of daylight, privacy,
security and outlook are met for all residents; and
provide uniform walls or fences around rear gardens next to roads, footpaths or other open areas.
14. Off-street car parking should be provided for residential dwellings or apartments in line with the Council’s adopted parking
standards (Appendix 1).
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Other uses
15. Should non-housing uses be proposed then the following points should be considered:



Not lead to a concentration of non-housing uses which would threaten the residential character of the area;
Not prejudice the provision of sufficient housing land in the city. Currently, there is a shortfall in the 5-year deliverable
supply of housing land which means we would prefer and encourage housing development on this site.
Not lead to air pollution, noise, smell, excessive traffic levels or other nuisance, or risk to health and safety for people
living nearby. Attention needs to be given to hours of use in order to ensure there is no unacceptable noise or
disturbance to nearby residents.
Design
16. The site is within the Area of Special Character in the Unitary Development Plan. Although this designation is not being
carried through to a Conservation Area, it is still a consideration at present. Importantly, buildings, walls, trees and open
spaces and other features that contribute to the character of the Area should be retained. In this case, this includes the
mature trees and open space fronting Crabtree Road, Norwood Road and Barnsley Road.
17. Taking the area’s character, open space and mature trees into account, the design of any development – residential or nonresidential – would need to have regard to the Urban Design Framework, Figure 4. In particular, the existing building line
along Barnsley Road and the surrounding residential properties located in close proximity to the site boundaries should be
considered carefully. With regards to the latter, the front elevations of 4-8 Crabtree Road are set between 7 and 9 metres
from the site boundary, whilst a distance of 13 metres separates No. 2 Crabtree Road from the west boundary. These
distances are minimal and care needs to be taken to ensure any development does not have an adverse impact on the
amenities of residents of these properties in terms of overbearing, overshadowing or overlooking.
Highways and Access
18. The existing access from Crabtree Road should continue to be the primary access point into the site. Access through the
open space on Barnsley Road would not be acceptable.
19. The existing vehicular access point to the site from Crabtree Road, additional pedestrian access provided at that point, and
footpaths within the site, need to be upgraded to current standards providing pedestrian access to each new dwelling. The
need for off-site requirements will be considered based on the merits of a scheme at the time of a planning application.
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October 2013
Figure 2
Trees and Landscape
20. A tree and vegetation survey will be required in accordance with BS
5837:2012 ‘Trees in relation to design, demolition and construction –
Recommendations’ (see Appendix 1 for details). Such a survey will
assess the value of the trees and make recommendations, but initial
observations show that the existing built area does not have any
planting of value with the exception of a single whitebeam in a garden
court yard adjacent to the front of the main building (shown on
figure 2). Elsewhere the planting consists of groups/single trees in
verges to the south and west of the site. Trees in the wide mown
grass verge on Barnsley Road are a mix of substantial mature trees of
significant value and younger replacement planting. A tarmac
surfaced footpath runs along the back edge of the verge and is well
used. Trees in this verge substantially contribute to the street scene of
Barnsley Road.
21. Trees on the west boundary fronting Crabtree Road/ Norwood Road
consist of closely planted mainly mature limes with sycamore, oak and
whitebeam. Again these trees contribute significantly to the street
scene and the junction arrangement with Barnsley Road. The topography here is also steeply sloping toward the existing
building so trees in this area may be vulnerable to construction works if the bank is destabilised.
Ecology
22. Sheffield City Council Ecology Unit carried out a Preliminary Bat Roost Assessment for the Norbury EPU dated March 2013,
and in accordance with the recommendations a nocturnal emergence survey was carried out. No evidence of current or
historic bat roosts were found and the Report recommended that the demolition can proceed with minimal risk to bats.
Although a method statement is recommended to implement a careful approach in the demolition of some areas of the
building. A copy of the full bat emergence survey is available upon request.
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Noise
23. Bedrooms and living rooms should be designed to achieve the internal noise criteria given below. Properties facing Barnsley
Road may require an enhanced glazing specification to achieve these levels:


Bedrooms:
LAeq 15 minutes – 30 dB (2300 to 0700hrs)
Living Rooms: LAeq 15 minutes – 40 dB (0700 to 2300hrs)
Land contamination
24. A Phase I contaminated land assessment is required for the site, this will involve checking historical records to determine if
any previous uses of the site indicate any likely contamination of the land. Should the Phase I assessments highlight any
likely contamination further investigation of the site would be required under a Phase II site report.
Urban Design Framework
25. The Urban Design Framework (Figure 4) should be used to help design a scheme for the site. The Framework is derived
from an assessment of the site’s context, features, local character and opportunities and constraints (Figure 3).
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Figure 3 Opportunities and Constraints
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Figure 4 Urban Design Framework
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Appendix 1: Development Plan Policy
Current Planning Policy Documents
Sheffield’s Local Plan currently comprises the Core Strategy (adopted in 2009) and ‘saved’ policies from the Sheffield Unitary
Development Plan (UDP) (1998). The Core Strategy replaced some of the UDP policies when it was adopted but the rest of the
policies (the ‘saved’ policies) will continue to apply until the second part of the Local Plan (City Policies and Sites document) has
been adopted. Due weight can be attached to the policies and proposals in the Core Strategy and UDP where they are consistent
with policies in the National Planning Policy Framework (NPPF).
The UDP and Core Strategy can be viewed on the Council’s website:
http://www.sheffield.gov.uk/udp
https://www.sheffield.gov.uk/corestrategy
The Pre-Submission Draft City Policies and Sites document and Proposals Map were approved by full Council in April 2013 and a
statutory call for representations on its ‘soundness’ was carried out from June to September 2013. The document and Proposals
Map can be viewed here: http://www.sheffield.gov.uk/localplan . As emerging documents, they carry limited weight though, again,
greater weight may be attached to them where they are consistent with the NPPF.
Wherever possible, this Informal Planning Advice Note is based on the adopted policies rather than the emerging policies, but
material weight can be given to the evidence that supports them and this is referred to where relevant.
Supplementary planning guidance interprets, expands and applies the Unitary Development Plan while interim planning guidance
anticipates Supplementary Planning Documents that will be part of the Sheffield Local Plan. www.sheffield.gov.uk/spg
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Figure 5 UDP Proposals Map (1998)
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Figure 6 Pre-submission SDF Proposals Map (2013)
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The following table is a list of policies that are relevant to the site.
Policy Area policies – the
The relevant part of the policy
principle of development
UDP Policy H10
Preferred use: Housing (C3), residential institutions (C2)
Acceptable uses: retail, financial and professional services (A2), restaurants and cafes /
drinking establishments / hot food takeaways (A3/A4/A5), business B1 (small scale offices
<250sqm gross internal floorspace), hotels (C1), drinking establishments, subject to national
planning policy, and community uses (D1) and leisure uses (D2) decided on their merits.
UDP Policy H14
Gives conditions on development in Housing Areas.
Core Strategy Policy CS47
0.16ha of the site falls within the following definition of informal Open Space: Small green or
landscaped areas (public or private) which provide a setting for built development and which
may offer opportunities for informal recreation close to home or work. This policy forms the
basis/ evidence for proposing Open Space Area on the Pre-submission Proposals Map
(Figure 6).
Housing policies
The relevant part of the policy
Core Strategy policy CS26
Efficient Use of Housing Land
and Accessibility
Density should be in the range of 40-60 dwellings per hectare in keeping with the accessibility
of the site to the current public transport network (high frequency bus route). Based on a net
area of 0.21ha the minimum capacity of the site would be 8 dwellings with a maximum of 13.
Densities outside this range may be justified where the development achieves good design
and reflects the character of the area.
Core Strategy policy CS41
Creating Mixed Communities
Part (b) of the policy requires a greater mix of housing, including homes for larger households,
especially families.
UDP Policy H7
Encourages 25% of new or refurbished housing in developments to be designed as mobility
housing to meet local need, except where the physical characteristics of a site or existing
buildings make it impracticable. Mobility housing includes wheelchair accessible housing or
housing that is easily adaptable for residents who are wheelchair users.
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Design Principles
The relevant part of the policy
South Yorkshire Residential
Design Guide
Used by residential developers and their design professionals, consultants and agents in
formulating designs for residential development http://www.sheffield.gov.uk/roads/about/transport-and-highways/development-andadoptions/design-guide
UDP Policy H15 Design of
New Developments
Residential design should provide easy access for people with disabilities and provide an
adequate private garden to ensure that basic standards of daylight privacy, security and
outlook are met.
CS 74 Design Principles
High quality development is expected that respects and takes advantage of the distinctive
features of the city, its districts and neighbourhoods; and
Enabling all people to gain access safely and conveniently, providing for the needs of
disabled and older people.
UDP Policy BE5 Building
Design and Siting
Good design and good quality materials expected in all new developments. Policy sets out
criteria for physical design and user requirements.
UDP Policy BE6 Landscape
Design
Good quality landscape design is expected in new developments. A Landscaping Scheme
should have an emphasis on using native species.
UDP Policy BE7 Design or
Buildings used by the Public
For non-residential proposals the four criteria on making the building safe and easy to access
for people with disabilities with appropriate parking spaces should be adhered to.
UDP Policy BE9 Design for
Vehicles
New development to provide a safe, efficient and environmentally acceptable site layout for all
vehicles (including cycles) and pedestrians.
Sustainability and
The relevant part of the policy
Climate Change
CS 64 Climate Change,
Resources and Sustainable
Design of Developments
All new buildings must be designed to reduce greenhouse gas emissions and must function in
a changing climate. Includes policy on energy efficiency, renewable energy generation, water
consumption, flexible design, use of sustainable materials and waste recycling. All
developments of 5 or more houses should achieve Code for Sustainable Homes Level 3 (or
equivalent) as a minimum.
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CS 65 Renewable Energy and
Carbon Reduction
Any new developments must take into account the energy efficiency requirements and design
standards. Developments of 5 or more dwellings should provide 10% of predicted energy
needs from renewable/low carbon sources, unless it is not feasible or viable to do so.
CS 67 Flood Risk
Management; GE19 Water
Resources; and GE20 Flood
Defence.
All developments have a responsibility to reduce the extent and impact of flooding via a
variety of ways through permeable surfaces and integration of sustainable urban drainage
systems as appropriate.
Trees
The relevant part of the policy
UDP Policy GE15
Trees will be protected by requiring developers to retain mature trees, wherever possible, and
replace any trees which are lost.
Traffic, Transport and
Highways
The relevant part of the policy
Parking Standards for Housing
(use class C3, C4)
The site is in an accessible location within easy reach of a route with buses per hour. An
Developer Contributions1
adequate amount of on-site parking must be provided for however, although the following
maximum number of spaces not exceeded:
• 1 bedroom 1-1.5 spaces
• 2 - 3 bedrooms 1.5-2 spaces
• 4 - 5 bedrooms 2-3 spaces
• A minimum of 1 space for each ‘wheelchair accessible home’ (see Residential Design SPD
for other parking requirements).
The relevant part of the policy or SPG/SPD
H16 Open Space in New
Housing Developments &
Open Space Provision in New
Housing Development SPD
The site is less than 1 hectare but for proposals of more than 5 houses the developer will be
expected to make an appropriate contribution to the provision or enhancement of recreation
space in the catchment area of the site; this is because the provision of recreation space
within the catchment area is below the minimum guideline (see Open Space Assessment at
Appendix 2).
Affordable Housing
An affordable housing contribution will not be required for fewer than 15 dwellings.
1
Planning contributions and obligations (S106) will be mostly replaced by the Community Infrastructure Levy, which is expected to be in place by 2014
subject to the approval of Sheffield City Council's Cabinet.
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Education
October 2013
The Council’s Inclusion and Learning Service considers the need for Education Section 106
contributions on a case by case basis for all developments of over 10 dwellings. Given the
location of this site and the local picture with regard to school places it is highly likely that
Section 106 contributions would be sought for both the primary and secondary phases against
any development in this area. The current rate of Education Section 106 contributions for
both primary and secondary phases are as follows (per dwelling):
Primary £2548
Secondary £2743
Confirmation of any request for contributions will be made during the consultation period once
a planning application has been submitted.

The Planning and Obligations and Education Provision SPG gives more detail –
https://www.sheffield.gov.uk/spg
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Relevant Planning History
13/00607/DPNRG3 – Prior approval granted for the demolition of the former Norbury Elderly Persons Unit and Resource Centre.
To obtain further details regarding relevant planning applications, please contact Planning Records and
Enquiries at the address below:
Planning Records and Enquiries
Development Management
Planning Division
Sheffield City Council
Howden House
1 Union Street
Sheffield S1 2SH
Email:
planningdc@sheffield.gov.uk
Telephone: 0114 203 9179
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Appendix 2 - Open Space Assessment
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Contact Details
Contact Details:
For further general planning advice or information please contact
Matthew Gregg
Area Planning Officer
Forward and Area Planning
Development Services
Sheffield City Council
Howden House
1 Union Street
Sheffield
S1 2SH
Tel: 0114 2735160
E-mail address: local.plan@sheffield.gov.uk (As this is a general e-mail address, please include in the e-mail the name of the
relevant planning officer and site location)
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