Development Control Committee
Meeting to be held on 4 July 2012
Electoral Division affected:
Rossendale South
Rossendale Borough: Application 14/12/0256
Refurbishment of Ewood day centre for use as a post 16 special school.
Demolition of Holmewood View residential unit and use of land for car parking
and multi use games area with 3m and 4.8m high ball stop fencing.
Construction of an outdoor teaching area comprising of training room, shed
and polytunnel. Erection of 2.4m high fencing to the side and rear boundary of
the site and 1.8m high railings to the front. Improvements to the vehicular
access for mini-buses dropping off/picking up of pupils at Holmewood Hostel
Clod Lane Haslingden
Contact for further information:
Catherine Lewis, 01772 530490, Environment Directorate
DevCon@lancashire.gov.uk
Executive Summary
Application - Refurbishment of Ewood day centre for use as a post 16 special
school. Demolition of Holmewood View residential unit and use of land for car
parking and multi use games area with 3m and 4.8m high ball stop fencing.
Construction of an outdoor teaching area comprising of training room, shed and
polytunnel. Erection of 2.4m high fencing to the side and rear boundary of the site
and 1.8m high railings to the front. Improvements to the vehicular access for minibuses dropping off/picking up of pupils at Holmewood Hostel, Clod Lane,
Haslingden.
Recommendation – Summary
That planning permission be granted subject to conditions controlling
commencement, working programme, materials, protection of trees, protection of
landscaping, highway matters, travel plan and details of the temporary compound
during the construction phase of the development.
Applicant’s Proposal
Holmewood View Centre comprises a main residential block with two training
bungalows attached by covered walkways offering residential accommodation for
Ewood Day Centre which is proposed to be demolished. Planning permission is
sought for the refurbishment and remodelling of Ewood Day Centre and provide the
following facilities:
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4 classrooms, training rooms and cafe, dining area, common room and
multisensory room.
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A small infill extension measuring 5.5m x 8m x 3.7m height and the
construction of a linked corridor measuring 54m x 2.3m x 3.7m high to provide
separate access to the proposed classrooms.
An entrance canopy to provide a covered access to the main entrance.
A multi use games area measuring 26.5m x 14.5m surrounded by ball stop
fencing to a height of 3m rising to 4.8m behind the goal area coloured dark
green (RAL 6005).
An outdoor Training Room (shed like construction) measuring 4.8m x 9.6m x
3.6m high.
A potting shed measuring 3.6m x 4.8m x 2m high.
A polytunnel measuring 5.5m x 9.6m x 3m high located to the north west of
the site.
A total of 27 car park spaces including 4 disabled with a parking area for 3
minibuses.
A secure covered cycle /motorcycle store that would accommodate 4 bikes
and 3 motorcycles.
2.4m high weld mesh dark green (RAL 6005) perimeter fencing to the north,
east and south boundaries of the site.
1.8m high vertical round bar railings dark green in colour (RAL 6005) to the
front west boundary of the site.
Materials to be used in the built elements of the proposals include cream facing brick
piers and red/brown facing brick to infill panels, aluminium powder coated doors and
windows colour to be confirmed. The flat roof would be retained, stripped back with
new insulation and a single membrane covering added.
Description and Location of Site
Ewood Day Centre is located off Clod Lane, a residential street approximately
2 kilometres south of the centre of Haslingden. The site is occupied by two disused
buildings: the Ewood Day Centre and the Holme Wood View Residential Unit. The
proposed development is located partly on an area of hard standing and partly on
the previously developed site.
To the west of Clod Lane is a residential estate and recreational area. Fields are
located on the south and east boundaries with a residential property and stables on
the northern boundary.
The school and associated grounds are located within the Green Belt.
Background
History
The proposal is located at an established Special School which includes Ewood Day
Centre and Holme Wood View Residential Unit which offered residential
accommodation for the users of Ewood Day Centre.
There is no recent planning history.
Planning Policy
National Planning Policy Framework (NPPF)
The following paragraphs are relevant to the proposal:
6 – 17
56 –68
79- 92
The definition of sustainability and the purposes of the planning system
The need for good design
Green Belt issues
North West of England Regional Spatial Strategy (RSS)
Policy RDF2 Rural Areas
Policy RDF4 Green Belt
Policy L1
Health, Sport, Recreation, Cultural & Education Services Provision
Rossendale BC Core Strategy DPD (2011)
Policy 1
Policy 23
Policy 24
General Development Locations and Principles
Promoting High Quality Design and Spaces
Planning Application Requirements
Consultations
Rossendale Borough Council - No objection
LCC Assistant Director (Highways) - No objection subject to the applicant entering
into a legal agreement to upgrade the existing stops to provide bus shelters and
raised kerbs, the development of a travel plan, investigate the opportunity to provide
parking restrictions to improve highway safety at drop off and pick up times,
contractors vehicles being parked within the site in a designated area to prevent
congestion and inconvenience to residents associated with parking on the highway,
or the imposition of a temporary parking restriction if the provision of a contractor's
compound within the site is not possible. The proposed parking complies with the
County Council's parking standards.
Sport England - As the proposal does not have any impact on sports facilities or
playing field, and the proposed Multi Use Games Area is unlikely to be made
available to the local community given the nature of the school, Sport England has
no comments to make.
Representations – The application has been advertised by press and site notices,
and neighbouring residents informed by individual letter. Two letters of
representation have been received from residents of a property on Clod Lane
expressing the following concerns:
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Clod Lane was a quiet residential lane when they first purchased their
property.
Request assurances that no extra vehicles will be parked on Clod Lane and
that access along the lane and footpath will not be further restricted
No extra parking arrangements were made available at no 6 Clod Lane
although there are 2 staff and 2 resident's cars parked.
The lane already suffers congestion from vehicles associated with Tor View
School at pick up and drop off times.
Advice
Director of Transport and Environment - Observations
Planning permission is sought for the refurbishment of, and construction of an
extension to, Ewood Day Centre for use as a Post 16 Special School. This would
provide a separate sixth form unit for up to forty 16-19 age students that are currently
based at Tor View Special School - the only learning difficulties school in
Rossendale for students with learning difficulties, challenging behaviour or Autism.
The application site is currently occupied by two buildings Ewood Day Centre and
Holme Wood View residential unit. Ewood Day Centre was built in the 1960's as a
training centre for disabled adults and closed in 2010. Holme Wood View was built in
the 1970's to provide residential accommodation for the users of the training centre
and closed in 2006: it is now proposed to demolish Holme Wood View.
The main issues include the principle of the development, the implications of the
development on the local road network in terms of traffic safety, and the impact of
the proposals on the amenities of nearby residential properties.
The Principle of the Development
The proposed development would provide further educational facilities for 16 -19
year old students. It would include refurbishing the existing building known as Ewood
Day Centre and the construction of a small extension. The extension would be a
small infill extension to provide storage and wc facilities, together with a linked
corridor to provide access to classroom rooms that would be created through the
remodelling of the existing building. The Holme Wood View unit would be
demolished to provide further car parking and a Multi Use Games Area (MUGA).The
existing electricity sub-station with attached store and garage would be retained and
refurbished. A training room, shed and polytunnel would be constructed on the north
eastern boundary.
A 2.4m high boundary fence is proposed to the north south and east boundaries to
secure the perimeter of the site. 1.8m railings are proposed to the front of the site.
3m high ball stop fencing is proposed around the MUGA rising to 4.5m in height to
the goal areas which would secure the western boundary. The existing vehicular
access from Clod Lane would be widened by 1.2m.
The site falls within the Green Belt as designated by Policy 1 of the adopted
Rossendale Core Strategy DPD and as illustrated by Policy DS3 on the LDF
proposals map 2011.For the purposes of this policy proposals outside the urban
boundary are required to be determined in accordance with the relevant national and
local planning guidance. Policy RDF 4 of the RSS and paragraphs79 -92 of the
NPPF relate to development in the Green Belt.
Paragraph 86 of the NPPF states:
As with previous Green Belt policy, inappropriate development is, by
definition, harmful to the Green Belt and should not be approved except in
very special circumstances.
Paragraph 89 of the NPPF states:
A local planning authority should regard the construction of new buildings as
inappropriate in Green Belt.
A number of exceptions are listed and which include:
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Provision of appropriate facilities for outdoor sport, outdoor recreation
and for cemeteries, as long as it preserves the openness of the Green
Belt and does not conflict with the purposes of including land within it;
The extension or alteration of a building provided that it does not result
in disproportionate additions over and above the size of the original
building;
The replacement of a building, provided the new building is in the same
place and not materially larger than the one it replaces.
The proposal involves the demolition of Holme Wood View residential unit.
Approximately a third of the area that would be cleared is proposed to be used for
car parking. The remainder would be used for recreation purposes. A small
extension is proposed to the Ewood Day Centre building to improve the facilities for
delivering education to children with special needs. The extension would be small
scale and only increase the overall floor space by 1075m 2.
It is proposed to erect dark green open mesh style fencing around the site to provide
security and safety for users of the facility and for security of the site. The design and
colour has been chosen to minimise its visual impact on the openness of the Green
Belt.
The area occupied by Holme Wood View would be used for a combination of car
parking and recreation.
The whole of the site falls within the Green Belt; there are no alternative locations
within the site that fall outside the Green Belt upon which the development could be
carried out. The extension would not result in a disproportionate addition over and
above the size of the original building. It is smaller than Holme View which is to be
demolished. It would not create any harm to the Green Belt. The proposed car
parking area would similarly not cause harm to the Green Belt and the proposed
recreation area is an acceptable use within the Green Belt. The fence is necessary
to ensure security of the site and would not harm the openness of the Green Belt. It
is therefore considered that the proposal would provide much needed public service,
bring substantial benefit and the applicant has demonstrated very special
circumstances to justify the extension and other aspects of the proposal in the Green
Belt.
The proposals are therefore considered to be acceptable for the purposes of
Paragraphs 88 and 89 of the NPPF and Policy 1 of the Core Strategy
Traffic and Safety
Concerns have been expressed to the existing traffic issues associated with Tor
View School, located to the north of the proposed development and a residential
property used by student residents requiring 24 hour care. Both of these properties
share the same access road as the proposed development. The concerns relate to
extra cars parking on the street and restricting access to the road and footpath.
A transport plan has been submitted with the application. The applicant has
confirmed that the students have a right to and are brought to the premises by a mix
of minibuses and taxis relative to the needs of the students which will vary from year
to year or even term to term. Most of the students arrive in two concentrated time
periods 08.45 - 09.15 and 15.00 - 15.30. Whilst Clod Lane may become congested
at these peak times this is for a short period and is not dissimilar to many schools
and facilities of this nature. Such limited adverse impact would not amount to a
reason to refuse the application.
In terms of cars parking on the street the proposed development has the potential to
relieve the current situation. The total student numbers would largely stay the same
but would be spread over the two sites - Tor View Special School and the proposed
sixth form the subject of this proposal. Tor View Special Scholl is located on
adjacent land to Holme View. A total of 23 car parking spaces would be provided at
the sixth form site. The number of parking spaces is reflective of the nature of the
school to provide special needs education and complies with the LCC car parking
standards.
The scheme also includes 3 minibus spaces, 4 disabled parking spaces and a drop
area to the main entrance. A secure covered cycle /motorcycle store that would
accommodate 4 bikes and 3 motorcycles is also proposed. The existing vehicular
access off Clod Lane would be widened by 1.2 m and gates and railings of a
traditional vertical round bar design at 1.8m high are proposed.
LCC Assistant Director (Highways) has raised no objection subject to the applicant
entering into a legal agreement to upgrade the existing stops to provide bus shelters
and raised kerbs, the development of a travel plan, investigate the opportunity to
provide parking restrictions to improve highway safety at drop off and pick up times,
contractors vehicles being parked within the site in a designated area to prevent
congestion and inconvenience to residents associated with parking on the highway,
or the imposition of a temporary parking restriction if this is not possible. Whilst the
provision of bus shelters and dropped kerbs may be desirable and may encourage
the use of more sustainable transport, they are not considered necessary to make
the development acceptable and the applicant is unwilling to contribute to the cost of
such. Conditions are proposed requiring a travel plan to be submitted and details of
a construction compound to be provided within the site for the duration of the
construction works and for it to be used by vehicles associated with the construction
phase of the development. Subject to such conditions it is considered that the
proposal accords with Policy 24 of the Rossendale BC Core Strategy DPD.
Ecological Issues
The application is accompanied by an Extended Phase I Habitat report and Bat
Surveys. The main findings conclude that with exception of the mature trees the
ecological value of the habitats on the site is low. The trees were inspected for their
potential to support a bat roost but none of the trees were found to be large or old
enough to have this potential. It is proposed to fell one tree to facilitate the
development which in this case would be acceptable and without the need for a
replacement tree. A condition is proposed to ensure that the trees to be retained are
protected throughout the construction period
Design and Visual Impact
Ewood Day Centre is constructed of brown facing brick, with purple /grey facing brick
infill panels, white PVC-u doors and windows and flat felted roofs. The refurbishment
would involve cream facing brick piers and red/brown facing brick to infill panels,
aluminium powder coated aluminium doors and windows although no details of the
proposed colour have been provided. The existing roof covering would be removed
and replaced with single membrane flat roof system which is considered acceptable.
It is considered that the proposed materials and design would rationalise and unify
the site. A condition requiring samples of the proposed materials to be used is
proposed to ensure their suitability. The proposal is therefore considered acceptable
for the purposes of Policy 23 of the Rossendale BC Core Strategy DPD (2011)
Residential Amenity
The refurbishment of the buildings and a rationalisation of the site would not have an
adverse affect on the residential amenity of the adjoining properties. Whilst the
MUGA has the potential to cause some disturbance, this would not be any greater
than that which could be expected as part of normal activities for a school of this
nature and would not be used for community use. The nearest residential property is
approximately 60m to the northwest on the opposite side of Clod Lane. Immediately
opposite the school is a recreational area. There is also an established landscape
strip some 4m in depth on the western boundary that would screen the MUGA from
Clod Lane.
There is also a residential property some 65m away from the MUGA on the northern
boundary. However, Ewood Day Centre is located in-between the proposed MUGA
and the residential property and would act as a buffer zone. It is therefore
considered that the proposal would not adversely affect residential amenity and
meets the aims of Policy 24 of the Rossendale BC Core Strategy DPD.
Conclusion
The proposed development would provide a new sixth form centre for students with
special needs. The development includes important facilities that are much needed
to significantly improve the education resources for this group of students. Although
the proposed development is within the Green Belt the site has been used as a
training centre for adults with special needs and the proposal is for a similar use.
The development would be of an acceptable design within the Green Belt and when
seen from the nearest residential properties in the area. The layout and means of
access is also acceptable.
In view of the nature scale and location it is considered that no Convention Rights
set out in the Human Rights Act 1998 would be affected.
Summary of Reasons for Decision
The proposed development would provide modern facilities for a sixth form centre for
students with special needs. The proposed extension is small scale and of an
acceptable design. The fence would ensure the security of the site. The design and
colour are acceptable. The fence would not affect the openness of the Green Belt.
The proposal would bring substantial public benefit and the applicant has
demonstrated very special circumstances for the extension and the other aspects of
the development. The layout and means of access is acceptable and the parking
provision is acceptable for a school of this nature and complies with the County
Council's parking standards. The provision of a contractor's compound within the
site during the construction phase of the development and the provision of additional
car parking following completion of the development would minimise congestion and
traffic on the public highway. The development complies with the policies of the
development plan. The policies of the development plan relevant to this decision are:
Rossendale BC Core Strategy DPD (2011)
Policy 1
Policy 23
Policy 24
General Development Locations and Principles
Promoting High Quality Design and Spaces
Planning Application Requirements
Recommendation
That planning permission be granted subject to the following conditions:
Time Limits
1.
The development shall commence not later than 3 years from the date of this
permission.
Reason: Imposed pursuant to Section 91 (1) (a) of the Town and Country
Planning Act 1990.
Working Programme
2.
The development shall be carried out, except where modified by the
conditions to this permission, in accordance with the following documents:
a)
The Planning Application and supporting statement received by
the Director of Transport and Environment on 21.05.2012 as
amended by the e-mail from Richard Dugdale dated the 13 June
2012.
b)
Submitted Plans and documents:
Drawing No. A.02
Drawing No. A.03
Drawing No. A.04
Drawing No. A.05
Drawing No. A.06
Drawing No. A.07
Drawing No. A.08
Drawing No. A.09
entitled 'Existing Ground Floor Layout'
entitled 'Part Elevations as Existing '
entitled 'Elevations as Existing'
entitled 'Proposed Floor Layout'
entitled 'Part Elevations as Proposed'
entitled 'Elevations as Proposed'
entitled 'Proposed Site Plan'
entitled 'Site Survey'
Drawing No. A.25 entitled 'Site Fences'
c)
All schemes and programmes approved in accordance with this
permission.
Reason: To minimise the impact of the development on the amenities of the
area and to conform with Policies 1, 23 and 24 of the Rossendale BC Core
Strategy DPD (2011)
Building Materials
3.
No development shall commence until details of the building materials to be
used for the external elevations, canopy, doors and windows of the building
have been submitted to and approved in writing by the Director of Transport
and Environment. The development shall be carried out in accordance with
the approved details.
Reason: To protect the visual amenities of the area and to conform with
Policy 23 of the Rossendale Core Strategy DPD.
Landscaping
4.
All hedges and trees forming part of the site boundaries or to be retained
within the site as shown on Drawing No A-08 entitled 'Proposed Site Plan'
shall be protected from any damage and maintained throughout the
construction phase of the development.
Reason: In the interests of visual and local amenity and the local environment
and to conform with Policy 24 of the Rossendale Core Strategy DPD.
5.
Any trees within the site, other than the tree which is proposed to be removed,
which are either removed or damaged, become diseased or which die at any
time during the construction phase of the development, shall be replaced
during the first available planting season, as defined in this permission, after
which such condition is discovered with trees of a similar type, number and
species so affected and thereafter maintained for a period of 5 years.
Reason: In the interests of visual and local amenity and the local environment
and to conform with Policy 24 of the Rossendale Core Strategy DPD.
Highway Matter
6.
Within 6 months of the development being brought into use a Travel Plan, as
defined by this permission, shall be submitted to the Director of Transport and
Environment for approval in writing.
The Travel Plan shall include:
a)
b)
c)
d)
e)
A brief description of the development, its location and a
summary of the particular transport and road safety issues at the
site;
Evidence and results of consultation with staff and other
interested parties;
Targets and measures to minimise the impact of/reduce private
car use for the journey to and from the site by staff and other
visitors
A summary of the site’s current road safety policies and
practices, details of any new or proposed initiatives including a
planned timetable of introduction; and,
Proposals for monitoring progress of the Travel Plan including a
timetable for its review.
The approved travel plan shall be implemented within one month from
approval in writing.
Reason: in the interests of highway safety and to conform with Policy 24 of
the Rossendale Core Strategy DPD.
7.
No development shall commence until a scheme and programme for the
location of the temporary construction compound which identifies a
designated area for the parking of contractors vehicles for the duration of the
demolition and construction p phases of the development, has been submitted
to and approved in writing by the Director of Transport and Environment. The
compound shall be constructed in the approved location before any other part
of the development is commenced, including demolition and thereafter the
compound shall be used by vehicles for parking by all vehicles associated
with the demolition and construction phases of the development.
Reason: In the interest of highway safety.
Definitions
Planting Season: The period between 1 October in any one year and 31 March in
the following year.
School Travel Plan: this is a document setting out a package of measures for
reducing the number of car trips made to a school or a group of schools by parents
and staff for improving safety on the school journey. The Plan may be produced by
the Local Authority in consultation with a school or may be produced by the school
with the advice of the Local Authority
Notes
The applicant's attention is drawn to the requirements of the Equality Act 2010 and
the British Standards Institution Code of Practice for Design of Buildings and their
approaches to meet the needs of Disabled People (BS8300:2009). The design of the
building will also need to comply with Part M of the Building Regulations 2010. In the
case of educational buildings, the applicant's attention is drawn to the Special
Educational Needs and Disability Act 2001 and the guidance prepared by the
Department of Education and Skills Building Bulletin 91 (Access for the Disabled to
School Buildings) and Building Bulletin 94 (Inclusive School Design).
Local Government (Access to Information) Act 1985
List of Background Papers
Paper
Date
Contact/Directorate/Ext
14/12/0256
21.05.2012
Catherine Lewis/Environment/30490
Reason for Inclusion in Part II, if appropriate
N/A