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: 4 classrooms, training rooms and cafe, dining area, common room and multisensory room. 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: 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: 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