26JULY 2016 PLANNING COMMITTEE

5b / 16/0045 / Reg’d: / 22.02.16 / Expires: / 18.04.16 / Ward: / WB
Nei. Con. Exp: / 24.03.16 / BVPI
Target: / Minor / Number of Weeks on Cttee’ Day: / 22/8 / On Target? / No
LOCATION: / Roxburghe House, Lavender Park Road, West Byfleet
PROPOSAL: / Construction of two storey extension to the roof to form five duplex apartments together with external alterations to the existing building and car park
TYPE: / Full application
APPLICANT: / Magna (West Byfleet) Ltd / OFFICER: / Carol Ann O’Kane

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REASON FOR REFERRAL TO COMMITTEE

The application is required to be referred to Planning Committee as it involves the creation of new residential units.

SUMMARY OF PROPOSED DEVELOPMENT

Construction of two storey extension to the roof to form five duplex apartments together with external alterations to the existing building and car park

PLANNING STATUS

  • West Byfleet District Centre
  • High Archaeological Potential
  • Potential contamination
  • Thames Basin Heaths SPA Zone B (400m-5km)

RECOMMENDATION

GRANT subject to conditions and completion of a legal agreement to secure SAMM

SITE DESCRIPTION

The application site comprises of a 4 storey office building fronting onto Lavender Park Road. The front and rear of the site is dominated by hard surfaced parking areas.Station Approach Conservation Area lies approx. 50 metres to the North West of the site and Byfleet Corner/ Rosemount Parade Conservation Area lies approx. 60 metres to the South East.

PLANNING HISTORY

  • PLAN/2013/0930 - Change of use from B1 (Offices) to C3 (Residential). 14 Residential Units; 4x1no Bedrooms, 10x2no Bedrooms – Prior Approval Refused 11.11.2013
  • PLAN/2014/0544 – Change of use from B1 (Offices) to C3 (Residential). 14 Residential Units – Prior Approval Granted 04.06.2015
  • PLAN/2015/0869 - Prior approval for the conversion of Offices (Class B1a) to residential (Class C3) comprising 22no (1-bed units) – Prior Approval Granted 05.10.2015
  • HABREG/2015/0001 - Approval under Regulation 75 of the Conservation (Natural Habitats etc) Regulations 2010 for application number PLAN/2014/0544 (prior approval for change of use from Offices (Class B1) to Residential (Class C3) comprising 14 flats – Withdrawn
  • HABREG/2015/0002 - Approval under Regulation 75 of the Conservation (Natural Habitats etc) Regulations 2010 for application number PLAN/2015/0869 (Prior approval for the conversion of offices (Class B1a) to residential (Class C3) comprising 22 no (1 bed units) – Pending
  • PLAN/2015/1110 - External alterations including application of cladding, new windows, doors and balconies and provision of cycle/refuse store and plant room – Approved 21.01.2016

PROPOSED DEVELOPMENT

This application seeks planning permission for the construction of a two storey extension to the roof to form 5 x 2 bedroom duplex apartments together with external alterations to the existing building and car park.

Over the course of the application, the applicant has provided the following information:

  • Daylight and Sunlight Study
  • Computer Generated Images (CGI’s)
  • Street Scene Section
  • Street Scene along Lavender Park Road

CONSULTATIONS

County Highway Authority: The CHA has undertaken an assessment in terms of the net likely additional traffic generation, access arrangements and parking provision and are satisfied that the application would not have a material impact on the safety and operation of the adjoining public highway. The CHA therefore has no highway requirements.

Housing and Enabling Officer:A commuted sum of £87,709 will be required.

Officer Response: This advice was received prior to the Court of Appeal judgement of R (West Berkshire District Council and Reading Borough Council) v. Secretary of State for Communities and Local Government [2016] EWCA Civ 441.

REPRESENTATIONS

20 letters of objection received including letters from West Byfleet Neighbourhood Forum, and Byfleet, West Byfleet & Pyrford Residents’ Association summarised as:

  • Proposed development does not reflect local character and will detract from the important Conservation Areas of Station Approach and Byfleet Corner and their settings in the District Centre
  • Will present a featureless dark brown brick wall in full view of the approach to the village
  • Will not make a positive contribution to the skyline and height proposed is not justified or appropriate for this village location as required by the Design SPD
  • Unhealthy precedent
  • Over dominating in the street scene
  • Contrary to Policy CS21
  • High over density of development
  • Will place further strain on local services including GP services, schooling, water and sewage

Officer Response: The addition of 5 units is not considered to have a significant impact on GP pressure within West Byfleet nor would it warrant additional provision being made on a site specific basis. Due to the small scale nature of the scheme, water and sewage would be dealt with through building regulations and the related authorities.

  • Too few car parking spaces, this would add even more traffic, access and parking problems to the centre of West Byfleet
  • Most people will still own cars however close they are to the station
  • It will overlook and overshadow nearby residential properties causing loss of light and privacy
  • Developers have not provided a graphic that provides scale and context in relation to surrounding buildings
  • Discrepancy between the drawings with regards to the mobile phone aerials – if these are proposed on the building this will accentuate the proposed height and provide a blight to the skyline
  • Discrepancy between the Design and Access Statement which states that there will be 24 spaces for 24 units when actually there will be 27 units, 3 car parking of which are outside the boundary of the application site, site plan appears to show 19 spaces

Officer Note: The site plan shows 19 spaces

  • Layout of car parking does not appear to meet highways guidance with regard to the separation distance between spaces opposite each other(6 metres)
  • Policy CS10 recommends the density of housing in West Byfleet Village Centre to bein the range of 50-100 dph, the proposed development increases this to 308dph, totally out of character
  • No provision has been made for affordable housing as required by Policy CS12
  • Development of Sheer House is under discussion but the eventual scheme is unlikely to replicate its current height
  • No contribution to the infrastructure levy
  • Not what residents want for the village

RELEVANT PLANNING POLICIES

National Planning Policy Framework (2012) (NPPF)

  • Section 6 Delivering a wide choice of high quality homes
  • Section 7 Requiring Good Design
  • Section 11 Conserving and enhancing the natural environment

Woking Borough Core Strategy (2012)

  • CS3: West Byfleet District Centre
  • CS8: Thames Basin Heaths Special Protection Area
  • CS10: Housing Distribution
  • CS11: Housing Mix
  • CS12: Affordable Housing
  • CS18: Transport and accessibility
  • CS20: Heritage and Conservation
  • CS21: Design
  • CS22: Sustainable Construction
  • CS24: Woking’s landscape and townscape
  • CS25: Presumption in Favour of Sustainable Development

Development Management Policies DPD

  • DM20: Heritage Assets and their Settings

(The Development Management Policies DPD was submitted to the Secretary of State on 29th February and should now be given significant weight in the determination of planning applications)

Supplementary Planning Documents / Guidance’s (SPDs & SPGs)

  • Outlook, Amenity, Privacy and Daylight SPD (2008)
  • Parking Standards SPD (2006)
  • Design SPD (2015)
  • Climate Change SPD (2013)
  • Affordable Housing
  • Thames Basin Heaths SPA Avoidance Strategy

PLANNING ISSUES

Principle of Development

1.The application site falls within West Byfleet District Centre where Policy CS3 states that high density mixed-use development will be encouraged. The principle of additional residential flats in this location is therefore considered to be acceptable.

2.Policy CS10, in line with CS3, makes provision for 170 dwellings within the West Byfleet District Centre between 2010 and 2027, at a density of 50-100dph. The Core Strategy implies that these density figures are only to be used as indicative, where it goes onto state density levels will depend on the nature of the site and will be influenced by design with the aim to achieve the most efficient use of land. Higher densities than these guidelines will be permitted in principle where they can be justified in terms of the sustainability of the location and where the character of the area would not be compromised.

3.This proposal, in addition to the 22 units granted under the prior approval application would result in a density of 353 dph which is high, however this is considered to be justified by the site’s sustainable location and its acceptable impact on the character of the area which is discussed in further detail in the following section. It is also worth noting that with the implementation of the prior approval alone for the 22 units, this would result in a density of 287 dph.

Design and impact on the character and appearance of the street scene andsurrounding area

4.One of the core principles of the NPPF is to seek to secure high quality design. Policy CS21 of the Core Strategy states that buildings should respect and make a positive contribution to the street scene and the character of the area paying due regard to the scale, height, proportions, building lines, layout, materials and other characteristics of adjoining buildings and land.

5.Furthermore the Council’s Design SPD advises that the height of Sheer House in West Byfleet is inappropriate for the centre. New proposals should accommodate medium scale buildings (c. 5-6 storeys) in a clear block structure. The design of new facades should be sensitive to the historic buildings found in the surrounding context.

6.The existing site comprises of a flat roofed four storey office building which is of no particular architectural merit. Permission has already been granted for alterations to the fenestrations and recladding with modern materials including Rockpanel Rockclad cladding boards of contrasting colours and render on the ground floor under application PLAN/2015/1110 as shown on the submitted drawings. These changes were considered to give the building a much needed facelift which would enhance the street scene and the character of the area.

7.In addition the proposed plant, bin and cycle stores have already been approved under application PLAN/2015/1110 due to their low key nature whichwould integrate well with the existing built form.

8.This application would comprise of a two storey extension to the building increasing the height from 12.7 metres to 18.4 metres. The extension has been designed with a curved frontage which is set in from the main building line of the existing building which effectively reduces the scale of the building. Furthermore the use of zinc standing seam roof and the insertion of balconies help break up the façade of the building whilst also providing modern detailing.

9.There is no established scale of built form within the surrounding area. It varies from the two storey residential units at Drayton Court opposite the site tothe adjoining three storey building of Globe House and the seven storey building of Sheer House to the rear. In the context of the surrounding area and the design of the proposed extension, the scale of the building which would be in line with that advised in the Design SPD is considered to be appropriate.

10.The side elevation would be clearly in view when approaching the site from the south east along Lavender Park Road. At present this comprises of a bland brown brick wall. This view would be improved through the recladding of the building with rockpanel wood cladding board which would give the building a fresh modern appearance. In terms of the additional storeys, these would be broken up by the glazed windows and curved roof.

11.Station Approach Conservation Area lies approx. 50 metres to the North West of the site and Byfleet Corner/ Rosemount Parade Conservation Area lies approx. 60 metres to the South East.The proposed increase in height of Roxburghe House would not restrict views of the Conservation Areas. Whilst the building would be viewable from within these Conservation Areas, due to the separation distances, it is not considered to have an adverse impact on their setting. Furthermore the building would be read in context of the varied nature of the surrounding village centre.

12.It is noted that a number of community comments have expressed concern that the proposed increase in height would set an unhealthy precedent for the future redevelopment of Sheer House. There is no current live planning application for the redevelopment of Sheer House. The proposed increase in height of Roxburghe House has been fully assessed on its own merits and is considered acceptable for the reasons set out above. Any future planning application for the redevelopment of Sheer House would be similarly assessed on its own individual merits.

13.The existing building has mobile antenna on its roof. It is noted that the CGIs and street section provided indicate mobile antenna on the proposed extension, however planning permission has not been applied for these structures and as such these do not form part of this application.

14.The proposed development is therefore considered to make a positive contribution to the street scene and the character of the area and would not cause harm to the setting of the nearby Conservation Areas in accordance with Policies CS20, CS21 and CS24 of the Core Strategy, Policy DM20 of the Development Management Policies DPD, Design SPD and the NPPF.

Impact on the living conditions of future occupants and the amenity of neighbouring properties

15.A core principle of the NPPF is to secure a good standard of amenity for existing and future occupants of land and buildings. Furthermore Policy CS21 goes onto state that new developments should achieve a satisfactory relationship to adjoining properties avoiding significant harmful impact in terms of loss of privacy, daylight or sunlight, or an overbearing effect due to bulk, proximity or outlook.

16.The residential properties of Drayton Court and York House lie to the north east of the application site. It is acknowledged that the proposed extension to the building would result in additional windows and balconies facing these properties. It is considered that these additions would not result in any greater degree of overlooking or loss of privacy from what presently exists. Furthermore a separation distance at a minimum of 24 metres would be maintained between the properties which would exceed the 15 metres specified within the Council’s Outlook, Amenity, Privacy and Daylight SPD. The proposed development would therefore not cause an unacceptable level of overlooking or loss of privacy to adjoining properties.

17.The applicant has submitted a Daylight and Sunlight Study which assesses the impact of the proposed development on the neighbouring properties of Drayton Court and York House in respect of daylight and sunlight based on the tests set out in the Building Research Establishment (BRE) guide ‘Site Layout Planning for Daylight and Sunlight: A Guide to Good Practice’ 2011.

18.The study demonstrates that the proposal would meet the BRE recommended levels and as such adequate levels of daylight and sunlight would be maintained for the surrounding residential properties.

19.The proposed extension would face the north eastern elevation of Sheer House with a separation distance of approximately 14 metres. There are existing windows which serve a stairwell along this elevation of Sheer House which would face the existing rear elevation windows of Roxburghe House and as such the proposed extension would result in no greater degree of overlooking or loss of privacy than what presently exists. A stairwell would also be considered a non-habitable area and as such any loss of light would not beconsidered an issue. Furthermore it is noted that office buildings are not afforded the same degree of protection in respect to amenity as residential buildings.

20.However it is important to ensure that the future re-development of Sheer House would not be prejudiced by the proposed development. As explained above, there are existing windows on the rear elevation of Roxburghe House and as such the additional windows from the proposed extension would result in no greater degree of overlooking or loss of privacy than what presently exists. In addition the main habitable areas for the proposed flats have their main outlook to the front of the building. As such the relationship with the adjoining Sheer House site is considered to be acceptable.

21.In terms of the proposed units, it is considered that a reasonable degree of outlook, daylight and sunlight would be provided for the main habitable areas. TheOutlook, Amenity, Privacy and Daylight SPD advises that in the most dense urban locations of Woking Town Centre and some larger village centres, alternative forms of on-site amenity provisions may be permitted in lieu of a conventional private garden. In this instance each unit of the proposed development would be provided with a private balcony.

22.In light of the above, theproposal is considered to maintain an acceptable level of amenity for future and existing occupiers of adjoining properties and the proposed units in accordance with the NPPF, Policy CS21 of the Core Strategyand the ‘Outlook, Amenity, Privacy and Daylight’SPD.

Impact on Parking and Highway Safety

23.Policy CS18 sets out the approach to parking standards whilst recognising the importance of balancing a suitable level of parking for a given land use in a bid to shift behaviour towards more sustainable transport modes particularly in urban areas. It further states that a sustainable transport system would be achieved by, “Implementing maximum car parking standards for all types of non-residential development, including consideration of zero parking in Woking Town Centre, providing it does not create new or exacerbate existing on-street car parking problems. Minimum standards will be set for residential development. However in applying these standards, the Council will seek to ensure that this will not undermine the overall sustainability objectives of the Core Strategy...” Additional support is lent in the Parking SPD, which sets maximum standards, with the objective of promoting sustainable non-car travel.

24.In line with the Council’s Parking SPD, a 2 bedroom unit would require a maximum parking standard of 1.5 car parking spaces. This would therefore equate to a total of 7.5 parking spaces for 5 x 2 bed units.