10. 12/1213/AOD - Approval of details: Details pursuant to condition 2 of outline planning permission 10/2230/OUT comprising the appearance, layout and scale of the buildings and landscaping for Phase 1 of the Leavesden Park scheme to provide 123 residential dwellings (including 43affordable dwellings) and 1142sqm of flexible commercial floor pace (Use Classes A1, A2, A3, A5 and D1), a new public square, hard and soft landscaping, new open space and a children’ play area with associated highways and infrastructure works

and

12/1214/AOD - Approval of details: Details pursuant to condition 2 of outline planning permission 10/2230/OUT comprising the appearance, layout and scale of the buildings and landscaping for Phase 2 of the Leavesden Park Scheme to provide 99 residential dwellings (including 35affordable dwellings), hard and soft landscaping with associated highways and infrastructure works

At LAND AT LEAVESDEN AERODROME, AERODROME WAY AND LAND NORTH OF SOUTH WAY, ABBOTS LANGLEY, HERTS for Bellway Homes (North London)

(DCES)

Parish: Abbots Langley Parish Council / Ward: Leavesden
Expiry Statutory Period: 27 September 2012 / Officer: Mrs K. Rowley

This report is presented to Members to outline the key considerations and issues with regard to applications 12/1213/AOD and 12/1214/AOD.

1.Planning History (covering the whole Leavesden Aerodrome site)

1.1Background

1.1.1The Leavesden Aerodrome site has a complex planning history. The site, which originally included land now developed to the east, has previously been owned by the Ministry of Defence where it was an important centre for the production of Mosquito and Halifax aircraft during World War II; and by Rolls Royce where it was used for manufacture of helicopter engines until 1993. At its peak, the site employed over 3000 people, but this had been reduced to approximately 1800 by 1991. The airfield remained open for flying until March 1994, being used by a private flying club; the Leavesden Flight Centre. At its peak in 1990, there were some 60,000 aircraft movements at the site.

1.1.2In 1995 the site was purchased by Third Millennium Group and part of the site was used as a film production studios. In 1999, the site was purchased by MEPC who have leased the studios to Warner Bros. since 2000.

1.2Planning Brief

1.2.1A Planning Brief was prepared by Three Rivers District Council and Watford Borough Council and approved for the site in 1993. This set out the principles to guide future development of the overall Leavesden Aerodrome site (totalling 119 hectares). The basic concept was to constrain development to the eastern part of the site and release the remainder of the site to form an attractive and accessible Green Belt wedge between Abbots Langley and Watford.

1.3Relevant Planning History for Site including Housing and Office Development to East

1.3.194/450/8 - Change of use to film studio and ancillary activities for a temporary period. Approved.

1.3.295/0221/8 (Outline) – Application submitted by Third Millennium Group for part demolition and redevelopment of film studios, studio tour, family leisure centre, class B1 business, residential and leisure use together with formation of new estate roads and access to A41. Granted with Section 106 agreement. Condition 4 stated that redevelopment, including ‘all buildings, parking, hardstanding, storage, landscaping directly related to those buildings and site access roads, both retained and new with the exception of the existing runway and the spine road south of the residential development’, shall not exceed 32 hectares. Condition 5 stated that a minimum of 300 houses were to be provided. The application was accompanied by an illustrative layout plan, subsequently amended in 1998 (‘concept plan’), giving an indication of the form and location of development intended. The residential dwellings, spine road, and three of four office blocks have since been completed under various Approval of Details applications outlined below (namely 98/0711, 99/01231/AOD, 00/00208/AOD and 00/00209/FUL). Details were never submitted pursuant to the film studio, studio tour and leisure elements of this outline consent.

1.3.395/364 - Continuation of use in non-compliance with condition 2 of planning permission 94/450/8 (requiring cessation of the temporary film studio use by 21 July 1995). Approved.

1.3.496/0734 - Change of use of film studios and ancillary activities for a temporary period. Approved.

1.3.597/0015 - Variation of condition 9 of 95/0221/8 to provide access to spine road from Hill Farm Avenue. Approved.

1.3.698/0711/8 - Formation of spine road (reserved matters) including link with Hill Farm Avenue and link with signal controlled junction at Ashfields (pursuant to condition 9 of 95/0221/8) and associated landscape details for spine road corridor (in pursuant in part of condition 21 of 95/221/8). Approved. Spine road completed and adopted as a public highway in 1999.

1.3.799/01231/AOD - Erection of 314 dwellings and formation of vehicular and pedestrian access phase 1. Approved and implemented.

1.3.899/02099/AOD - Amendment to previously approved application 99/01231/AOD in respect of 9 plots in housing area 3 (nos 40,41,48,49 and 54-59) (12/14 Merlin Way, 22,24,26,28,30,32,44,44 Dowding Way). Approved.

1.3.900/00208/AOD - (Reserved matters application pursuant to outline application reference 95/221/8) erection of office development comprising of 3, 4 storey blocks and part of 1, 4 storey block subject to application reference 00/0209/FUL with associated access, parking and landscaping, and; 00/00209/FUL - Erection of part of one four storey block in conjunction with application plan ref. 00/00208/AOD. Both applications approved subject to S106 Agreements.

1.3.1000/00392/FUL - Erection of 315 dwellings and formation of vehicular and pedestrian access. Withdrawn.

1.3.1100/01646/OUT - (Outline application) development totalling a maximum of 121,500 sqm of floor space including B1 development comprising offices, research and development and light industry; film studios, public open space, landscaping and internal access roads. Refused.

1.3.1201/00001/OUT - (Outline) Application submitted by MEPC for phased development of the site totalling a maximum of 121,500sqm of floor space including B1 development comprising offices, research and development and light industry: film studios. Landscaping, open spaces and internal access roads. Resolved to be approved subject to S106 agreement; this agreement was never signed. Application withdrawn.

1.3.1301/0629/AOD, 01/0632/AOD, 01/0633/AOD, 01/0634/AOD – Approval of Details applications for revisions to plots on Westland Close and Dowding Way. Approved.

1.3.1402/00153/FUL - Change of use: continuation of planning permission 96/0734/8 use of land for film studios and ancillary activities. Approved.

1.3.1504/0544/FUL - Continued use of buildings and land as film studios and ancillary activities for a temporary period to 31st August 2008. Approved.

1.3.1605/1036/FUL - Departure from Local Plan: Erection of a temporary storage building relating to use of adjacent land as film studios for a temporary 3 year period. Approved.

1.3.1706/0529/FUL - Variation of condition 1 of planning permission 04/0544: Continued use of buildings and land as film studios and ancillary activities for a temporary period to 31st December 2010. Approved.

1.3.1806/0757/FUL - Variation of Condition 1 of planning permission 05/1036/FUL to extend temporary permission until 31 December 2010 (studios). Approved.

1.3.1910/0080/FUL - Continued use of land and buildings for film production and associated activities including retention and refurbishment of existing studios to accommodate stages, backlot, workshops, offices, production facilities, canteen /commissary and ancillary studio facilities and services, replacement and extended workshops, stage and offices. Two new stages (approx. 13,000 sqm floor space) for the storage and public exhibition of film sets and artefacts (including cafe and gift shop), new accesses from Aerodrome Way, revised internal road layout and parking, extended backlot, landscaping and associated works. Approved with a S106 Agreement. This consent is currently being implemented.

1.3.2010/2230/OUT - Outline Application: For the construction of up to 425 dwellings, flexible mixed use centre comprising 2,350 sqm of A1, A2, A3, A5 and D1 uses, hotel (8,500 sqm), and associated parking, means of access and associated infrastructure works and use of agricultural land (The Horse field) and the former Furtherfield tip for public open space. (Matters reserved: Appearance, Landscaping, Layout and Scale). Approved 7 December 2012 following completion of a S106 Agreement. This is the outline application subject of these reserved matters applications.

1.3.2110/2425/FUL - Erection of an electricity sub-station (in connection with redevelopment of the Studios under reference 10/0080/FUL). Approved 26 January 2011.

1.3.2211/0376/RSP - Part retrospective: Amendments to planning permission 10/0080/FUL to include: Reduction and modifications to K Stage, modifications to J Stage and revised layout of external display areas; revised layout of security gatehouses, internal road layout (temporary consent sought for internal road link) and cycle storage; minor realignment of spur access from northern roundabout; revised landscaping including re-profiling and realignment of bunds; new paved area for picnic use and security hut; revised materials for car park; and associated works. (No alteration to operation of visitor centre, visitor numbers, no. of parking spaces or traffic generation as per the section 106 agreement dated 15 June 2010). Approved 19 May 2011 with a deed of variation to the Section 106 Agreement.

1.3.2311/0590/RSP – Part retrospective: Revised layout for the northern part of Leavesden Studios (previously approved under application 10/0080/FUL), including demolition and replacement of the Mill building to be built in two phases, the relocation and construction of the approved multi-purpose workshop building, revised parking layout, hard and soft landscaping including omission of bunding and associated ancillary works. Approved 20 June 2011.

1.3.2411/1607/ADV - A total of 9 individual advertisement signs, including directional signage, at Warner Bros. Studios Leavesden and the associated Studio Tour (including externally illuminated entrance signs, fascia signs and poster advertisements). Approved 21 September 2011.

1.3.2512/0344/FUL - Variation of Condition 2 of planning permission 10/0080/FUL to allow substitution of plans to reflect minor amendments to design. Approved.

1.3.2612/0345/FUL - Variation of Condition 2 of planning permission 11/0376/RSP to allow substitution of plans to reflect minor amendments to design. Approved.

1.3.2712/0346/FUL - Variation of Condition 2 of planning permission 11/0590/RSP to allow substitution of plans to reflect minor amendments to design. Approved.

1.3.2812/1150/FUL - Amendments to flight shed at Warner Bros. Studios comprising minor modifications to the existing fabric of the building, replacement cladding to the west elevation and removal of the 'beehive' ventilation units (cross boundary application). Approved.

1.3.2912/1197/NMA - Non Material Amendment to planning permission 10/2230/OUT: Amendments to the approved access details (drawings 193301F/IMP;19330IF/PP) to remove vehicular access point from South Way and the alteration of one vehicle access point to pedestrian /cycle access on Aerodrome Way. Approved.

1.3.30There have been numerous applications to discharge conditions for the planning consents relating to the Studios site, all of which have now been implemented.

2.Detailed Description of Proposed Development

2.1These reserved matters submissions relate to Phase 1 and Phase 2 of the development proposals granted outline consent ref 10/2230/OUT. All matters, except for access, were reserved for future consideration. However, the proposals have been developed in accordance with the parameter plans approved as part of the outline consent, the outline consent conditions and the requirements of the associated S106 Legal Agreement. Essentially the parameters plan confirmed the number of private and affordable units (up to 425 units with 35% affordable housing), an 8500sqm floorspace hotel, a 2350sqm floorspace commercial centre comprising A1, A2, A3, A5 and D1 uses, new access points from Aerodrome Way with secondary access points from South Way and an average density of 40 dwellings per hectare, with densities greater towards the western side of the site nearest the film studios and adjacent offices and reducing in density to the north and east.

2.2In addition a Phasing Plan has been submitted and agreed pursuant to condition 4 of the outline permission. The approved Phasing Plan detailed a 5 phase scheme, the hotel comprising the fifth and final phase. Notwithstanding this approved phasing Officers have been made aware Bovis Homes have now acquired Phase 2 and whilst the current applicant, Bellway Homes, will continue to obtain the relevant consents, Bovis Homes would implement the Phase 2 consent simultaneously with Bellway Homes implementation of Phase 1. Bellways have confirmed they intend to seek consent for and implement Phases 3 and 4. Bellway Homes have not acquired the hotel aspect of the scheme; this land is still owned by the original applicant MEPC.

2.3The 2 schemes detail the proposals for the appearance, landscaping, layout and scale of Phase 1 and 2 of the residential component (with some commercial floorspace) of the outline scheme.

2.4Phase 1 comprises a 4.7ha site with consent sought for the construction of 123 dwellings including 43 affordable dwellings. Part of the approved mixed use centre would be focused around a public square. This commercial floor space totalling 1284.4sqm (gross external floor area) would be built in a four and five storey block comprising commercial floor space at ground and first floor level with flatted residential development above. The layout details remain indicative at this stage but would allow a range of uses including A1, A2, A3, A5 and D1 uses. This commercial space would frame the western edge of the new public square.

2.5The new public square would then extend northwards to South Way and form a landscaped public open space containing a children's play area. Some of the landscape would be contoured to form a natural amphitheatre.

2.6Phase 1 would be served by a new access from the signalled controlled junction with Aerodrome Way/Hercules Way. A new secondary access point would be constructed further west along Aerodrome Way which would serve Phases 1 and 2. In addition 2 new access points would be constructed from South Way serving 6 and 4 dwellings respectively. There would be no vehicular through route across the site from South Way to Aerodrome Way.

2.7Phase 2 extends to a 2.6 ha site and would comprise 99 dwellings including 35 affordable units. Phase 2 sits between Phase 1 and the western site boundary which adjoins with Leavesden Studios.

2.8The schemes incorporate a range of building heights, predominantly 2 storey residential dwellings, interspersed with 2.5 and 3 storey dwellings. Flats are contained in a 4 and 5 storey block in Phase 1 (private and affordable units) and one 3 and 4 storey block in Phase 2 (affordable units).

2.9289 parking spaces are proposed in Phase 1 including 7 unallocated visitor spaces. In Phase 2 228 allocated spaces are proposed. There are an additional 25 parking spaces provided within the new public square to serve the commercial floorspace and a further 5 employee parking spaces.

2.10Refuse collection points have been illustrated on the plans with refuse storage either to the side/rear of each dwelling and to be accessed through a garage or side access. Each flatted development would be provided with refuse and cycle stores.

2.11It is proposed to finish the development in a traditional style with red brick or light buff brick, feature brick detail, with some white rendering to provide variety to the street scene.

2.12The Phase 1 and 2 sites are part of the 15.36 hectare of land which formed the northern section of the former Leavesden Aerodrome site. The wider site is bound by Aerodrome Way to the south and east with South Way to the north. The open space known as the Horsesfield and the residential area of Abbots Langley lies beyond to the north. Leavesden Studios lies to the west/south west. The majority of the wider site comprises vacant scrubland although the previous ecological assessments detail some specific habitats and wildlife which has been detailed later in the report. Buildings associated with the previous site uses have been largely removed with some areas of hard standing remaining. The site slopes uphill from south to north with other areas of uneven land and bunds. There are a number of trees across the site, predominantly situated on the site boundaries, with trees on the western site boundary protected by a TPO.

2.13The applications are supported by the following statements:

  • Planning Statement
  • Design and Access Statement
  • Transport Statement
  • Energy Demand Statement and C Plan Statement, Bio Diversity Checklist and Statement of Community Involvement

2.14Prior to the submission of these applications a 2 day exhibition event was held in addition to Member and Parish Council briefings. The outline application had also been subject to extensive consultation prior to its submission.

2.15Formal Screening Opinion requests were received in relation to both Schemes 1 and 2 in accordance with the requirements of the Town and Country Planning (Environmental Impact Assessment) Regulations 2011. TRDC provided responses dated 13 June 2012 and 25 June 2012 confirming an Environmental Impact Assessment was not required on either application.

2.16Following initial concerns of Officers further details and amended plans have been received. These amendments essentially improve relationships between buildings, there has been some increase in garden sizes, increase in the amount of street landscaping, revision to the affordable housing layouts, garden access points been added for refuse, removal of shiplap boarding as a proposed material and proposed changes to the layout of the footpaths in the public open space (amended landscaping plan awaited). The briefing report is based on these amended plans.

3.Consultation

3.1Abbots Langley Parish Council – no objections.

British Pipeline Agency – no comments to make.

Environment Agency – As part of the outline application 10/2230/OUT we requested a condition to ensure that surface water run-off was limited and that the most beneficial use of SuDS were incorporated in the detailed design (your condition 22). As we have no further detailed information relating to the drainage strategy we need to ensure that the development is still able to comply with this condition. The proposed development will only be acceptable if a planning condition is included requiring the drainage details (as suggested).

Fire Protection Officer – we do not have any comments to make at this time. Further comments will be made when we receive the Building Regulations application.

Furtherfield Residents Association – no comments received.

HCC Archaeology - The Historic Environment Record notes that an Iron Age and Roman settlement was found at Leavesden Aerodrome when the housing estate immediately to the east of the site was constructed. The site appeared to have been disturbed in the area of the (now demolished) factory buildings, but also contained some linear features and deep pits (which were thought to be evidence of gravel extraction) (HER10048). The site was also a Word War II airfield and aeroplane factory, making Halifax bombers and then Mosquitos. It continued to be used after the war and was taken over by Hawker Siddeley and then Rolls Royce until 1993 (HER9041).