TO: PLANNING & REGULATORY COMMITTEE DATE: 26 February 2014

BY: PLANNING DEVELOPMENT CONTROL TEAM

MANAGER

DISTRICT(S) ELMBRIDGE BOROUGH COUNCIL ELECTORAL DIVISION(S):

East Molesey & Esher

Mr Selleck

PURPOSE: FOR DECISION GRID REF: 513832 165884

TITLE:

SURREY COUNTY COUNCIL PROPOSAL EL/2013/4366

SUMMARY REPORT

Land at Grove Farm (part), off Arran Way, Esher, Surrey, KT10 8BE

Laying out of car park to provide 15 spaces for residents of Arran Way with associated landscaping to replace those spaces lost as a result of the proposed development for a replacement primary school on land at The Drive, Esher reference EL2013/1469.

Cranmere Primary School occupies a site of approximately 1.4 ha (3.5 acres) on the northern and western edge of the built up area of Esher at the end of The Drive and 400m south of Island Barn Reservoir. It is proposed to re-build the existing Cranmere School with a capacity of 3 forms of entry (630 places), plus a nursery, on part of Grove Farm, retaining the existing school site as part of the enlarged school’s playing fields. The grazing land surrounding the school site on three sides forms part of Grove Farm, which is now unoccupied but was last used as grazing for horses, with DIY livery stables accommodated in the former farm buildings, which lie approximately 130m south west of the existing school. The proposed car park would be located to the immediate north of Arran Way within part of the Grove Farm site.

This proposal seeks to address impacts of the new school proposal, which is the subject of a separate application reported elsewhere in the agenda. The two proposals are interdependent and whilst this is a standalone planning application, it is intrinsically linked to the application for the replacement Cranmere Primary School therefore one cannot proceed without the other.

The current proposal is for the construction of a 16 bay car park to the immediate north of Arran Way and to the west of the proposed replacement Cranmere School building within Grove Farm.

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This car park is proposed to serve the residents of Arran Way only. A total of 16 spaces are proposed which includes 2 disabled bays. A hedge of native species is proposed to be erected around the north and west boundary of this car park. The surface of the car park would be tarmac. The car park will allow the implementation of traffic management arrangements in Arran Way which in turn will allow safe vehicular access to the proposed school.

Objections have been received from residents. The main reasons for objecting are the impact in terms of the loss of parking on Arran Way, access, safety issues and the lack of provision in terms of the number of parking spaces proposed.

Officers consider that the proposed development would not have adverse highways implications and would facilitate the provision of community facilities where significant need has been demonstrated. The location of the car park to the immediate north of Arran Way would ensure that the proposal would be located close to existing properties and publicly visible to deter crime and improve safety. There are not considered to be any adverse impacts on the design and visual amenity of the area, there are no adverse landscape, trees or biodiversity impacts and the proposal would not increase flood risk. The proposal is considered to be inappropriate development in the Green Belt however officers are satisfied that very special circumstances exist which clearly outweigh the harm to the green Belt and any other harm such that an exception to policy can be made.

The recommendation is that subject to referral to the Secretary of State, the application be PERMITTED subject to conditions.

APPLICATION DETAILS

Applicant

Chief Property Officer, SCC

Date application valid

25 October 2013

Period for Determination

20 December 2013

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Amending Documents

Proposed Residents Car park, drawing number E1836-L-777 Rev A dated 13/01/14

Car Park Swept Path, drawing number ST13070-014 Rev B dated Oct 13

Proposed Double Yellow Lines on Arran way, drawing number ST13070-013 Rev C dated

13/11/13

Proposed Improvements to Junction of Douglas Road / Arran Way, drawing number ST13070-

011 Rev D dated 28/06/13

Drainage Layout, drawing number CS063597-400 Rev T07 dated May 2013

SUMMARY OF PLANNING ISSUES

This section identifies and summarises the main planning issues in the report. The full text should be considered before the meeting.

Is this aspect of the

proposal in accordance with

the development plan?

Paragraphs in the report

where this has been

discussed

HIGHWAYS AND TRAFFIC

IMPLICATIONS

Yes 26-31

DESIGN AND VISUAL

AMENITY

Yes 32-37

IMPACT UPON

RESIDENTIAL AMENITY

Yes 38-45

TREES AND LANDSCAPING Yes 46-51

FLOODING AND DRAINAGE Yes 52-54

BIODIVERSITY AND

ECOLOGY

Yes 55-58

GREEN BELT

DEVELOPMENT

No 59-64

ILLUSTRATIVE MATERIAL

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Site Plan

Plan

Aerial Photographs

Aerial

Site Photographs

Figure 1: View of the location of the proposed car park facing north west

Figure 2: View of the location of the proposed car park facing west

Figure 3: View of the location of the proposed car park facing north east

Figure 4: View of the location of the proposed car park facing east showing the access road to

the garage blocks

Figure 5: View of the location of the proposed car park facing south with the properties on Arran

Way in the background

BACKGROUND

Site Description

1. Cranmere Primary School occupies a site of approximately 1.4 ha (3.5 acres) on the northern and western edge of the built up area of Esher at the end of The Drive and 400m south of Island Barn Reservoir. It is adjoined by well established residential development to the east and by open grazing land to the north, west and south. Access to the school is from the east via The Drive, which leads from B3379 Ember Lane. The last 100m. of The Drive, from its crossroads junction with Grove Way, is a private road. An existing pedestrian only access via Blair Avenue, which has been disused for a long time, has recently been re-opened.

2. The existing school buildings are flat roofed and single storey, dating from the 1960s. The school provides for 1 form of entry (210 places) in its permanent accommodation. However, since 2009 two classes have been admitted each year and the school also comprises 5 classrooms in demountable classroom units which are the subject of

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temporary planning permissions. Currently the school has 11 classes, equivalent to 330 places.

3. The grazing land surrounding the school site on three sides forms part of Grove Farm, which is now unoccupied but was last used as grazing for horses, with DIY livery stables accommodated in the former farm buildings, which lie approximately 130m south west of the existing school. The farm building complex also includes a dwelling, which is a listed building. In total, Grove Farm covers 30 ha. and extends north and west as far as the River Ember and Esher Sewage Treatment Works. To the south and east, Grove Farm is adjoined by established residential development in Cranbrook Drive, Blair Avenue, Douglas Road and Arran Way. To the west is residential development in Farm Road, Mill Road and Joseph Locke Way, and beyond that, industrial development in the Sandown Industrial Park and Mole Business Park. Douglas Road provides the only access to the industrial sites. Access to Grove Farm is from the south, via Arran Way, which is a cul de sac off Douglas Road. The layout of Arran Way is open plan so that the houses on either side of it do not have individual front gardens and are separated from the carriageway by open grassed areas. Footways serving groups of front doors run along the façade of the terraces of houses on either side.

4. On field boundaries within Grove Farm, hedges have become overgrown and are encroaching onto the fields, including along the eastern boundary (at the rear of houses in Blair Avenue). A copse of native trees has developed between the Grove Farm buildings and the eastern boundary.

5. Both the existing school site and Grove Farm lie wholly within the Green Belt. With the exception of a small part of Grove Farm both also lie within a medium flood risk zone. Much of Grove Farm, but excluding the area to the south east of the farm buildings, has been the subject of sand and gravel extraction with restoration back to agriculture.

6. The County Council as Local Education Authority is predicting that due to increasing birth rate, new housing development and inward migration, an additional 4 forms of entry will required in Elmbridge by 2021 to meet demand for primary school places. Of those, two forms of entry will be required in the Thames Ditton, Long Ditton and Weston Green areas. The existing Cranmere Primary School lies within that planning area, but also attracts some pupils from the Esher, Claygate and Molesey areas. To meet the growing demand, temporary accommodation has been installed at several schools in that area, including Cranmere. The LEA consider that none of the existing schools in the area have sites large enough to enable them to accommodate satisfactorily the additional places needed. Only Cranmere has a site capable of being expanded. They are therefore proposing that Cranmere be rebuilt with a capacity of 3 forms of entry (630 places), plus a nursery, on part of Grove Farm, retaining the existing school site as part of the enlarged school’s playing fields.

Planning History

EL2013/1469 Erection of new single storey Primary School (630 places) and

Nursery (26 places) together with provision of parking for staff (37 spaces),

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cycle and scooter parking with access off Arran Way; layout of outdoor

play areas and sports pitches and landscaping; demolition of existing

Cranmere School buildings (other than caretaker's bungalow) and removal

of hardstanding at The Drive; alterations to Arran Way associated with

provision of dedicated footpaths for proposed school. Awaiting determination.

EL05/1534 Polo school comprising two storey administration building containing tworesidential units, 94 loose boxes, ancillary tack and feed boxes, barn, two polo pitches, training areas and hard and soft landscaping following demolition of existing stables. Permitted subject to conditions 17/01/06.

ESH.68/776 Mineral working over an area of approximately 26ha and infilling with mainly inert materials. Permitted 1969.

THE PROPOSAL

7. The current proposal is for the construction of a 16 bay car park to the immediate north of Arran Way and to the west of the proposed replacement Cranmere school building within Grove Farm. This car park is proposed to serve the residents of Arran Way only. Currently the parking situation is such that these residents park their vehicles on Arran Way, on the verges to the front of their properties and some park to the rear of their properties or within the garage blocks behind Arran Way. There is no dedicated on-curtilage parking for these houses. The estate is laid with a number of garage courts, two of which are accessed from the end of Arran Way. The planning application for the replacement school building proposes that the vehicular access to the new school would be from Arran Way (using the existing access to Grove Farm). As such, if the replacement school application was to be permitted, it is considered necessary to discourage the use of Arran Way by parents by imposing parking restrictions. Without these, and given the limited width and lack of turning area, vehicular access to the school could not be adequately managed. The impact on the existing residents in Arran Way would also be unacceptable.

8. As a result of the above, it would therefore no longer be possible for residents of Arran Way to park on the road. As such in order to overcome this and to help support the replacement school planning application, it is proposed that a separate car park would be provided to serve these residents. A total of 16 spaces are proposed which includes 2 disabled bays. A hedge of native species is proposed to be erected around the north and west boundary of this car park. The surface of the car park would be tarmac.

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9. Whilst this is a ‘stand alone’ planning application, it is intrinsically linked to the application for the replacement Cranmere primary school therefore one cannot proceed without the other. As such both planning applications must be considered in tandem.

CONSULTATIONS AND PUBLICITY

District Council

10. Elmbridge Borough Council No objection subject to replacement school application being approved

Consultees (Statutory and Non-Statutory)

11. County Arboriculturalist Requests further planting on the southern boundary of the application site.

12. The Environment Agency South East No objection

13. Ecologist The replacement and enhanced

grassland is as great an extent as can be achieved for this development

14. Landscape Architect Objection in principle to the whole development for the replacement school but does not object to the car park proposal per se. However considers both proposals must be assessed together.

15. Transport Development Planning No objection

16. Environmental Health Officer No comments received

Parish/Town Council and Amenity Groups

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17. Esher Residents Association No comments received

18. Cranmere Community Traffic Concerns No comments received

19. Lower Green Community Association No comments received

Summary of publicity undertaken and key issues raised by public

20. The application was publicised by the posting of 3 site notices and an advert was placed in the local newspaper. A total of 295 owner / occupiers of neighbouring properties were directly notified by letter. To date 10 letters have been received raising the following concerns:

• 15 parking spaces completely inadequate and not enough for the number of residents in Arran Way

• On average there are approximately 23 cars parked on Arran Way every day and these are vehicles owned by residents; likely to be used excessively by residents with several vehicles

• Would like the spaces to be numbered so that at least one person from each household has an allocated space

• Significant number of residents in Arran Way are registered disabled, they will find it impossible to walk to their vehicles

• Do not feel that it will be safe to walk from the car park to property late at night, that’s if can even find a space in the first place

• Will be forced to park on Douglas Road but this will not be possible as there are not enough spaces and the road isn’t wide enough

• Issue of security for vehicles given that the proposed car park will be hidden from view by hedges, a tempting location for thieves and other criminals

• Concerned access to garage at the rear of the property will get blocked by parents dropping off / picking up children from school as there is nothing to stop parents from driving into Arran way and parking round the back in the garage block (addressed in replacement school application)

• The 15 bays are too far away from the people that need them

• Why is it not proposed to provide enough spaces for all of the residents

• Creating a car park on the Green Belt would substantially affect openness and could not be justified by any exceptions.

• Contrary to Elmbridge planning policy

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PLANNING CONSIDERATIONS

21. The County Council as County Planning Authority has a duty under Section 38 (6) of the Planning and Compulsory Purchase Act 2004 to determine this application in accordance with the Development Plan unless material considerations indicate otherwise. Section 70(2) of the Town and Country Planning Act 1990 (as amended) (1990 Act) requires local planning authorities when determining planning applications to “have regard to (a) the provisions of the development plan, so far as material to the application, (b) any local finance considerations, so far as material to the application, and (c) any other material considerations”. At present in relation to this application the Development Plan consists of the Elmbridge Core Strategy 2011 and the saved policies within the Replacement Elmbridge Borough Local Plan 2000.

22. The National Planning Policy Framework (NPPF) was adopted in March 2012. This document provides guidance to local planning authorities in producing local plans and in making decisions on planning applications. The NPPF is intended to make the planning system less complex and more accessible by summarising national guidance which replaces numerous planning policy statements and guidance notes, circulars and various letters to Chief Planning Officers. The document is based on the principle of the planning system making an important contribution to sustainable development, which is seen as achieving positive growth that strikes a balance between economic, social and environmental factors. The Development Plan remains the cornerstone of the planning system. Planning applications which comply with an up to date Development Plan should be approved. Refusal should only be on the basis of conflict with the Development Plan and other material considerations.

23. The NPPF states that policies in Local Plans should not be considered out of date simply because they were adopted prior to publication of the framework. However, the guidance contained in the NPPF are material considerations which planning authorities should take into account. Due weight should be given to relevant policies in existing plans according to their degree of consistency with the NPPF ( the closer the policies are to the policies in the Framework, the greater the weight they may be given).

24. In this case the main issues are; the highways and traffic implications of the development, the impact upon design and visual amenity, the impact upon residential amenity, the impact upon trees and landscaping; biodiversity and ecology; the drainage implications of the development and the impact upon the openness of the Green Belt.

25. This application supports the main replacement Cranmere school application (ref: EL2013/1469) therefore both need to be determined together. One cannot be approved without the other.

HIGHWAYS AND TRAFFIC IMPLICATIONS

National Planning Policy Framework (NPPF) 2012

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Chapter 4 – Promoting Sustainable Transport

Elmbridge Core Strategy 2011 Policy CS25 – Travel and Accessibility Replacement Elmbridge Borough Local Plan 2000 Policy COM4 - Provision of Educational Facilities Policy MOV6 – Off Street Parking

26. Paragraph 32 of the NPPF states that all developments that generate significant amounts of movement should be supported by a Transport Statement or Transport Assessment; safe and suitable access to the site can be achieved for all people. Paragraph 35 states that development should be located and designed where practical to create safe and secure layouts which minimise conflicts between traffic and cyclists or pedestrians. Paragraph 36 states that a key tool to facilitate sustainable transport modes will be a Travel Plan and all development which generate significant amounts of movement should be required to provide a Travel Plan.

27. Local Plan Policy COM4 allows extension of existing educational facilities provided the existing road network is capable of absorbing traffic generated, the site is accessible by a choice of means of transport and adequate provision is made for stopping and parking. Core Strategy Policy CS25 also seeks to apply maximum parking standards for all uses. The parking standards set out by the County Council in its ’Vehicular and Cycle Parking Guidance January 2012‘ state that for schools, parking should be provided only to meet operational requirements, i.e. that required by staff and official visitors. The standards for schools are the same as those in the previous version, ‘A Parking Strategy for Surrey’ which forms the adopted standards in Elmbridge.

28. The proposal is for the construction of a 16 bay car park to the immediate north of Arran Way. This car park would provide parking spaces for 16 vehicles and would include two disabled bays. It was originally proposed to provide 15 spaces however given the concerns raised by the letters of representation, a further space has been added. Amendments also provide for two disabled bays to be laid out alongside Arran way itself as part of the main application proposals to mitigate the traffic impacts. The car park would be constructed of a tarmacadam surface and would be screened on the north and west boundaries by a proposed mixed species hedge and to the east and south by the existing screening. Access to the car park would be from the same access road for the proposed school. This car park is proposed as a solution to overcome the loss of street parking along Arran Way as a result of the proposed replacement Cranmere Primary School development. Unfortunately as the site area for the proposed car park falls outside of the redline boundary for the replacement school application, a separate application was required to formalise the proposed parking and as such could not be considered under the replacement school application.

29. In order to ensure that Arran Way is free from vehicles, double yellow lines are proposed to stop vehicles parking on the road. Currently the residents of Arran Way park informally on the road as well as informally on the verges to the front of some of their properties. The proposed Cranmere School development would mean that this would no longer be possible and therefore the loss of parking for these residents needed to be compensated for. As such, it is proposed to erect a separate car park solely for the residents of Arran Way. 16 spaces are to be provided which would equate to 1.5 per spaces per property. Reps received state that there are 4 disabled residents who live along Arran Way therefore two disabled bays are proposed within the car park to serve those who live

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towards the northern half of the road and two bays are proposed on Arran Way within the existing verge to serve those who live towards the southern half of Arran Way.

30. Transport Development Planning were consulted on the application and raise no objection to the proposal subject to the condition that this application is only approved should the replacement school application be approved. The car park would help facilitate the replacement Cranmere school application by ensuring that Arran Way is free from vehicles which in turn will help to reduce congestion and limit the number of vehicles accessing Arran Way. It has been raised by residents to number the parking bays so that each resident has an allocated bay, however this is considered to complicate the management of the parking and given that there is over one space per property, coupled with the fact that other parking resources exist in the form of garage courts and rear access to some properties, it is not considered to be necessary. However if Members are inclined to disagree this could be added as a condition.

31. Concern has been raised in regard to the number of spaces being provided and that not enough are proposed to accommodate all of the residents. The current parking is informal and the residents do not have a designated space nor guarantee of a space along Arran Road. A designated car park would allow for each resident to have a parking space with some left over for those with more than one car. Officers consider that the number of spaces proposed is acceptable given the current parking situation on Arran Way and the number of properties it would serve. Access to the garages and parking to the rear of their properties will not be affected by the development. Officers consider that the proposed car park would not result in adverse highways implications and would be a suitable solution to compensate for the loss of parking on Arran Way. As such officers consider that the proposal would accord with development plan policy in this regard.

DESIGN AND VISUAL AMENITY

National Planning Policy Framework (NPPF) 2012

Paragraph 17 - Core Planning Principles

Chapter 7 – Requiring Good Design

Elmbridge Core Strategy 2011

Policy CS1 – Spatial Strategy

Policy CS9 - Esher

Policy CS17 – Local Character, Density and Design

Replacement Elmbridge Borough Local Plan 2000

Policy ENV2 – Standard of Design

Policy ENV3 – Safe and Secure Environments

32. The NPPF states that planning should always seek to secure high quality design and a good standard of amenity for all existing and future occupants of land and buildings. Chapter 7, paragraph 56 states that good design is a key aspect of sustainable

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development. Paragraph 64 goes on to say that permission should be refused for development of poor design that fails to take the opportunities available for improving the character and quality of an area and the way it functions.

33. Core Strategy Policy CS1 requires that new developments be of high quality, well designed and locally distinctive. They should be sensitive to the character and quality of the area, respecting environmental and historic assets and where appropriate introduce innovative contemporary designs that improve local character. Core Strategy Policy CS17 requires that new development delivers high quality and inclusive sustainable design which maximises efficient use of urban land whilst responding to the positive features of individual locations integrating with locally distinctive townscape and landscape. Policy CS9 states that all new development will be expected to enhance local character.

34. Policy ENV2 states that in order to protect and enhance the appearance of the area and the local amenity, all new development should achieve a standard of design which is sensitive to the surrounding area. The policy includes criteria for new developments that they should respect existing context in terms of plot and frontage sites, building alignments, views and space around the buildings; respect the surrounding environment in terms of scale, massing and height; and in terms of form and design should reinforce existing visual characteristics of the existing structures. Policy ENV3 states that the council will seek to ensure that the design, use, layout and access to buildings and both public and private spaces creates an attractive environment, that provides for public safety, deters vandalism and discourages crime.

35. The proposed car park would be located to the immediate north of Arran Way within an existing open field. The car park has been located adjacent to the urban area and adjacent to the existing access road to the garages behind Douglas Road (accessed via Arran Way). A hedge is proposed on the north and west boundaries of the car park which would be a mix of native species to integrate with the surrounding area and also to help screen some of the car park from the wider area.

36. The southern boundary of the proposed car park is currently a mesh fence which is due to remain as such. This allows views into the car park from Arran Way and also ensures that the car park remains open and visible to ensure public safety and deter vandalism and crime. There are existing lamp posts which light up this end of Arran Way as well as the garage block which would further help to ensure the safety of the users of the car park.

37. Officers consider that the proposed car park would be in keeping with the design and visual amenity of the existing site and surrounding area given that the proposal would be located adjacent to the existing access road and close to the residential properties within Arran Way and Douglas Road. The car park would be well screened by the proposed hedge which would help to limit the impact on the design and visual amenity of the area. The car park would not be a dominant addition to this part of the site and would be in keeping with the surrounding environment. Whilst the proposal does not accord with parking standards, this is not a new residential development, the number of parking available in the garage blocks and behind the properties in Arran Way is difficult to quantify and, this is an enhancement on the existing parking situation. Officers therefore consider that the proposal would accord with development plan policy in this regard.

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IMPACT UPON RESIDENTIAL AMENITY

National Planning Policy Framework (NPPF) 2012 Core Principles

Chapter 11 Conserving and enhancing the natural environment

Elmbridge Core Strategy 2011

Policy CS17 – Local Character, Density and Design

Replacement Elmbridge Borough Local Plan 2000 Policy COM4 – Provision of Education Facilities Policy HSG23 – Non-residential development in residential areas Policy HSG16 – Design and Layout of residential development 38. NPPF identifies that within the overarching roles that the planning system ought to play,

a set of core land use planning principles should underpin both plan-making and decision making. These 12 principles include that planning should seek to secure a good standard of amenity for all existing and future occupants of land and buildings. Paragraph 109 of chapter 11 states that the planning system should contribute to and enhance the natural and local environment by inter alia preventing both new and existing development from contributing to or being put a unacceptable risk from, or being adversely affected by unacceptable levels of soil, air, water or noise pollution or land instability.

39. Core Strategy Policy CS17 requires that new development delivers high quality and inclusive sustainable design which maximises efficient use of urban land whilst responding to the positive features of individual locations and protecting the amenities of those within the area. Local Plan Policy COM4 supports the expansion of education facilities subject to several criteria, including that there would not be a significant adverse impact on local residents.

40. Policy HSG23 states that when considering proposals for non-residential development within predominantly residential areas, the council will apply the same criteria as contained in policy HSG16 which states that new development should avoid overlooking and an unreasonable loss of privacy or amenity.

41. The proposed car park would be located to the north of Arran Way. The access road to the garage block separates the car park from the properties in Arran Way. The current parking situation along Arran Way comprises on street parking along one side of the road with a number of vehicles informally parking on the grass verge to the front of their properties. Some properties also have use of a garage within the existing garage blocks.

42. The proposed car park would result in a different parking set up than currently exists however it would provide a designated area for residents parking which currently there is not. The car park would provide 1.5 spaces per resident and it is proposed to provide 2 disabled bays which would serve two of the disabled residents. Two further disabled bays are proposed within the existing verges along Arran Way (although does not form part of this application and is included within application EL2013/1469). However these

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further disabled bays will serve the remaining disabled residents on Arran Way which is a considerable improvement on the existing situation which only has one allocated disabled bay which is not enough given the number of disabled residents on Arran Way. Officers consider that the proposed car park would improve the situation for the residents and would create more formalised parking.

43. The location of the car park, adjacent to Arran Way and the access road to the garages will ensure that it is visible from public view. The treatment on the southern boundary of the car park allows for views into and out of the car park to ensure safety for the users. There are existing street lights which are located at the end of Arran Way and also lights to the garage blocks which will help to light up the car park again to ensure that the car park is safe.

44. The location and nature of the proposal would ensure that there would be no loss of light, loss of privacy or overbearance.

45. Officers consider that the proposed car park would create formalised parking for the residents of Arran Way. Whilst the parking would be removed from Arran Way and on the grass verges officers do not consider that this would be at the detriment to the residents given that a 16 space car park is to be provided as a solution. As such officers consider that the proposal would not adversely impact upon residential amenity and would accord with development plan policy in this regard.

TREES AND LANDSCAPING

National Planning Policy Framework (NPPF) 2012

Chapter 11 Conserving and enhancing the natural environment

Elmbridge Core Strategy 2011

Policy CS14 – Green Infrastructure Replacement Elmbridge Borough Local Plan 2000 Policy ENV12 – Retention of Trees on Development Sites 46. The NPPF states that planning permission should be refused for development resulting

in the loss or deterioration of aged or veteran trees found outside ancient woodland, unless the need for, and benefits of, the development clearly outweigh the loss.

47. Local Plan Policy ENV12 resists development which results in loss of trees which make, or are capable of making, a significant contribution to character or amenity of the area. Conditions should be imposed to where appropriate to protect retained trees during construction. Core Strategy Policy CS14 seeks to strengthen the network of green infrastructure by safeguarding important trees and woodlands and securing provision of soft landscaping in new development focussing on native species.

48. It is not proposed to remove any further trees in order to facilitate this development. The assessment of the loss of trees has been fully discussed within the main replacement

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school application. The County Arboricultural Manager was consulted on the application and states that the applicant has not given due consideration to the context of the environment and means of mitigating the impact of the proposal. In particular he suggests the creation of a planting bed between the bays and the southern boundary in the form of a hedgerow to match that proposed on the north and west boundaries.

49. Officers have considered the comments from the Arboricultural Manager and do not consider that planting on this boundary would be appropriate in this context. This boundary should remain open so that the car park is visible from Arran Way which will provide a safer environment for the users of the car park and would also allow for the vehicles to be monitored. As such a hedgerow on this southern boundary is not considered to be required. Furthermore the proposed hedgerow on the north and west boundaries provides adequate screening and helps to integrate the proposal with its surroundings.

50. The Landscape Architect was also consulted on the application and advised that, notwithstanding the comments made in regard to the main application in terms of the objection raised in regard to the adverse effects of a number of landscape impacts, the proposed planting scheme for this proposal is in itself acceptable. The Landscape Architect advises that the planting responds to the rural nature of the surrounding landscape by using native stock planted as a hedgerow.

51. Given the above, officers consider that the proposed development would not adversely impact upon trees and landscaping. Conditions are recommended to ensure appropriate planting is carried out as well securing a maintenance plan for the first five years to ensure the hedgerow establishes. As such, the proposal would accord with development plan policy in this regard.

FLOODING AND DRAINAGE

National Planning Policy Framework (2012)

Chapter 10 – Meeting the challenge of climate change, flooding and coastal change

Elmbridge Core Strategy 2011

Policy CS26 – Flooding

52. Core Strategy Policy CS26 requires that development is located and designed such that the risk of flooding is minimised whilst not increasing the risk of flooding elsewhere. Planning permission should only be granted where a sequential test has demonstrated that it is located in the lowest appropriate flood risk zone in accordance with PP25 and the Elmbridge Strategic Flood Risk Assessment. Development in Flood Zones 2 or 3 should incorporate flood resistance and resilience measures in line with Environment Agency advice and in these zones surface water runoff should be controlled at green field rates. PPS25 has been replaced by section 10 of the NPPF and its accompanying Technical Guidance, which follows the same approach as PPS25 in relation to flood risk. Paragraph 103 of the NPPF states that when determining planning applications, local planning authorities should ensure flood risk is not increased elsewhere and only

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consider development appropriate in areas at a risk of flooding where, informed by a site-specific flood risk assessment. A site-specific flood risk assessment is required for proposals of 1 hectare or greater in Flood Zone 1 to ensure that the surface water implications of larger sites are taken into account.

53. The application site is located within Flood Zone 2 and is classed as a less vulnerable development up to 1ha in size. To accompany the submission, the Environment Agency’s pro-forma has been completed and a drainage strategy and drainage plan have been submitted. The proposed application area is 930sqm of which 500sqm will be the new impermeable parking area and access. The proposed levels of the car park area will be designed to fall away from the existing dwellings located to the south of the application boundary towards the field at the northern boundary. This will remove any probability of the surface water runoff from the car park flooding the existing properties. The surface water discharge from the car park will be collected via trapped gullies prior to discharging in to a gravity drainage system. This system will then connect to the new Cranmere Primary School drainage network. The Flood Risk Assessment for the wider school application proposes an attenuation tank sized to store the 1 in 100yr +30% climate change storm event. This tank will be increased in size to accommodate the run off from the same storm event generated by the proposed car park area.

54. The Environment Agency (EA) was consulted on the drainage scheme and considered that it was acceptable from a groundwater perspective and therefore have no further comments to make. An amended drainage plan has recently been submitted regarding the overall drainage scheme for the replacement school site which includes the car park area. The EA have confirmed that they are happy with the revised drainage scheme and therefore the proposal would accord with development plan policy in this regard.

BIODIVERSITY AND ECOLOGY

National Planning Policy Framework (2012)

Chapter 11 – Conserving and enhancing the natural environment

Elmbridge Core Strategy 2011

Policy CS15 – Biodiversity

Supplementary Planning Document

Biodiversity and Geological Conservation: Circular 06/2005

55. The NPPF states that when determining planning applications, planning authorities should aim to conserve and enhance biodiversity by applying the following principles; if significant harm resulting from a development cannot be avoided (through locating on an alternative site with less harmful impacts), adequately mitigated, or, as a last resort, compensated for, then planning permission should be refused. In addition Circular 06/2005 states that it is essential that the presence or otherwise of protected species and the extent that they may affected by the proposed development, is established before planning permission is granted.

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56. Core Strategy Policy CS15 seeks to ensure new development does not result in a net loss of biodiversity and where feasible contributes to a net gain through the incorporation of biodiversity features.

57. The County Ecologist was consulted on the application and raised concern in regard to the loss of grassland as a result of the proposed car park. The County Ecologist calculates the extent of the car park area, given as 930sqm, so the total loss of grassland to the school and car park is approximately 1.89 ha to be offset by 1.08 ha replacement and enhanced grassland over the scheme as a whole. The letter submitted as an amendment to the replacement school application states this is the best that can be achieved but this does not meet the goal of halting biodiversity loss set out in Biodiversity 2020 and paragraph 109 of the NPPF. However, the County Ecologist considers that the replacement and enhanced grassland is as great an extent as can be achieved for this development and that more has been put forward as a result of negotiation. No further Ecological comments were raised in regard to this application.

58. Given the above, officers consider that the limited harm due to loss of grassland would be outweighed by the need for school places and would not materially impact upon biodiversity or ecology and therefore would accord with development plan policy in this regard.

GREEN BELT DEVELOPMENT

National Planning Policy Framework 2012

Chapter 9 – Protecting Green Belt Land

Elmbridge Core Strategy 2011 Policy CS1 – Spatial Strategy

Policy CS14 – Green Infrastructure

59. Policy CS1 states that the Borough Council will work in partnership with public sector providers and others to ensure that local communities are supported by high quality infrastructure in the most sustainable locations and commensurate to the needs of different areas as set out in Policy CS16. Policy CS16 repeats the commitment to partnership in developing an action plan to meet levels of need identified in the Elmbridge Education Provision Assessment 2011 (EEPA) through, among other things, the encouragement of appropriate intensification of use of existing sites. The supporting text refers to an identified need for 5 additional forms of entry at secondary schools across Elmbridge by 2019.

60. Core Strategy policy CS1 also states that green infrastructure, including the Green Belt and other open spaces within the urban area, will continue to be a key determinant in shaping settlements and development patterns. New development will be directed towards previously developed land within the existing built up area.

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61. Policy CS14 states that where development of open space is proposed, it is considered, inter alia, against the provisions of PPG2 ‘Green Belts’. PPG2 has been replaced by section 9, ‘Protecting Green Belt Land’ of the National Planning Policy Framework 2012 (NPPF). Para 87 of the NPPF states that inappropriate development is, by definition, harmful to the Green Belt and should not be approved except in very special circumstances. Para 88 states that local planning authorities should ensure that substantial weight is given to any harm to the Green Belt. ‘Very special circumstances’ will not exist unless the potential harm to the Green Belt by reason of inappropriateness, and any other harm, is clearly outweighed by other considerations. Para 90 states that engineering operations are not inappropriate in Green Belts provided they preserve the openness of the Green Belt and do not conflict with the purposes of including land in Green Belt.

Very Special Circumstances

62. The proposed development is considered inappropriate development with the Green Belt. Therefore it is for the applicant to put forward very special circumstances that clearly outweigh the harm to the Green Belt and any other harm such that an exception to policy can be made. These are that the car park is required in mitigation for the erection of the replacement Cranmere Primary School. The Very Special Circumstances relating to the need for the new school, the alternative sites and the harm identified in the main report for the replacement school equally apply to this application. These are set out in paragraphs 162 - 180 of the report on the main application ref: EL2013/1469 which sets out the Green Belt argument including the Very Special Circumstances. This proposal should not be approved without permission being granted for the replacement school application as the proposals are interdependent and one cannot be agreed without the other. The very special circumstances which are considered to exist for the replacement school proposal also apply to the mitigation proposed in this car park application which forms part of the overall package.

Harm Due to Loss of Openness

63. The location of the car park is considered to be well located in relation to the existing urban fabric and is the most suitable location and arrangement on Grove Farm to absorb the car park and reduce further encroachment onto open Green Belt land. The indirect effect of car parking on this area would have a limited impact on openness given the relatively small area involved, nature of the use and that the development would be located adjacent to an existing access road serving the garage block as well as adjacent to the access road for the old Grove Farm site. Officers consider that the harm to openness has been minimised and the design is a proportionate response to the need to accommodate displaced residents parking. In terms of any other harm, officers acknowledge that the minor loss of habitat would be unfortunate however; the overriding need for the school places in this instance overrides any other ham.

Conclusion on Green Belt

64. Officers have considered the impacts on the Green Belt as a result of the proposed car park development, the replacement school proposal and have also assessed the

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applicants arguments for supporting a school in this location. Officers are satisfied that very special circumstances exist which clearly outweigh the harm to the Green Belt such that an exception to policy can be made. The very special circumstances are the profound need for school places within this area as well as the lack of suitable alternative sites to accommodate this short fall in places. Officers consider that the car park application on its own would cause limited harm to the openness of the Green Belt. Officers consider that the very special circumstances are considered to outweigh the harm and any other harm in terms of landscaping and ecology, in this instance.

HUMAN RIGHTS IMPLICATIONS

65. The Human Rights Act Guidance for Interpretation, contained in the Preamble to the Agenda is expressly incorporated into this report and must be read in conjunction with the following paragraph.

66. The Officers view is that whilst there will be a change in regard to the existing parking situation, this change does not engage any of the articles of the Convention and has no Human Rights implications in terms of amenity or highways impacts.

CONCLUSION

67. Officers consider that, notwithstanding the application for the replacement Cranmere School development, that this proposal for a 16 bay car park would not result in an adverse impact in terms of the highways implications. The car park would provide designated parking spaces for the residents of Arran Way who currently park on the road and on the verge and would also facilitate access to the proposed school. The proposal would be in keeping with the design and visual amenity of the surrounding area. The location of the car park adjacent to the existing access road, close to residential properties with an open boundary to the south, would ensure that the car park would be visible from public view which would provide a safe and secure parking area. Two disabled bays are proposed within this car park and two are proposed within the existing grass verges to accommodate the disabled residents in Arran. As such the proposal would not adversely impact upon residential amenity. Trees and landscaping would not be adversely impacted subject to the imposition of appropriate conditions. Officers are satisfied that the proposal would not pose a flood risk or result in a detrimental impact upon biodiversity. The proposed development would constitute inappropriate development and would cause limited harm to openness, however officers are satisfied that the profound need for additional school places and lack of alternative sites are factors which amount to Very Special Circumstances that clearly outweigh the harm to the Green Belt and any other harm such that an exception to policy can be made.

68. This application alone does not meet the Secretary of State referral criteria, but given the interdependence of this application and application EL2013/1469, officers consider that they should be referred together.

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RECOMMENDATION

69. That pursuant to Regulation 3 of the Town and County Planning General Regulations 1992, application no. EL/2013/4366 be shall be referred to the Secretary of State as a Departure to the Development Plan with a recommendation that is permitted subject to the following conditions.

Conditions:

1. The development hereby permitted shall not commence unless and until planning permission has been granted for the main application ref: EL2013/1469 and implementation of that permission has commenced.

2. The development to which this permission relates shall be begun not later than the expiration of three years beginning with the date of this permission.

3. The development hereby approved shall be carried out in all respects strictly in accordance with the following plans/drawings:

Existing Site Layout Plan, drawing number E01836-A-107 dated 22/01/13

Site Location Plan, drawing number E01836-A-101 dated 22/01/13

Proposed Residents Car Park, drawing number E1836-L-777 Rev A dated October 2013

Drainage Layout, drawing number CS063597-400 Rev T07 dated may 2013

Car Park Swept Path, drawing number ST13070-014 Rev B dated Oct 13

Proposed Double Yellow Lines on Arran Way, drawing number ST13070-013 Rev C dated 13/11/13

Proposed Improvements to Junction of Douglas Road / Arran Way, drawing number ST13070-001 Rev D dated 28/06/13

4. The development hereby permitted shall be implemented and maintained by the applicant for the sole use of the residents of 1-12 Arran Way. The parking shall be maintained in perpetuity and kept free from any impediment which would compromise its designated use.

5. Within three months of the date of this permission, a revised landscaping plan shall be submitted to and approved in writing by the County Planning Authority. The planting scheme shall detail the number, location, size and species of the proposed planting, and a detailed five year maintenance plan as well as details of the surfacing materials. The planting scheme shall consist of native species only and then be implemented in the next available planting season after the development has been completed.

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Reasons:

1. In the interests of preserving the Green Belt in accordance with Policy CS1 and CS14 of the Elmbridge Core Strategy 2011.

2. To comply with Section 91 (1)(a) of the Town and Country Planning Act 1990 as amended by Section 51 (1) of the Planning and Compulsory Purchase Act 2004.

3. For the avoidance of doubt and in the interests of proper planning.

4. To ensure the development is managed appropriately and in the interests of residential amenity in accordance with Policy CS17 of the Elmbridge Core Strategy 2011 and Policy COM4, HSG23 and HSG16 of the Replacement Elmbridge Borough Local Plan 2000.

5. In the interests of visual amenity in accordance with Policy CS1, CS9 and CS17 of the Elmbridge Core Strategy 2011.

CONTACT

Alex McGahan

TEL. NO.

020 8541 9462

BACKGROUND PAPERS

The deposited application documents and plans, including those amending or clarifying the proposal, responses to consultations and representations received as referred to in the report and included in the application file and the following:

Government Guidance

The National Planning Policy Framework 2012 (NPPF)

The Development Plan

The Elmbridge Core Strategy 2011

The Replacement Elmbridge Borough Local Plan 2000

Other Documents

Biodiversity and Geological Conservation Circular 06/2005

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