Embed Size (px)
Citation preview
Planning Statement
(including Heritage Statement)
Outline planning application (all matters reserved) for the erection of a building for B1(a) and A2 uses (maximum floorspace of 1,600sq m) at Mile End Road, South Shields, NE33 1TA October 2016
Contents
1. Introduction 1
2. The Site 3
3. Description of Development 5
4. Planning Policy Framework 6
5. Planning Appraisal 10
6. Conclusion 15
Contact
Michael Powell
October 2016
1. Introduction
1.1 This Planning Statement is submitted by Turley on behalf of Muse Developments Ltd
and South Tyneside Council and supports an outline planning application (with all
matters reserved) for the erection of a building for B1(a) and A2 uses (maximum
floorspace of approximately 1,600sq m) at Mile End Road, South Shields.
1.2 The planning application is supported by the following information and documents:
Document Author
Application Forms (including certificates) Turley
Planning Statement Turley
Flood Risk Assessment* Arup
Ground Conditions Report* Arup
Transport Statement JMP
Travel Plan JMP
Heritage Statement** Turley
Noise Impact Statement Apex Acoustics
Archaeology DBA* Prospect Archaeology
Site location plan 12569H-001 B Harris Partnership
Existing site plan 12569H-002 A Harris Partnership
Parameter Plan 1 12569H-003 A Harris Partnership
Parameter Plan 2 12569H-004 A Harris Partnership
Parameter Plan 3 12569H-005 A Harris Partnership
Parameter Plan 4 12569H-006 A Harris Partnership
* To be submitted following submission of the application
** Contained within this Planning Statement
This Statement
1.3 This Planning Statement assesses the impact of the development proposed. It will be
demonstrated, in conjunction with the documents listed above, that the proposals for a
new building to accommodate B1(a) and A2 uses at Mile End Road are acceptable in
terms of current planning policy and other material considerations.
1.4 The remainder of this document is structured as follows:
• Section 2 describes the site location, site context and a brief overview of relevant
planning history
• Section 3 provides a description of the proposed development
• Section 4 sets out the relevant local and national planning policy
• Section 5 provides a planning appraisal of the proposals, and
• Section 6 provides a conclusion.
2. The Site
Site Location
2.1 As shown on the site location plan below, the application site relates to 0.2 hectares of
land at Mile End Road, South Shields.
2.2 The site currently comprises an area of hardstanding used as a public car park with
approximately 60 unmarked spaces. It is currently accessed from Mile End Road to the
east.
2.3 South Shields Metro station is to the west of the site, separated by a wide footpath.
Buildings of various heights exist to the south of the site on the opposite side of Queen
Street, to the east along Mile End Road and to the north of the site. The site levels are
such that the site slopes down from north to south.
Site location plan (Harris Partnership)
Site context
2.4 The proposals subject to this outline application are associated with – but not included
within - the wider ‘South Shields 365’ regeneration proposals. These have, so far,
comprised the construction of a new Central Library and Digital Media Hub (now known
as ‘The Word’); the remodelling of the existing Market Place; a new Transport
Interchange and retail/office provision; and a wider town centre masterplan for the
redevelopment of South Shields town centre.
Relevant Planning History
2.5 The only planning application listed on South Tyneside Council’s online Public Access
database relating to the site (described as ‘site of former multi-storey car park’) is for the
erection of a four-storey office building (ref: ST/1655/04/LA). The application was
approved on 29 November 2004. Given that the site is currently vacant, it is clear that
that application was not implemented.
3. Description of Development
3.1 The proposed development is for the for the erection of a building for B1(a) and A2 uses
at Mile End Road, South Shields. The planning application is made in outline, with all
matters reserved.
3.2 As shown on the accompanying drawings, the proposed building will be positioned
within the eastern part of the site, alongside Mile End Road. The area in the west of the
site is shown to be for car parking for 23 cars and associated vehicular access.
3.3 The proposed building will be two-storey in height, with a footprint of 771sq m. This will
be over two levels, resulting in a maximum floorspace of approximately 1,600sq m.
3.4 The accompanying parameter plans show that the building will have an approximate
height of 10-12 metres above the finished floor level, commensurate with its two-storey
nature.
3.5 Detailed elevations and floor plans will be submitted at the subsequent reserved matters
stage.
3.6 A new access to serve the proposed development will be created from Queen Street, to
the south. This will enable servicing and vehicular access to be taken from the existing
junction to the south of the site from Mile End Road.
4. Planning Policy Framework
4.1 This section considers the local and national planning policies that are relevant to the
determination of this application.
National Planning Policy Framework
4.2 The National Planning Policy Framework (the Framework) sets out the Government’s
planning policies for England, with the presumption in favour of sustainable
development (paragraph 14).
4.3 Paragraph 7 and 9 of the Framework seeks to achieve sustainable development.
4.4 Paragraph 17 sets out 12 core planning principles which should underpin both plan-
making and decision-taking. Of relevance to this application, these include proactively
driving and supporting sustainable economic development, securing high-quality design
and amenity, encouraging the effective use of land by reusing land that has been
previously developed (brownfield land), promoting mixed use developments and making
the fullest possible use of public transport, walking and cycling.
4.5 Section 2 of the Framework seeks to ensure the viability of town centres. Of relevance,
paragraph 23 states that LPAs should recognise town centres as the heart of their
communities and pursue policies to support their viability and vitality, promote
competitive town centres that provide customer choice and a diverse retail offer and
which reflect the individuality of town centres, and, where town centres are in decline,
plan positively for their future to encourage economic activity.
4.6 Paragraph 56 of the Framework states the importance the Government attaches to the
design of the built environment, stating that “good design is a key aspect of sustainable
development, is indivisible from good planning, and should contribute positively to
making places better for people.”
4.7 Paragraph 60 of the Framework states that “planning policies and decisions should not
attempt to impose architectural styles or particular tastes and they should not stifle
innovation, originality or initiative through unsubstantiated requirements to conform to
certain development forms or styles. It is, however, proper to seek to promote or
reinforce local distinctiveness.” Paragraph 61 goes on to say that “planning policies and
decisions should address the connections between people and places and the
integration of new development into the natural, built and historic environment.”
4.8 Paragraph 64 advises 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.
4.9 Paragraph 65 states that “local planning authorities should not refuse planning
permission for buildings or infrastructure which promote high levels of sustainability
because of concerns about incompatibility with an existing townscape, if those concerns
have been mitigated by good design (unless the concern relates to a designated
heritage asset and the impact would cause material harm to the asset or its setting
which is not outweighed by the proposal’s economic, social and environmental
benefits).”
4.10 Paragraphs 126 to 141 of the Framework deal with heritage. In respect of planning
applications, paragraph 128 requires the description of the significance of any heritage
assets affected, including any contribution made by their setting, and states that the
level of detail should be proportionate to the assets’ importance and no more than is
sufficient to understand the potential impact of the proposal on their significance.
4.11 Paragraphs 186 and 187 of the Framework encourage local authorities to approach
decision-taking in a positive way to foster the delivery of sustainable development and to
look for solutions rather than problems, to seek to approve applications for sustainable
development where possible, and to work proactively with applicants to secure
developments that improve the economic, social and environmental conditions of the
area.
The Development Plan
4.12 Section 38(6) of the Planning and Compulsory Purchase Act (2004) states that regard is
to be had to the Development Plan for the purpose of any determination [of planning
applications] to be made under the Planning Acts, the determination must be made in
accordance with the Development Plan unless material considerations indicate
otherwise.
4.13 The South Tyneside Local Development Framework (LDF) is the current development
plan for the District. It comprises the following Development Plan Documents:
• Core Strategy (adopted in 2007)
• South Shields Town Centre & Waterfront Area Action Plan (adopted in 2008)
• Development Management Policies Development Plan Document (adopted in
2011)
• Site-Specific Allocations (adopted in 2012)
4.14 The NPPF post-dates the Core Strategy and Development Policies documents and is a
material planning consideration in the determination of this planning application.
South Tyneside Core Strategy (2007)
4.15 The Spatial Vision of the Core Strategy seeks to concentrate development in key
regeneration/ development areas, which includes the centre of South Shields.
4.16 Strategic Policy ST1 sets out the Spatial Strategy for South Tyneside. The policy seeks
to maximise both the re-use of previously developed land and the community benefits of
regeneration, whilst avoiding or minimising environmental impacts and congestion and
safeguarding natural and cultural assets.
4.17 Policy E1 allocates land for economic development, and states that “particular priority
will be given to focusing office development within the Town Centres and South Shields
Riverside.”
4.18 Policy SC1 seeks to deliver sustainable communities, which includes development
proposals to be focused and promoted within the built-up areas.
4.19 Policy SC2 focuses retailing, as well as offices, commercial leisure, indoor sports,
cultural, social and community facilities, within the three town centres of South Shields,
Jarrow and Hebburn.
4.20 Policy EA1 seeks to conserve the best qualities of South Tyneside’s built and natural
environment, which includes improving the distinctive urban characters of South
Shields, Jarrow and Hebburn.
South Shields Town Centre & Waterfront Area Action Plan (2008)
4.21 The Area Action Plan (AAP) is the detailed development plan document for South
Shields and sets out the more detailed strategy and vision, policies and site-specific
land allocations for South Shields town centre, riverside and foreshore.
4.22 The application site lies within the AAP Proposals Map boundary.
4.23 The AAP Proposals Map identifies the site as an Office-Based Economic Site.
4.24 Policy SS1 sets out the strategic vision which includes strengthening, reviving and
promoting the growth of the town centre as the Borough’s principal centre for shopping,
entertainment and leisure, culture and administration, making it a popular and attractive
market town.
4.25 Policy SS3 seeks to improve the accessibility of existing and proposed development
sites within the South Shields centre, riverside and foreshore areas for all modes of
travel, giving priority to sustainable travel.
4.26 Policy SS4 promotes the economic growth and prosperity of South Shields. Of
relevance to this application, it allocates the application site as a ‘Priority Site’ for high-
quality office-based business and commercial development as:
i) multi-storey car park on Mile End Road (approx.0.2ha) (by 2016) (A2, B1)
Development Management Policies Development Plan Document (2011)
4.27 The Development Management Policies Development Plan Document sets out the
development management policies that address locally distinctive issues that are not
covered elsewhere by national policy and the other Local Development Framework
documents.
4.28 Policy DM1 is a general criteria-based policy relating to the management of
development. Of relevance to the development proposed in this application, the Council
will ensure that:
• The development is designed to convey sensitive consideration of its
surroundings, and, where possible, enhance its local setting and reinforce local
identity, having particular regard to scale and proportions, alignment, form, use of
materials and architectural detailing;
• The development is acceptable in relation to any impact on residential amenity;
• The impact of the development is acceptable in relation to highway capacity and
safety or includes proposals to mitigate any adverse impacts;
• New development provides site layouts that facilitate convenient and safe routes
between facilities, and prioritises movement by pedestrians and cyclists;
• The needs of all users for access around sites and into buildings for public use
are considered as an integral part of the development;
• The development is designed to minimise and mitigate localised flood risk, both
on site or elsewhere;
• Any risks of contamination have been fully assessed and, where necessary,
remediation measures are included as part of the development proposals;
• The development takes into consideration the potential legacy of mineral
workings, particularly in areas of known former mine shafts.
4.29 Policy DM6 relates to heritage assets and archaeology, which are discussed in greater
detail in the separate Heritage Statement and Archaeological Desk-Based Assessment
that accompany the submission. However, it is important to note that the policy is
supportive of development proposals that protect, preserve and where possible enhance
the historic, cultural and architectural character and heritage, visual appearance and
contextual importance of the Borough’s heritage assets and their settings.
Site-Specific Allocations Development Plan Document
4.30 This document relates to the areas of the District not covered by Area Action Plans, so
this DPD is not relevant to this application.
Other relevant planning policy documents
4.31 South Tyneside Council has a number of non-statutory supplementary planning
documents to provide advisory guidance to the development plan documents. These
include SPD6: Parking Standards, which covers the maximum levels of provision for
car parking, and minimum levels of provision for parking for people with disabilities,
cycles and motorcycles, for developments. The accompanying Transport Assessment
addresses this matter in more detail.
Planning Policy Summary
4.32 The documents identified above show that the proposals are supported by current
national and local planning policy. The subsequent section provides a detailed
assessment of the proposals in light of the relevant identified policies and
supplementary planning documents.
5. Planning Appraisal
5.1 This chapter appraises the planning application against national and local planning
policy: namely, the NPPF and the adopted South Tyneside Local Development
Framework Development Plan Documents, as identified in the previous chapter.
5.2 It is important to note that this planning application is made in outline, with all matters
reserved. As such, the application seeks to demonstrate that the principle of
development is acceptable in this location, taking into account other important material
policy considerations.
Principle of development
5.3 The planning policy context of the application site is that it is within the defined town
centre of South Shields and is allocated in the adopted South Shields Town Centre &
Waterfront Area Action Plan (AAP) as a ‘Priority Site’ for high-quality office-based
business and commercial development. The site allocation contained in policy SS4 of
the AAP relates to ‘multi-storey car park on Mile End Road (approx.0.2ha) (by 2016)
(A2, B1).’
5.4 The site constitutes previously-developed land, having been used as a multi-storey car
park prior to its current surface car park use.
5.5 The adopted Core Strategy seeks to maximise the re-use of previously developed land
and the community benefits of regeneration (policy ST1) and prioritises office
development within the Town Centres and South Shields Riverside (policy E1).
5.6 Policy SC2 of the Core Strategy focuses retailing and offices within the three town
centres of South Shields, Jarrow and Hebburn.
5.7 Office uses are encouraged by the Framework in town centre locations such as South
Shields town centre.
5.8 This outline application proposes the erection of a building of B1(a) and A2 uses upon
the allocated site. In light of the planning policy context above, it is clear that the
principle of such development is acceptable. The proposals will complement and enable
South Tyneside’s Spatial Vision for South Shields continue to be implemented and
attract more people to the town’s retail and commercial core.
5.9 In summary, the principle of development of the proposed building of B1(a) and A2 uses
is supported by the Framework, the South Tyneside LDF Core Strategy and South
Shields Town Centre and Waterfront Area Action Plan. As such, it is considered that the
principle of development is acceptable in this location.
Other material policy considerations
5.10 Following correspondence with South Tyneside Council, it has been agreed that the
matters of highways and transport, flood risk, ground conditions, heritage, noise and
archaeology should be addressed in this outline planning application. Various technical
reports have been commissioned to deal with each of these issues and are summarised
below.
Highways and transport
5.11 A Transport Assessment (TA) and Travel Plan (TP) have been prepared by JMP and
accompany this outline planning application.
5.12 The TA concludes that the site is in a sustainable location with excellent opportunities
for it to be accessed by sustainable travel modes, particularly walking and public
transport. The site is located less than 400m from South Shields Metro station, the
existing bus station and the proposed new transport interchange.
5.13 It notes that the proposed development is unlikely to be detrimental to highway safety
and that the proposed uses would generate fewer vehicle trips during the peak hours of
the highway network compared to the existing car park.
5.14 In terms of car parking provision, the TA identifies that there is significant reserve
capacity to accommodate the circa 60 spaces lost at Mile End Road to accommodate
the proposed development.
5.15 In conclusion, the TA considers that the proposed development is unlikely to result in
highway or parking impacts. As such, it is recommended that the proposed development
and associated outline planning application is acceptable in traffic and transport terms.
5.16 The TP submitted alongside the TA aims to promote the use of sustainable travel
modes for accessing the site and focuses on promoting sustainable travel behaviours
amongst staff who make the most regular journeys.
5.17 In summary, therefore, it is considered that the proposed development is in accordance
with Policy SS3 of the AAP, Policy DM1 of the Development Management Policies
Development Plan Document and the provisions of the Framework.
Flood risk and drainage
5.18 The site lies within Flood Zone 1 and is therefore at low risk of flooding from rivers or the
sea. Table 1 of the National Planning Practice Guidance states all uses of land are
permitted in this flood zone, subject to other considerations.
5.19 A Flood Risk and Drainage Assessment is being prepared by Arup and will accompany
this planning application. It will take into account the risks of flooding both from and to
the proposed development and consider drainage measures for the site.
5.20 The position in this respect will be considered further and confirmed in the Flood Risk
Assessment to follow submission of this application.
Ground conditions
5.21 A Ground Conditions Assessment is being prepared by Arup and will accompany this
planning application.
5.22 The position in this respect will be considered further and confirmed in the Ground
Conditions Assessment to follow submission of this application.
Heritage
5.23 The application site is located approximately 40 metres from the grade II listed Scotia
Public House and is considered to fall within the setting of the building. The site is also
located adjacent to the locally listed 10 Mile End Road (non-designated heritage asset).
5.24 The following details have been prepared by Turley Heritage to address the heritage
issues of the application site.
Legislation and Policy
5.25 The Planning (Listed Buildings and Conservation Areas) Act 1990 places a duty upon
the Local Planning Authority in determining applications for development affecting listed
buildings and to have special regard to the desirability of preserving the special interest
and setting of a listed building. The NPPF requires that great weight is given to the
conservation of designated heritage assets and this reflects the statutory duty of the
1990 Act with respect to listed buildings.
5.26 Paragraph 131 of the NPPF states that in determining planning applications, local
planning authorities should take account of the desirability of sustaining and enhancing
the significance of heritage assets, putting them into viable uses consistent with their
conservation, as well as the desirability of new development making a positive
contribution to local character and distinctiveness. Paragraph 132 requires when
considering the impact of a Proposed Development on the significance of a designated
heritage asset that great weight should be given to the asset’s conservation.
‘Conservation’ is defined by the NPPF as ‘the process of maintaining and managing
change to a heritage asset in a way that sustains and, where appropriate, enhances its
significance’1.Paragraph 137 requires local planning authorities look for opportunities for
new development within the setting of heritage assets to better reveal their significance.
5.27 The South Shields Core Strategy (2007) sets out at Policy EA1 that the Local Planning
Authority will conserve the best qualities of South Tyneside’s built and natural
environment, including South Shields. Policy DM6 of the South Shields Development
Management Policies (2011) states that Council will support development proposals that
protect, preserve and where possible enhance the historic, cultural and architectural
character and heritage, visual appearance and contextual importance of heritage assets
and their setting.
Heritage Assets and Impact
5.28 The grade II listed Scotia Public House dates to the early 20th century (c.1903-04) and is
designed in the Edwardian Baroque architectural style by the architect Henry Grieves.
The building is constructed from red brick under a slate roof with sandstone ashlar
dressings to the doors and windows. It is decorated with a circular turret cap rising
above the curved roof with a fine Art Nouveau iron fleche which is regarded by Pevsner
as nice ‘conceit’ and makes a most successful feature of this corner2. The building is of
historic interest as a public house dating from the early 20th century.
5.29 The listed building is located on the corner of King Street and Mile End Road to its south
and east respectively, in an area known as the Quadrant. It is primarily experienced
1 DCLG (2012) National Planning Policy Framework (NPPF) – Annex 2: Glossary
2 Pevsner, N (2009) The Buildings of England : Newcastle and Gateshead
from the Quadrant, allowing for an appreciation of the full extent of the buildings
elevation to Mile End Road. It is from this point the circular turret and square tower are
appreciated together with the stone detailing across the elevation.
5.30 The Scotia Public House is located to the south east of the application site and is
separated by intervening development. Whilst the proposed development will be visible
from the south east, it is not considered that this will affect the way in which the listed
building is experienced due to the corner position and projecting corner feature which
gives it increased prominence. The proposals will improve its setting and the context
within which the building is experienced, reinstating the former tight urban grain of this
part of South Shields whilst also adhering to the consistent building height of 2 to 3
storeys.
5.31 No.10 Mile End Road dates to the late 19th century (c.1891) and was designed in the
Italian Renaissance Style by the noted local architect J.H. Morton. The building is
constructed from red brick with stone detailing under a gabled slate roof. It includes a
large tower to one corner with a decorative stone cap and balustrading. The building is
of historic interest as a former Assembly Hall constructed in the late 19th century which
was latterly altered and extended in the 20th century to form a cinema.
5.32 No.10 Mile End occupies a prominent corner on Mile End Road with Stanhope Street to
the west and north respectively. It is primarily experienced from the junction of Stanhope
Street and Queen Street, allowing for an understanding of the buildings prominence
within the streetscape. This view allows for an appreciation of both the principal
elevations of the building to Mile End Road and Stanhope Street.
5.33 10 Mile End is located adjacent to the application site, to the south east. The
architectural significance of the building is principally experienced from the junction of
Mile End Road and Stanhope Street to its north west where the principal elevations are
best appreciated. Its former corner position is also appreciated from this point. Due to its
orientation, the proposed development will not be visible within this view and there will
be no impact to the significance of the asset. The proposed development will be partially
visible in wider views of the building from the north-west and north, along Mile End
Road. It is not, however, considered that this will affect the way in which the asset is
experienced due to its role and prominence within the streetscape.
Summary
5.34 Overall, it is considered that the significance and special interest of the grade II listed
Scotia Public House will be sustained in accordance with the statutory duty and
paragraphs 131 and 132 of the NPPF in relation to this asset. The scheme will allow for
setting to make a more positive contribution to setting by reinstating the fragmented
townscape within this part of South Shields. The proposed development accords with
paragraphs 131 and 135 of the NPPF by sustaining the significance of the non-
designated 10 Mile End Road.
5.35 In accordance with Policy EA1 of the South Shields Core Strategy, the proposals will
contribute to improving the distinctive urban character of South Shields by the
reinstating built form along Mile End Road. The proposed development also responds to
Policy SS12 of the Town Centre and Waterfront Area Action Plan and Development
Management Policy DM6 by protecting and preserving the significance and setting of
the listed building and non-designated heritage asset. The application proposals also
comply with the Supplementary Planning Document (SPD) 21: List of Locally Significant
Heritage Assets, in particular section HA2 regarding the setting of a non-designated
heritage asset by not affecting those elements of setting that contribute to its
significance.
Noise and residential amenity
5.36 A Noise Impact Statement has been prepared by Apex Acoustics and accompanies this
outline planning application.
5.37 The report presents the proposed strategy to assess and mitigate potential adverse
noise impact from fixed plant associated with the proposed development on the
identified Nearest Sound Sensitive Locations (NSSL).
5.38 The report identifies the nearby sound sensitive locations which may have the potential
to be affected by noise from fixed plant associated with the proposed building. It
recommends that, once planning permission has been granted, background noise level
measurements will be undertaken at positions considered representative of the nearby
sound sensitive locations. These will provide benchmarks against which the potential
noise impact may be assessed.
5.39 The report recommends that, where the calculated noise impact exceeds the
performance specification at nearby noise sensitive locations, remedial measures may
be proposed. Such remedial measures may include attenuator specifications, acoustic
enclosures or barriers, and attenuated louvre specifications.
5.40 In summary, therefore, it is considered that the proposed development is in accordance
with Policy ST1 of the Core Strategy, Policy DM1 of the Development Management
Policies Development Plan Document and the provisions of the Framework.
Archaeology
5.41 A Desk-Based Assessment (DBA) is being prepared by Prospect Archaeology and will
accompany this application. It will take into account the potential for archaeological
activity on the application site.
5.42 It is not anticipated on the basis of the site walk-over and our detailed review of
available historic records that any insurmountable archaeological issues will be
identified within the specified area of interest.
5.43 The position in this respect will be considered further and confirmed in the DBA to follow
within the next 2 to 3 weeks.
6. Conclusion
6.1 This Planning Statement is submitted by Turley on behalf of Muse Developments Ltd
and South Tyneside Council and supports an outline planning application (with all
matters reserved) for the erection of a building for B1(a) and A2 uses (maximum
floorspace of approximately 1,600sq m) at Mile End Road, South Shields.
6.2 The details presented in this application have been informed by correspondence with
South Tyneside Council.
6.3 The principle of the proposed development is considered to be acceptable. The outline
application proposes a development in accordance with the site’s allocation in the
adopted AAP (ie an office-based business/commercial development of B1 and A2 uses).
6.4 Other material considerations have also been identified and addressed in the
accompanying technical reports, which demonstrate that the proposals will not result in
harm in terms of highways/transport impact, flood risk, ground conditions, heritage,
noise and archaeology.
6.5 Having regard to the details submitted, the proposed development is considered to
constitute sustainable development which should be considered positively in
accordance with the provisions of the NPPF and the adopted development plan for
South Tyneside.
