4.1
The application is in outline form
with siting and means of access being the two matters for consideration.
4.2
Whilst the allocation for site EMP
1.8 covers some 5.8 hectares, this application does not include the western
third of the allocated site. This is in separate ownership.
4.3
Accordingly the site area is some
4.41 8 hectares and the proposed commercial floorspace (excluding the MSA) is
8,482 sq m compared with the 1 7,500 sq m agreed at the Local Plan Inquiry.
4.4
The application covers two aspects. First the MSA. Outline planning
permission (97/57199/001 refers) and reserved Matters Approval (02/57199/002
refers) has been given for this development. Whilst the general location of the
MSA is restricted by the approved deceleration and acceleration lines to and
from the A27(T) this application seeks to modify the approved layout. However
the main design elements established under the reserved matters approval will
be replicated in this amended scheme.
4.5
In addition the extant permission
provides for a 40 bedroomed hotel wholly serving the westbound A27(T) traffic.
As a result this permission provides little, if any, local tourism benefit to
the Emsworth and Havant economy. Accordingly the size of the hotel has been
double (to 80 bedrooms) and a secondary car park will be provided from the
internal road network. As a result the hotel will also be able to serve the
tourism needs of Emsworth.
4.6
To the west of the MSA a two-storied
office courtyard development is envisaged. There would be 1 6 units providing a
gross Bl (a) floorspace of 3840 sq m. The design of this courtyard would be
modern and the courtyard itself would be a car-free area - having a landscaped
central courtyard. Parking would be provided to the rear, and cycle parking would be provided at the
entrances to the courtyard and the individual units.
4.7
The final part of the site will
comprise an industrial estate in a mixed Bl(c) / B8 use, the general design of
which would be similar to the recently constructed buildings on the SEEDA
estate on
4.8
There will be a mix of building
sizes ranging from 96 sq m up to 324 sq m. In total there would be some 4642 sq
m gross Bl(c) / B8 floorspace.
4.9
The first part of the site does not
form part of this application. Its shape is awkward due to the tapering nature
of the site boundaries, the location of the high pressure gas main and the
requirement for the access road to be aligned around the crown spread of the
oak tree at the site entrance.
4.10
The initial Master Plan for the
whole site envisaged a 'gateway' style three storied office building which
could be let to a single user. However market research has indicated that the
absence of a direct link to the A27(T) makes the site unattractive for such end
users. A separate planning application for an alternative 'employment' use will
be submitted on this parcel of land.
4.11
Landscaping of the site is a
reserved matter. Along the southern boundary planting is restricted due to the
presence of the railway and the gas main. As a result planting will be
predominantly to the north of the spine road and then throughout the site and
along the northern boundary, to supplement existing Highway Agency planting.
5.1
This part of the report analyses
various development control aspects of the site in respect of the MSA; issues
of noise and disturbance to residential properties to the south of the railway;
the visual impact of the development of the site; and, the consideration of the
use of resources. It also draws on the conclusions of the accompanying TAR,
FRA, Ecological and Archaeological Reports.
5.2
The site is bounded by the Havant to
Chichester section of the A27(T) to the north and the south coast mainline
railway between Havant and Emsworth to the south.
5.3
The A27(T) is elevated at the
western end of the site where it passes over the railway line. From this point,
for a distance of approximately 400 metres there is a substantial close-boarded
wooden screen fence.
5.4
In my submissions the only
residential properties that could be affected by a commercial development of
the site are those dwellings west of the primary school on the north side of
Selengar Avenue.
5.5
It is relevant to note that these
properties back immediately onto the railway and look over to the A27(T).
5.6
There is no intention to develop the
site with unneighbourly uses. The commercial allocation seeks Bl uses probably
with a small element of B8, but in small units. There is no intention to
accommodate distribution uses, due to the possible impact of HGVs on the local
road network.
5.7
By the very definition of Bl they
are uses which can be accommodated within a residential area without detriment
to the amenity of that area by reason of noise, vibration, smell, fumes, smoke, soot, ash, dust or
grit.
5.8
Concluding the matter of potential
harm to amenities of the housing and educational uses to the south of the site,
I am satisfied that they are already separated from the site by the railway.
Moreover, the site access would be constructed parallel to that and thus the proposed
employment buildings would be set some distance from them. In any event, the
Council have powers at their disposal to ensure that any future occupiers do
not emit sounds or smells that would be injurious to amenities.
5.9
I therefore submit that the residential
amenity currently enjoyed by the properties facing onto the site will not be
adversely affected by its development for commercial purposes.
5.10
The site is well screened from
public views with the exception of views from the railway and from the A27(T)
bridge over New Brighton Road. Any development of the site would incorporate
substantial earth bunding and landscaping along the southern boundary. The
northern boundary has a substantial Highway Agency planting belt ranging from
5-1 5 metres in depth. This planting is now projecting from the embankment
above the fencing and will shortly provide an effective visual screen.
5.11
Within the site all linear features,
such as hedges and watercourse would be retained and incorporated into the
development. This will enable them to retain and enhance their important role
as wildlife corridors. They would be supplemented with buffer strips on both
sides.
5.12
In this regard it is material to
note that the LPA have accepted that development on the site would have no
adverse impacts on landscape [para 44 of their Response Proof - Housing - H4 -
Housing Site Allocations]
and that such a use is an effective use of an under-used parcel of land [page
119 of Special Planning and Development Committee Report - 1 9 September 2000].
5.13
Additionally landscaping would be
undertaken where necessary to ensure that the site blends in with its
surroundings and forms an integral part of Emsworth. The substantial planting
undertaken by the DoT has become established and will shortly fully screen the
site. This landscaping will be reinforced along the application site's northern
boundary with additional native planting. Additionally the two existing strips
of hedgerows that follow the watercourses would be retained to form natural breaks
in the internal layout of the site.
5.14
In my view the construction of the
A27(T), which is largely at a higher level than the surrounding land, has
created a new feature in the urban form of Emsworth.
5.15
5.1 5 On this basis I consider that
the A27(T) has negated the previous role of the railway in defining the limit
of the urban form of this part of Emsworth. When standing within the site there
are clear views of the housing and the primary school along Selengar Avenue.
The presence of the railway is immaterial except on the occasion of a train
passing. I therefore consider that commercial development of the site would
fully integrate with the urban form of Emsworth.
5.16
I also consider that assessment of
urban form is not solely a desktop exercise of examining maps. The issue of
sustainability and integration with local services and transport is fundamental
to ensuring that development can integrate with the urban form. As I have set
out in section 3 above, I consider that this site is fully sustainable and is closely
connected to the town centre, the recreation ground, local schools and other
services and to the local public transport and pedestrian and cycle networks.
The site will not be isolated.
5.17
I conclude on this issue that
development of this unusual site would provide the only opportunity for a
significant amount of commercial floorspace to be provided within Emsworth. It
would therefore make a significant contribution to making Emsworth a
sustainable town and reduce the significant level of out-commuting that
currently occurs.
5.18
As the Inspector commented in the
Local Plan report at 12.11.7:
"Although the land lies within the defined Strategic Gap in the adopted Local Plan, it was accepted by the Council as being a "rounding-off" of development up to the A27(T), whilst still retaining an adequate separation between Emsworth and Havant. I generally agree with that finding particularly as the dual carriageway traversing the Gap is a more prominent feature than the railway. However, rather than defining the edge of the Gap along the northern side of the road, I consider the southern boundary would be better, whereby it could incorporate the highway margin, which is quite broad in places. I also consider a planting screen along the site's northern boundary would help reinforce the edge of the Gap and screen any proposed buildings...."
5.19
By using resources sustainably, we
can avoid using resources which may run out, and avoid causing pollution which
may harm the Borough for future generations. There are a number of objective
criteria against which new developments can be judged, to assess whether they
are using resources sustainably.
5.20
The BREEAM standard is considered to
be the most appropriate for assessing developments in Havant Borough. It covers
offices, homes (scheme known as Eco-Homes), industrial units, retail units and
schools and assesses the development's performance against a range of criteria,
and these buildings are rated on a scale of Pass, Good, Very Good or Excellent.
5.21
All development on the application
site will be required to meet either the "Very Good" or
"Excellent" standard, and at reserved matters stage an assessment
will be submitted to demonstrate how this will be met. Higher standards will be
encouraged.
5.22
A major contributor of climate
change is the burning of fossil fuels resulting in increasing carbon dioxide
emissions, which in turn is causing the Earth to warm. Producing energy from
renewable sources will help to reduce this problem. The long term planning aim
is carbon neutral development, and all new development on the site will be
expected to minimise its carbon footprint. For this reason the owners' approach
is to require all of the development to meet an increasing proportion of its
own energy needs through on-site generation and use of energy from renewable
sources.
5.23
The requirements are set in terms of
a percentage of expected carbon index of a building as calculated by the SBEM
(non-domestic) method. This method is that required by the Building Regulations
and so will not put an additional burden on the designer(s) of the new
buildings. Buildings will be required to use as little energy as possible and
setting the target in this way will ensure that all economical efficiency
savings are built into the design. This is because the renewable requirement
will then be a percentage of a smaller overall figure. This in turn can then be
met using a smaller and more economical renewable energy system.
5.24
Small scale renewable energy
generation, including solar power, micro wind power, biomass and ground source
heat pumps, will be encouraged by the developer to be built into the design
process of all buildings. The developer will require a 25% proportion of the
energy used in the operation of a development to be from on-site renewable
sources.