Planning Brief and Concept Proposals
The draft planning brief has been prepared following discussion with Havant Borough Council with a view to assisting consultation with third party interests and local residents. The Intention being to finalise the planning brief, as a basis for the consideration of a future planning application. The requirement for the development brief arises from Policy IMP3 of the Havant Borough District Wide Local Plan (HBDWLP).
The brief identifies the opportunities and constraints of the Padnell Grange site. More specifically, the brief seeks to provide a framework for a residential development, with the objective of maximising the development potential of the site, in accordance with both Government and local planning policy, but at the same time respecting its character and having regard to the amenities of surrounding residential properties.
The whole of the Padnell Grange site is specifically allocated for residential purposes in the recently adopted HBDWLP. The site is defined as a baseline housing site, required to meet the Borough's housing allocations. The site, as with other baseline sites, should be developed by the year 2011, if the Borough Council is to meet its housing requirements, as established by the Hampshire Structure Plan.
2.0 Site and Locality
2.1 A location plan of the site is provided at Figure 1. See related documents at foot of page.
Padnell Grange is located on the eastern edge of the built-up area of Cowplain. It is situated approximately 800m from Cowplain District Centre and 2.5km from Waterlooville Town Centre. Access to the site is achieved from Padnell Road which links direct to London road (A3) and Cowplain District Centre. Immediately to the north of the site is Padnell Cuts Woods which is the subject of a woodland tree preservation order. To the east of Padnell Grange is Waterlooville Golf Course which extends up to the A3(M) motorway. Existing chalet bungalow developments adjoin the site on its western and southern boundaries.
2.2 The site totals 2.64 hectares (6.5 acres). Padnell Grange itself is a former residential house now used as a professional training centre. To the south of this building is a group of redundant farm and industrial buildings, the majority of which are in a poor state of repair. One of these buildings is now used as the offices for The Borrow Foundation. The remainder of the buildings, and including a number of unsightly modern additions, have not been used for a number of years and are of no architectural merit. Padnell Grange itself is a relatively attractive building faced with flintstone, built circa 1840. However, it is not listed and nor does it appear on the council's local list. Its architectural value has been compromised by modern extensions. Part of the site has been laid out as a formal garden containing some ornamental garden features. The remainder of the site is open grass landscape. There are a number of mature trees within the site, which should be retained to enhance the setting of the new development.
2.3 Access to Padnell Grange is taken from the eastern end of Padnell Road. Padnell Road itself has a carriageway width of approximately 6-6.5m with footways on both sides for the majority of its length. Access to the proposed development will be in the same location as the existing access, i.e. from the eastern end of Padnell Road.
3.0 Site Constraints
3.1 There are no insurmountable physical constraints which would seriously curtail the development of this site. The site is not subject to flood risk nor does it suffer from contamination. It is not the subject of prohibitive planning designations, i.e. a conservation area, AONB or a site of nature conservation value. The area of garden that is landscaped is of no intrinsic value and does not feature in the Hampshire Register of Historic Parks and Gardens. The remainder of the site is open grassland. A topographical survey has been produced which identifies the location of trees and other land features.
Figure 2 Site Survey. See related documents at foot of page.
A constraints plan, Figure 3, has been produced which identifies the site's restrictions and opportunities. See related documents at foot of page.
Constraints Key. See related documents at foot of page.
Figure 4 Site photographs have been produced to provide current context. See related documents at foot of page.
4.0 Planning History
4.1 The redundant agricultural and industrial buildings on the Padnell Grange site have been the subject of redevelopment proposals. Consent was obtained originally in August 1993 for part demolition, alteration, extension and conversion to provide an office, Class B1a development. This consent was last renewed in March 2003 and therefore remains extant. Padnell Grange itself is now in use as a professional training centre. This resulted from a planning permission granted in July 1999.
4.2 The potential of Padnell Grange to accommodate residential development was progressed through the Local Plan process and for example included consideration and examination at the Local Plan inquiry. The Local Plan Inspector confirmed the suitability of Padnell Grange as a housing site and in doing so reached the conclusion that it constitutes "previously developed land," and could be regarded as part of the built up area.
4.3 It was envisaged at the time of the Local Plan inquiry that only a small portion of the site would be available for residential development, with the assumption that the office planning consent would be developed out and that the Padnell Grange building would continue as a professional training centre. It was on this basis that the local plan inspector confirmed an "indicative provision" of 15 houses for the site. This level of provision is reflected by Policy H3.30 of the HBDWLP which states:-
"The Padnell Grange site is located on the built up area of Cowplain. A modest development of approximately 15 dwellings could be accommodated within the grounds of the Grange whilst respecting the landscape, character and open setting of the existing buildings."
4.4 However, the circumstances surrounding the site has changed and for example the likelihood is now that the office consent will not be progressed, allowing for a much larger area to be developed. Consequently, the draft development brief contemplates a much larger scheme than 15 dwellings. Maximising the development potential of previously developed land is a requirement advocated by Government policy (see PPG3) and indeed by the HBDWLP (see Policy H5). A larger development has the additional benefit of assisting the council in meeting its housing land requirements. In this connection, the council is reliant on maximising Local Plan housing allocations, if it is to meet Structure Plan targets.
5.0 Planning Context
5.1 The current development plan is the HBDWLP which is up-to-date. It contains relevant policies relating to housing development and any applications for the development of this site will be determined in line with the HBDWLP, unless material considerations indicate otherwise. The policies considered relevant are set out below:
a) Policy L6 - Conservation and Protection of Existing Natural Features
5.2 Existing trees, small woodland and hedgerows are significant to the overall landscape quality of the site. The existing trees define the development area and frame the views from the existing house. The small coppice not only provides habitat shelter but will help create an exclusive character for the new development. If the removal of one or more of the significant trees is required as part of the development, it may be necessary to impose a condition on any permission that a replacement tree or trees be planted within the area to be developed or elsewhere within the Padnell Grange site. Developers will be required to protect existing trees to be retained during site clearance and building operations.
b) Policy L7 - Landscape Works
5.3 The council will require the proposed development to include a landscape scheme based on the topographical survey. The objective should be that landscaping is considered from the start and not put in as an afterthought to fill in leftover spaces.
c) Policy T7-Criteria for Access to Development
5.4 It is important that the access point connection to Padnell Road is made to a satisfactory standard. Developers will therefore be required to satisfy national and local standards as to the scale of the junction required. In considering the adequacy of provision for highway safety and access, regard will be had to the latest edition of the DTLR's "Design Manual for Roads and Bridges" as well as the local highway authority's own standards as appropriate. The existing access drive into the site is private and will need to be upgraded to conform to current highway standards.
d) Policy T7 - Bus Access and Provision for Cyclists and Pedestrians
5.5 Cycling and walking are important modes of travel for local journeys and it is therefore important that this development provides a safe and convenient route for pedestrians and cyclists to Padnell Road. If the existing access is used to provide the highway connection to the site, then a separate footpath/cycleway route should be provided through the woodland coppice to Padnell Road. As this site is within easy reach of bus services, it will not be necessary for contributions to be sought towards establishing a bus scheme to this development.
e) Policy T10 - Contributions to Off-Site Highway Improvements
5.6 This enabling policy specifically concerns contributions to off-site highway improvements adjacent or near to a development which is necessary to deal with localised highway problems that would occur as a direct result of a proposed development. Consideration will be given to the relevance of Policy T10.
f) Policy H5 - Density of Development
5.7 This Policy aims to achieve sustainable development by making the best use of land and infrastructure. The Policy requires a minimum density of 30 dwellings per hectare. The mature trees on the site need to be retained to ensure adequate screening and to respect the character of the site.
The total site area identified by the red line on the attached site plan measures 2.64 hectares. Illustrative drawings produced separately in conjunction with this planning brief show the provision of 59 dwellings on the site, which equates to a density of 22.3 units per hectare, falling below the minimum guidance requirement. However, PPG3 and this Local Plan policy does make allowance for lower density development, for example where there are constraints relating to access, environmental matters or impact on the character of the area. Additionally, there may be a requirement for the provision of public open space or the provision of landscape buffers. In accordance with PPG3 and this Local Plan policy, and based on the characteristics of the site, it is clear that the site is capable of accommodating a residential development in the order of 60 units. Such development does provide the best use of the site. However, the site could sustain development of a higher density subject to the merits of a specific design proposal.
g) Policy H6 - Range of House Types
5.8 It is important to create mixed and balanced communities by building a development which comprises different types and sizes of dwellings. A greater variety of dwelling types will lead to a visually more interesting development.
h) Policy H8 - Affordable Housing
5.9 The development of this site will give rise to an affordable housing requirement. The developer will therefore be expected to enter into an Agreement under Section 106 of the Town and Country Planning Act 1990, to ensure the required provision and retention of on-site or off-site affordable housing or commuted payment in lieu thereof.
i) Policy T9 - Provision of Vehicular Parking and Turning Facilities
5.10 Car parking standards for new residential development are set out in "Hampshire Parking and Strategy Standards 2002" published by Hampshire County Council and adopted by havant Borough Council. An average of 1.5 car parking spaces per dwelling should be achieved across the site. Care is required to ensure that parking is convenient and well located to overcome the potential for on-street parking. If a conventional, detached, semi-detached layout is adopted, then parking provision should be situated generally on individual plots, within garages or car ports either integral or set back from the road. If a courtyard style development is adopted, then it will be necessary to provide communal parking which should be arranged in a landscaped courtyard and in a location that can enjoy natural surveillance from the occupiers of the dwellings.
j) Policy US4 - Services
5.11 The development of this site will increase the volumes of sewage being discharged into the existing sewers in Cherry Tree Avenue and Padnell Grange. If the existing infrastructure does not have sufficient capacity then surcharging can result which would seriously affect properties downstream of this site. The council will seek the advice of the Environment Agency and Southern Water Service Ltd, and prospective developers are advised to carry out preliminary discussions with these bodies before submitting a planning application.
k) Policy D1 - High quality design
5.12 This policy encourages proposals which respond to the local context rather than off the peg designs or poor imitations of architectural styles. The design for this site should interpret the opportunities presented by its particular characteristics. The policy also requires energy conservation measures to be incorporated into this development. Attention is drawn to DETR general information Note 53 "Building a Sustainable Future." The planning application for this site must be accompanied by information demonstrating that full account has been taken of the efficient use of energy.
I) Policy T11 - Developer contributions towards green transport infrastructure
5.13 This enabling policy specifically concerns contributions to improve green transport infrastructure that is necessary where a ssite's's access to non-car modes is inadequate. The methodology for calculating the levels of contributions is set out in the council's supplementary planning guidance "Developers Contributions Policy Statement for Green Transport Schemes." The site is reasonably accessible to the public transport network, with bus stops located nearby in Padnell Road. Consequently, the relevance of this policy needs to be determined.
m) Policy R17 - Playing space related to new housing development
5.14 This policy requires residential development to make appropriate provision for children's" play spaces and playing fields/courts in accordance with the National Playing Fields Association ( NPFA ) standards. Play space, including playing fields and courts, can either form part of the development or be provided at an alternative location which the Borough Council considers acceptable. Alternatively, contributions may also be negotiated to improve the capacity of existing playing space to meet the requirements of the occupiers of the new housing. The Borough Council expects the developer to enter into an agreement under Section 106 of the Town and Country Planning Act 1990, to secure the provision of financial contributions.
n) Policy F2 - Development in fluvial (river and watercourse flood plains or at other risk from flooding).
5.15 This policy seeks to ensure that proposals for new development will not be at risk from flooding, which would result in danger or damage to property, and will not result in additional flood risk elsewhere or prejudice the maintenance of existing flood defences. Initial investigations suggest that the site is not subject to flood risk.
6.0 Key Aims
The key aims for the proposed development are identified below. Achieving these aims will enable the delivery of homes which will withstand the test of time and provide the foundation for a happy and sustainable community.
6.1 Building Form and Design
- Provide high quality architecture that creates a 'sense of place' and is in keeping with the character of surrounding areas.
- Respect the setting of the adjacent community, and minimise impact upon it.
- Utilise principles of sustainable development which provide a stable basis for community wellbeing.
- Promote the principles of good design, by embracing government planning and urban design guidance and build upon the lessons offered by recent exemplary residential schemes.
- Provide legible and distinct private and public spaces which provide privacy and security for residents.
- Retain and enhance the existing significant landscape features of the site and integrate them into the development.
- Provide appropriate and attractive 'buffers' between the proposed development and the adjacent properties.
- Provide opportunities for passive recreation through the creation of safe links to the existing footpath network.
- Assimilate the new development into both the existing retained and proposed new landscape settings.
6.3 Transport and Infrastructure
- Provide a development that both connects and integrates with the existing infrastructure.
- Consider all road and pedestrian access throughout the development.
- Provide choice for people by promoting alternative options to car use including cycling, walking and public transport.
- Integrate traffic speed calming measures into the concept design rather than as a late addition.
- Ensure that roads are an integral part of street design of creating safe and attractive zones rather than vehicle dominated routes.
- Enable access to homes without allowing vehicles to dominate.
7.0 Concept proposals
The concept principles for proposed development are outlined below:
The existing vehicular point of access from Padnell Road should be retained. It is envisaged that the existing driveway will require widening and upgrading to meet current highway adoptable standards and allow for the integration of pedestrian and cycle routes.
The traffic implications of the development proposals will need to be fully assessed. Traffic impact assessments undertaken to date, for example, prepared in relation to the Local Plan Inquiry, confirmed that there are no particular issues with respect to the impact on the local road network which are likely to cause concern. Previous assessments have assumed residential development (in accordance with the Local Plan allocation) and implementation of the extant office planning consent.
It is intended that the highway character adjacent to the retained Padnell Grange change to provide square courtyards and private parking courts. This change in road hierarchy will be reinforced by the use of different road surfacing and the integration of hard and soft landscaping. The change in character will also act as a vehicle calming measure and produce a corresponding safe pedestrian environment.
This proposed highway network would service both the new dwellings and the planned open space. It is anticipated that private vehicle parking will be in line with current government guidance (PPS3). It is envisaged that an average of 1.5 spaces per unit should be accommodated through various design solutions, e.g.:
- Rear courtyard parking, arranged as an integral part of the development.
- Curtilage parking,
- On-street parking (parallel and right angled)
Open Space and Pedestrian Routes
The existing large tree groups should be retained and utilised to form green open spaces retaining the existing landscape character of the site. The location of these 'greens' will provide a positive aspect for the proposed building and amenity space for the residents. Safe pedestrian footpaths run through the site and link to the existing footpath/bridleway network.
Proposed layouts should address any danger created by wayward golf balls from the adjoining course.
Proposals should retain and convert existing principle buildings. Proposed new houses and flats should be arranged in a series of perimeter blocks and orientated to offer the following benefits:
- Aspect to green spaces within the development and countryside beyond. This will also provide security through overlooking both the existing and proposed footpath networks.
- The creation of street scenes that provide legibility, character and continuous vistas.
- Respect the privacy of the adjacent existing development. This is reinforced by the provision of a 5m-landscape buffer along the southern and western boundaries.
- Provide clarity between public and private spaces.
- To enable key buildings and vistas as focal points.
Existing trees should be incorporated into a housing layout and provide an underlying structure for new formal and informal green spaces.
In accordance with PPG3, landscaping will form an integral part of new development, and opportunities will be taken to retain existing trees and introduce new native shrubs and planting.
- Trees, which are in good condition and are of merit, will be retained. Off the significant trees that exist only dead, dying, dangerous or diseased trees will be removed. Arboriculture consultation will establish tree stock and tree protection distances.
- New planting will comprise local indigenous species in character with the local landscape. This planting will provide year round interest and structure and ecological enhancement.
- To provide privacy to the private rear gardens of Cherry Tree Avenue, the existing landscaping will be enhanced to produce a Sm-planted buffer between the new development and boundaries to the existing properties.
7.3 Density and Accommodation Mix
Current government policy PPG3 states that proposed development should achieve a minimum density of 30 units per ha.
The total site area identified by the red line on the attached illustrative material measures 2.64ha. The provision of 60 dwellings, would equate to a density of 22.7 units per hectare, falling below the minimum guidance required.
However, PPG3 and Local Plans Policy H5 does make allowance for lower density development where the following apply:
- Environmental constraints.
- The provision of public open space, available to the wide community.
- The provision of landscape buffers.
- Impact on the character of the area.
With the existing extensive tree coverage, the open landscape character of the site, and the provision of a landscape buffer between the existing neighbouring properties and the proposed development, it is considered that the proposed density of development would be appropriate for the site. However the site could sustain development of a higher density subject to the merits of specific design proposal.
The proposed accommodation should provide a wide mix of dwelling types and size. This will provide the following benefits:
- Enhance the sustainability of local service and facilities.
- Assist community surveillance, with residents coming and going during the day.
- Provide a development, which is affordable to a wide range of incomes.
- Provide the opportunity for lifetime communities where people can move home without leaving the neighbourhood.
- Enable the creation of a more attractive environment by creating a greater diversity of building forms.
7.4 Building Style
Provide a high quality development that is in keeping with traditional Local character and architectural form. The precedent sheet Figure 5 has been included to demonstrate how this has been achieved by the architect on recently completed developments.
Although the majority of buildings on site are of low quality, consideration should be given to retaining the site's principal buildings
Community and Enclosure
Incorporate continuity of frontages to promote vibrant street scenes, and create a strong sense of place, with primary access provided from the street.
Provide clearly distinguishable private and public spaces and imbue a sense of community and ownership.
Scale, Height and Massing
Maintain 'human scale' in keeping with the local area.
The proposed development should be predominantly 2-storey with limited elements of 3-storey to create landmark buildings features and make best use of roof space. Along with single storey ancillary buildings such as garages, this will provide a wide variety of eaves and ridge heights, and create interest whilst enabling the development to visually integrate with the landscape.
Appearance - Details and Materials
Provide a development that takes references from local traditional detailing and materials. This will enable the development to integrate with the local character. A broad pallet of materials will be proposed to maintain interest and provide variety