Archived decisions

Contact: Martin Leeds, ext 6733 email: [email protected]

1. Summary

1.1 The County Council seeks planning consent for a major extension to the existing Emsworth House Older Persons' Home, Havant Road, Emsworth. Comments and concerns have been received from local residents. Havant Borough Council has no objection, subject to conditions. The recommendation is to grant approval.

2. Site

2.1 Emsworth House is a large, two-storey established County Council residential care home within a primarily residential area of Emsworth. The site (see attached location plan) fronts on to Havant Road to the south. To the east is Emsworth House Close which is a long residential cul-de-sac with elderly persons' flats at its northern end. The northern and western boundaries of the site adjoin residential development. The Home is within landscaped grounds, with mature tree cover in the southern half of the site and mainly grassland with individual trees in the northern half. The western and northern boundaries contain established planting which helps to screen the site.

2.2 The site is flat but with a slight fall from its northern to southern boundaries. The existing vehicular and pedestrian access to Emsworth House is from Emsworth House Close.

3. Background

3.1 To meet the challenge of delivering urgent new nursing care facilities in Hampshire, an initiative has been developed in partnership between Hampshire County Council and the Hampshire and Isle of Wight Strategic Health Authority, which has received funding from the Department of Health. The initiative involves the creation of new nursing care homes linked to and located at Hampshire County Council Residential Care Homes or on Health Trust land. A total of 500 nursing care bed spaces will be created by December 2005. The viability of this programme relies upon the efficient use of County Council and Health Trust land which is currently under-used. Construction is well underway on six sites making up the first two phases of the programme, and planning consent has been granted for a further two schemes, so that each Primary Care Trust (PCT) has at least one home. The proposed development at Emsworth House is the scheme proposed for the East Hampshire PCT. The nearest alternative schemes are located at Park Gate and Alton.

3.2 Linked to these major extensions is a programme of refurbishment works to some of the existing residential care homes where new developments are proposed. The nursing care accommodation will be owned and administered by Hampshire Social Services. Emsworth House is one such property that has been identified where an extension could be provided.

4. Proposal

4.1 The proposed new building linked to Emsworth House would provide 48 bed spaces with associated facilities within three linked two-storey buildings under pitched roofs. The proposed extension would be positioned on the mainly open garden area situated to the north of the existing House. This part of the site was chosen because it was the largest available area of land to construct the building. Development of an alternative site to the south of the existing Home would entail the loss of a significant area of mature specimen trees which establish the environmental setting of the House from Havant Road. The proposal is to retain the existing access into the site from Emsworth House Close and allows access to the existing Residential Home and service area.

4.2 It is anticipated that the new extension would take approximately 45 weeks to construct, followed by a 32 week refurbishment scheme for the existing Emsworth House. The works for the refurbishment are likely to be less intensive than the construction of the new build. The existing residents at the home would be transferred to the new extension whilst the refurbishments are carried out.

4.3 The extension will be constructed in similar facing brick and roofing tiles to those on the existing House. Cedar timber (or similar wood) cladding will be used on parts of the building to break up the mass of brickwork. Additional planting as part of the landscaping scheme would be carried out partly to mitigate loss of trees on this part of the site.

4.4 The existing access to the site off Emsworth House Close will be retained. It is intended to provide 30 parking spaces, including five for disabled persons. This meets Hampshire County Council parking standards. The parking area will be provided before the major construction works are commenced to allow parking for contractors and workmen. Cycle parking would also be provided on-site.

4.5 Originally it was intended to form a temporary vehicular exit at the end of Emsworth House Close cul-de-sac to allow for larger lorries from the site. Following the Members' Site Visit on 23 August 2004, (see section 8), it has been decided not to pursue this option. All access to the existing Home and the new construction works will be from the existing access.

4.6 The site lies adjacent to the line of a Roman road and a controlled archaeological dig is required prior to development, with a watching brief during construction.

5. Development Plan

5.1 Havant Borough Local Plan 1994 shows the site as existing development within the defined built-up area for Emsworth. The proposed development accords with Policies GDD 1 (General Development Control) and ESC 11 (Rest and Nursing Homes).

6. Consultations

6.1 Havant Borough Council has no objection, subject to conditions, and requires a binding agreement being entered into to secure a financial contribution towards the Council's Green Transport Infrastructure Schemes (as referred to in the Revised Deposit Havant Borough District Wide Local Plan 1996-2001).

6.2 The local Member, Councillor Gillett, has been informed of the application.

6.3 The Highway Adviser has no objection in principle, subject to conditions.

6.4 In addition to the above formal consultation, the County Council project team held extensive pre-application consultations involving an initial public meeting on 27 May 2004. This was followed by meetings with immediately adjoining residents and has led to modifications to the scheme to accommodate, where possible, the views and/or concerns of the nearby residents. In particular this has led to significant changes to the design, to minimise overlooking from first floor windows, and to details of the landscaping to suit the wishes of immediate neighbours.

7. Representations

7.1 Five letters of concern/objection, including from Emsworth Residents' Association, and a petition of 42 signatures from local residents have been received. One letter of support has been received, although this has commented on issues of access, tree retention, etc. The main points of concern/objection raised are:

(i) against the use of Emsworth House Close (at its top end) as a route for heavy lorries to and from the building site. Consider should enter and exit alongside existing entrance;

(ii) extensive noise, including vibration from lorries and dust and dirt from the prolonged construction period will add to the detriment of the elderly residents of the Warden-controlled flats in Emsworth House Close;

(iii) mud on the road/pavements makes for hazardous conditions, particularly for the elderly, disabled and frail pedestrians;

(iv) `footprint' of proposed extension is too large and should be reduced;

(v) loss of trees and wildlife would detract from the environment; and

(vi) an independent bat survey should be undertaken before decision taken to remove trees.

8. Site Visit

8.1 In the light of local concerns, the Committee undertook a site visit on 23 August 2004 and met representatives from Havant Borough Council and local residents.

8.2 The Chief Planning Adviser described the application, which would provide for 48 additional bed-spaces at the Home, and explained the purpose of the site visit was to enable Members to view the location of the site in relationship to the adjoining properties in Park Crescent and Emsworth House Close. He advised that the majority of the objections received concerned two main issues: the closeness of the rear elevation of the new development to properties in Park Crescent and the proposed temporary vehicular access for lorries, which would be via the northern end of Emsworth House Close. The outline of the proposed extension, to be constructed in the garden to the north of the existing building, was indicated to those present. It was explained that the building would be two storeys in height, the walls being brick and timber-clad and that none of the new bedrooms would directly overlook the neighbouring houses in Park Crescent. It was the intention to retain as many trees on-site as possible. Although there would be some loss, additional planting would be carried out in mitigation to help screen the building.

8.3 In consideration of the objections raised concerning the parking problems, the Director of Property, Business and Regulatory Services advised that the plans had been revised and confirmed that it was no longer the intention to construct a temporary access into Emsworth House Close as originally proposed. It was now intended to use the existing entrance to Emsworth House and create a turning space for lorries on part of the front lawn area and to the side of the existing building. This would entail the removal of two smaller trees. An alternative sketch layout showing the proposed turning facility was shown to Members. The lawn and trees would be reinstated after completion of the building works.

8.4 Havant Borough Council had no objection to the proposal, subject to conditions, and welcomed the revised access arrangements. The proposal was supported by the Borough Councillors, whose main concerns were that any future disruption affecting the residents be handled sensitively.

8.5 Local resident Mr Lowes representing Emsworth Residents' Association welcomed the decision not to create a temporary lorry access in Emsworth House Close since this was a concern and was pleased with the new access arrangements. Mrs Ashe, representing residents in Nos 25 to 35a in Park Close, was especially concerned with the proximity of the building to the neighbouring properties at the rear of the site and with the loss of some of the mature trees. She queried the removal of tree No 188 indicated on the tree survey plan but not on another. She considered the removal of the mature tree could affect the potential for bat roosting as referred to in the Ecological Appraisal.

8.6 Members requested information on the amount of shadow which would be cast by the new building at the rear of the site during the year and its effect on the neighbouring properties. It was also requested that wherever possible those trees which had to be removed would be replaced with those of similar species.

9. Chief Planning Adviser's Comments

9.1 Emsworth House is an established residential care home within a defined built-up area of Emsworth where extensions to such properties are accepted in principle since it accords with the relevant policies in the Local Plan. The proposed extensions are in accordance with those policies.

9.2 The concerns/objections of local residents are noted. Following the Members' Site Visit, it has been agreed that the top end of Emsworth House Close will not be used and that provision for a lorry turning facility will now be constructed within the grounds of Emsworth House.

9.3 It is acknowledged that any construction site during actual operations will generate noise, dust, etc. It is understood from similar operations on a larger nursing care home works at Park Gate that the use of larger lorries is not intensive throughout the construction period. The number of lorry movements rises from two to three per day for the first two weeks to a maximum of 20 per day for weeks five and six of the work. This will drop to two or three lorry movements per day for the remainder of the project, rising temporarily to six per day for a two to three week period in the last quarter of the contract. Contractors' access during the refurbishments of the existing Home will be via the existing main entrance. Now that the lorry exit point at the top end of Emsworth House Close is not to proceed, the issue of lorry vibration is less likely to be noticed. The contractor will be required to maintain a site regime to ensure mud/spoil is not transmitted from the site onto the public highway. A planning condition to that effect will be applied to the consent.

9.4 It is acknowledged that the proposed extension is large when compared to local dwellings near to the site. However, the County Council has to provide on this site 48 bed-spaces with ancillary accommodation. Initially a 60 bed unit was intended for this site that would have made the extension even larger. The reduction to a 48 bed unit has been made in response to local concerns over the mass of the new building. The unit is the smallest size required to meet modern standards for accommodation of nursing care and is the lowest threshold that makes the scheme viable. It is not possible to reduce the footprint any further.

9.5 It is acknowledged that with a scheme as large as this one there will be loss of some trees, although as many as possible are to be retained. Additional planting of replacement trees will be carried out to mitigate the impact of the loss of the trees that are affected by the development. Such planting would form part of the landscape details to be submitted.

9.6 A bat survey was carried out before the application was submitted as part of an Ecological Appraisal of the site. Some potential for bat roosting was identified in two of the main trees but these are not trees which are to be removed. It was considered that in general the trees on the site are rather too well-managed to be of value to bats for roosting. Following the Members' Site Visit another survey will be carried out soon. It is hoped the results of this further survey can be reported at Committee.

9.7 In summary, the proposed development accords with planning policy and would be carried out on an existing residential care home site. Residents' concerns over the scheme have been considered and one of the main grounds for objection (lorries exiting the top part of the site) has been resolved. Havant Borough Council and Emsworth Residents' Association have no objection in principle and there is no objection from the Highway Authority. It is therefore considered that the proposed scheme provides the most suitable solution and it is recommended that planning permission be granted.

Recommendation

That planning permission in respect of new nursing care building and associated external works at Emsworth House, Havant Road, Emsworth, (Application No. 04/62485/001) be granted for the following reason and subject to the following conditions:

Reason for Approval

It is considered that the proposal would be in accordance with the development plan, would not materially harm the character of the area and would be acceptable in terms of highway safety.

Conditions

(1) The development hereby permitted shall be begun before the expiration of five years from the date on which this planning permission was granted.

Reason: To comply with Section 91 of the Town and Country Planning Act 1990.

(2) Samples and details of the facing materials to be used for the external walls and roofs of the proposed buildings shall be submitted to and approved by the Local Planning Authority in writing before the development commences.

Reason: In the interests of visual amenity and to secure a satisfactory development.

(3) Before any works are commenced on site, measures shall be taken to protect from damage those trees and hedges on the site that are to be retained. Such measures shall be maintained for the duration of the building contract works. No materials, whether from site clearance or construction works, shall be stored under the trees to be protected. Those trees to be removed shall be clearly marked with a paint band beforehand.

Reason: To ensure the enhancement of the development when built by the retention of natural features on the site.

(4) Before the major construction works are commenced on site, the new car parking spaces and associated turning areas shall be constructed to at least base-course level. Before occupancy of the new extensions, the parking/turning facilities shall have been final top-surfaced dressed, and thereafter be retained for that purpose.

Reason: To ensure that additional on-site parking is available to reduce the possibility of parking on nearby roads.

(5) Within two months of the start of the major construction works for the extensions, details of the proposed structure for the cycle spaces shall be submitted in writing and approved by the Local Planning Authority. The agreed details shall have been implemented and the cycle spaces made available for use before the new extensions are brought into use.

Reason: To secure a satisfactory development.

(6) Within two months of the start of the major construction works for the extensions, details of the proposed planting/any fencing shall be submitted in writing to and approved by the Local Planning Authority. The agreed planting details shall be implemented within the first available planting season following completion of the construction works for the new nursing care accommodation. The fencing shall be implemented before occupancy of the new extensions.

Reason: To secure a satisfactory landscaped development.

(7) Within three months of the full time occupation of the new nursing care accommodation, the draft Travel Plan as submitted with the application shall be implemented and thereafter reviewed on an annual basis.

Reason: To minimise trip generations associated with the development by the private car and encourage the use of alternative means of transport.

(8) Measures shall be taken to prevent mud and spoil from vehicles leaving the site during the construction works being deposited on the public highway. In the event that any mud or spoil is deposited on the highway, it shall be cleaned off on each day of working.

Reason: In the interests of highway safety.

(9) Before the major building works are commenced, a temporary turning facility for lorries shall have been provided on part of the southern lawn area of the existing Emsworth House. The temporary turning facility shall be constructed in length to take at least the length of an articulated lorry. On completion of the building works this temporary turning facility shall cease to be used and the land reinstated immediately afterwards.

Reason: To secure a proper temporary lorry facility within the site.

(10) A temporary car park to accommodate operatives' and construction vehicles during the construction period shall be made available within the site and retained for the duration of the building works.

Reason: In the interests of highway safety.

(11) Before development commences a visibility splay of 2.4 metres by 33 metres shall be provided at the junction of the site access and Emsworth House Close.

Reason: In the interest of highway safety.

(12) No work relating to the construction of the development approved, including works of preparation prior to operations, the delivery of construction materials, skips or machinery, nor the removal of waste materials, shall take place before 0800 hours or after 1800 hours Monday to Friday inclusive, before 0900 hours or after 1500 hours on Saturday and not at all on Sunday or recognised public holidays, unless otherwise agreed beforehand in writing with the Local Planning Authority.

Reason: To protect the amenities of occupiers of nearby properties.

(13) No development shall take place within the site until the applicant has secured the implementation of a programme of archaeological work in accordance with a written statement of investigation which has been submitted to and approved by the Local Planning Authority.

Reason: The site is of potential archaeological interest and to secure the need for a Watching Brief.

8885/ML