Contact: Karin Taylor, ext 5938 email: [email protected]

1. Summary

1.1 This application concerns the extension of a school building and a hard play area in the centre of Alton adjacent to St Lawrence Church, a Grade 1 Listed Building. The land is within the historic churchyard and the proposed development raises issues relating to impact on townscape and archaeology and on neighbouring dwellings. The proposal was on the agenda of the March meeting of this Committee. Consideration of the application was deferred pending a site visit. The recommendation is to approve the application subject to conditions.

2. Site

2.1 St Lawrence Church of England Primary School is located in the centre of Alton adjacent to St Lawrence Church (see attached plan). The school is within the historic churchyard with road frontage on Amery Hill. Amery Hill School is immediately opposite, and to the south-west of the primary school buildings is School Cottage, now in private ownership.

3. Proposal

3.1 The proposal is for an extension to the existing primary school buildings and to the hard play area.

3.2 The extension to the buildings comprises a new hall, kitchen facilities and an associated link building. These are located in the existing playground and are designed as a continuation of the existing buildings. New brick walls will be used to link with the wall to the churchyard and complete the enclosure of the original churchyard.

3.3 The new hall has been designed with brickwork walls to match the existing school and with a natural slate roof. The eaves have been kept as low as possible and the pitch decreased to be in keeping with the existing building reducing the overall bulk and minimising its impact on the existing trees, which will be retained. The kitchen will be located at the end of the hall. It has been designed with a high performance shallow roof with a parapet (an upstand around the top of a wall) and feature glazed lantern to maximise views over the building towards the church, particularly from neighbouring cottages. Metalwork gates will link the kitchen to an external bin area enclosed with a brick wall. The gates will allow further views of the church and will be used for occasional access for maintenance.

3.4 The building extensions will replace a temporary classroom, which will be removed from the site. Since an area of playground will also be lost, it is proposed to extend the hard play area adjacent to the main school building. This will fall within the current school site and will not encroach further into the churchyard. It will provide the minimum required hard play area.

3.5 The current planning application is a revised version of an earlier proposal, which was withdrawn. The previous application included the extension of the school's playing field into the churchyard, a pitched roof on the kitchen extension and a higher pitched roof over the new hall. The amendments have been made following detailed consultation with district council officers.

3.6 It is not proposed to increase staff or pupil numbers at the school. The extensions are required only in order to improve facilities and to provide a hall, which the school currently does not have access to.

3.7 Amended plans were submitted on 25 February 2005 to rectify an anomaly with the elevations on the plans originally submitted, but this does not affect the overall design or impact of the proposal.

4. Development Plan

4.1 Hampshire County Structure Plan Review, 1996-2011: policies UB3 (all development to be appropriate to its surroundings); ED1 (development for educational purposes); E14 (archaeological sites) and E16 (development in historic towns and villages) are relevant.

4.2 East Hampshire District Local Plan First Review: policies GS5 (development criteria); ENV15 (protection of the historic heritage); ENV16 (Conservation Areas); ENV22 (archaeology); PS1 (buildings for community services) and PS3 (proposals for the development of essential public services) are relevant.

5. Consultations

5.1 East Hampshire District Council has objected to the application for the following reasons:

(i) The proposed extension, and in particular the modern design flat roofed element at the eastern end, seriously detracts from views (from Church Street) across the churchyard to the adjacent grade I listed St Lawrence Church. Furthermore, the use of the flat roofed element would emphasise the bulk and mass of the main hall extension. As such, the proposal is considered to be contrary to Policies ENV15, ENV17 and ENV19 of the East Hampshire District Local Plan: First Review.

(ii) The proposed additional area of hard surface would detract from the character of the churchyard and the setting of the adjacent grade I listed St Lawrence Church contrary to Policies ENV15, ENV17 and ENV19 of the East Hampshire District Local Plan: First Review.

5.2 Alton Town Council is pleased to see improvement to a successful, growing and popular local school, but regrets that the expansion will result in new buildings not totally sympathetic to either the Conservation Area or the setting of the Grade 1 listed St Lawrence Church. The Town Council notes that the only amendment to this application is the exclusion of any plans to further enclose part of the churchyard, currently designated public open space, for educational purposes. To this end, the Town Council expects that any subsequent plan to enclose part of the churchyard for this purpose will follow the normal full consultation process.

5.3 The local County Councillor, Councillor Ludlow has been consulted.

6. Representations

6.1 Two letters of objection have been received from neighbouring residents. The letters raise the following concerns:

(i) the extensions will be obtrusive and will obliterate views;

(ii) the design is unattractive;

(iii) overdevelopment of the school site;

(iv) there is no need for additional expense when there are sufficient facilities at the school;

(v) value of neighbouring property will be affected;

(vi) nuisance caused by delivery vans and kitchen smells;

(vii) the emergency access will be on a dangerous corner;

(viii) there is no need to disrupt a busy congested area further;

(ix) what plans are there for the preservation of the beech tree;

(x) the fact that no further encroachment of public open space is now proposed is welcomed, but the school has already encroached into the churchyard several times;

(xi) the open space should be protected;

(xii) the demolition of the historic boundary wall is unjustified; and

(xiii) members of the public would be unable to visit graves.

6.2 One letter in support of the proposals has been received along with 90 signed copy letters also in support.

7. Report of Site Visit

7.1 In the light of local concerns, the Committee undertook a site visit on 11 April 2005 and met representatives of East Hampshire District Council, Alton Town Council, local representatives and the applicants.

7.2 The Chief Planning Adviser introduced the application and explained its key features. The Director of Property, Business and Regulatory Services' representative, on behalf of the applicant, explained in detail the dimensions of the proposed extension, its general layout, the materials to be used, and the measures to be taken to protect views from the adjoining properties to the church, and to safeguard the beech trees closely adjacent. He drew particular attention to the amendments made to an earlier application, following detailed consultations with East Hampshire District Council, to lower the height of the pitch roof over the proposed new hall.

7.3 East Hampshire District Council outlined proposed amendments which, it considered, would reduce the bulk and mass of the main hall and extension, and provide a more aesthetically pleasing appearance; it was noted that to change the scheme in this way would require a fresh application.

7.4 Councillor Ludlow, the local Member, was unable to attend the site visit due to an important prior commitment but by e-mail requested Members to note the scale of the school and the church and the distance between them, and asked that the design of the school building should be complementary to the church and nearby buildings.

8 Chief Planning Advisers Comments

8.1 The main issues can be summarised as follows:

(i) design;

(ii) impact on residential amenity;

(iii) access; and

(iv) impact on public open space.

Design

8.2 The plans previously submitted have been amended in order to address the concerns of nearby residents whose view will be affected by the new extension. The overall design of the extensions aims to unite the different building elements currently on the site, using the same materials. The flat roof over the kitchen would be partially obscured by the parapet and would be alleviated by a glazed lantern.

Impact on Residential Amenity

8.3 The proposed extension will have an impact on the views from Nos 1 and 2 Gothic Cottages but the church will still be visible above the wall and kitchen extension and through the gateway. It is considered that the proposed flat roof and parapet on the kitchen extension will be less obtrusive than the pitched roof proposed by East Hampshire District Council would. Refuse bins will be kept within a walled enclosure and should not cause any nuisance to surrounding properties.

Access

8.4 Use of the gateway will be limited to occasional access only for maintenance purposes and is not, therefore, expected to cause significant disturbance or disruption. Public access to the school will be unaltered.

Impact on Public Open Space

8.5 The previous proposal to extend the soft play area of the school into the churchyard has been withdrawn as far as the current planning application is concerned. The current proposal is to extend the hard play area within the school site. Porous tarmac will be used as the existing trees are to be retained.

8.6 A previous extension of the school playground into the churchyard was carried out by means of a Faculty granted by the Diocese in 1992. The existing railings were added at about that time and did not require planning permission as they do not abut a public highway and are under 2 metres in height. The Faculty was valid for a 12 year period and is under review in association with the current proposal for works at the school.

Conclusion

8.7 Notwithstanding the comments of East Hampshire District Council it is considered that the design of the building is an acceptable compromise between the desire to retain views, the preference of the District Council for a pitched roof over the kitchen extension, and the need to improve what are currently substandard conditions at a thriving and popular school. Accordingly it is considered that the merits of the proposal outweigh the possible impacts on local amenity and that planning permission should be granted subject to conditions.

8.8 Due to the historic nature of St Lawrence Church the area is of considerable archaeological potential. A preliminary archaeological investigation has been undertaken and it is recommended that the area be stripped under the supervision of a qualified archaeologist prior to development. No graves are evident within the application area, but any uncovered during groundworks would also have to be fully excavated by an archaeologist.

Recommendation

That planning permission in respect of an extension to the existing Primary School to provide a new hall, kitchen facilities, a link building and an extension to the hard play area at St Lawrence Church of England School, Amery Hill, Alton (F20532/012/REG3) be granted for the following reason, subject to the following conditions:

Reason for Approval

It is considered that the proposal would be in accordance with the Development Plan (summary attached) and would not materially harm the character of the area or the amenity of local residents and would be acceptable in terms of highway safety and convenience.

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/or details of the materials and finishes 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 development commences, details of the following aspects of the development shall be submitted to and approved by the Local Planning Authority.

(i) the materials to be used for paved and hard surfaces; and

(ii) the proposed alignment, height, materials and finish of all walls and fences and other means of enclosure.

Reason: To ensure that due regard is paid to the amenity, educational and nature conservation benefits afforded by the continuing enhancement of the natural landscape features.

4. The trees to be retained shall be protected during building operations in accordance with the guidance given in Method Statement, Development Site Tree Survey and Drawing No. 03054 (AP) 10.05 Rev A as amended with tree details.

Reason: To ensure the enhancement of the development by the retention of natural features.

5. No development shall take place within the application area until the applicant has secured the implementation of a programme of archaeological work in accordance with a written scheme of investigation which has been submitted by the applicant and approved by the planning authority.

Reason: In the interests of archaeology.

6. There shall be no access to the development site by any traffic associated with the construction/demolition (ie. no delivery vehicles, no contractors' cars, nor plant and machinery) in the morning between the hours of 0830 and 0915; and in the afternoon between the hours of 1500 and 1545 on normal school days.

Reason: In the interests of public safety, to avoid traffic conflict at the times of the day when pupils are arriving at and departing from school.

7. 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 the 0800 or after 1800 Monday to Friday inclusive, before 0800 or after 1400 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.

APPENDIX

Annexe to Reasons for Conditions

(as required by Article 22 of the Town and Country Planning

(General Procedure) Order 1995 - as amended)

__________________________________________________________________

Policy UB3

All development permitted in accordance with other policies of this Plan should be appropriate in design, scale, layout and density to its surroundings, and contribute to the quality of the built environment.

Policy ED1

Development and redevelopment, which would maintain and enhance the provision of educational facilities for higher education and further education will be permitted provided such development:

(i) takes place within the built-up areas as defined in local plans;

(ii) when appropriate is well related to existing higher and further education facilities;

(iii) respects the scale and nature of the local townscape, particularly the setting and buildings of architectural or historic interest;

(iv) can be well served by public transport, walking and cycling (as part of a campus transport strategy); and

(v) only exceptionally results in the net loss of existing dwelling stock.

Policy E14

Where nationally important archaeological sites and monuments, whether scheduled or not, and their settings are affected by a proposed development, there will be a presumption in favour of their physical preservation in situ. The need for the preservation of unscheduled sites of more local importance will be considered on merit. Where preservation is not possible then, before planning permission is granted, it should be demonstrated that appropriate arrangements have been made for a programme of excavation and recording prior to development taking place.

Policy E16

Development in accordance with other policies in this Plan will be permitted in and adjacent to historic towns and villages provided that it is compatible with the character of the area and its setting and will not cause demonstrable harm to interests of acknowledged importance. Particular attention will be paid to:

(a) the scale, mass and design of new buildings or structures;

(b) infrastructure and servicing requirements;

(c) traffic generation and pollution;

(d) movement and access within the historic core of settlements;

(e) the character and appearance of listed buildings and their settings and conservation areas which shall be conserved or enhanced; and

(f) open spaces and views into and out of historic areas.

9265/KT