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

1. Summary

1.1 Planning permission is sought for the retrospective change of use from a former Infant School to office use by the Children's Services Department at the Rookwood Centre, Penshurst Way, Eastleigh. Objections have been received from Eastleigh Borough Council and nine letters of concern/objection received from local residents including one from the Boyatt Wood North Residents' Association. Notwithstanding the objections, planning permission is recommended.

2. Site and Proposal

Site

2.1 The site comprises a former school building at the eastern end of Penshurst Way (a cul-de-sac) in the north west quadrant of Boyatt Wood, an extensive housing estate built during the 1970s and early to mid 1980s (See attached location plan). There are houses on the western, south-west and south-east boundaries of the site. To the north is open space backing on to Woodside Avenue. Beyond the school building is the former school playing field and beyond that more housing. There are mature trees and bushes on the site boundaries. The existing parking area within the former school grounds can accommodate up to 28 car spaces.

Background

2.2 The school was built in 1980 to cater for the young children living in the new housing development at Boyatt Wood. Over the years, falling pupil numbers eventually led to the Infant School finally closing in July 1997. The building was used for a short while during August 1997 as a temporary office by the Samaritans Purse International but then left vacant until August 2003 when it was partly damaged by fire. At that time there was an intention to re-use the building for further County Council purposes but it was undecided at the time as to what use. Following refurbishment works including some building works after the fire damage, the building was used for temporary office and storage accommodation by the Hampshire Music Service and the Hampshire Youth Service - functions of the Children's Services (previously the Education Department). After some further internal refurbishments, the use has now become permanent office accommodation with ancillary storage for both of those Services. The site is now known as the Rookwood Centre.

Proposal and Current Uses

2.3 Since the use by the Hampshire Music Service and Hampshire Youth Service has evolved into permanent operations, planning consent is required to regularise the use.

2.4 The Rookwood Centre is the base for the Hampshire Music Service's management and administration functions. It also provides storage for music technology equipment and instruments. On a daily basis, about 15 people work in the Centre with another 10 using it as an office base coming in approximately three times a week at varying times of the day for part of the day. One of two teachers may drop-in and visit about twice a week. Most staff within the Music Service work between 8am and 5.30pm (with occasional evening meetings, about four times a year until 8pm).

2.5 The Centre also hosts the Training and Development Team of the Hampshire Youth Service comprising of 11 full time officers. There are also four full time equivalent (FTE) staff who belong to the Eastleigh District team of Youth Workers working closely in partnership with Eastleigh Borough Council's Area Co-ordinators and local schools. Out of the 15 staff, five are administrative working 8.30am to 5pm daily; the remaining 10 spend an equivalent of full time hours for only three people at their desks preparing/arranging training courses and performing general admin functions. Training courses, which are mostly held in the evenings, take place at Rookwood and are usually finished by 10pm.

3. Development Plan

3.1 Eastleigh Borough Local Plan Review (2001-2011) [adopted May 2006] shows the site as existing development (the shape of the school building but not annotated) within the defined Urban Edge. The relevant Policies are 59.BE (Development proposals), 134.TC (Out-of-centre or edge-of-centre uses).

3.2 Hampshire County Structure Plan 1996-2011 (Review) (adopted 2000). Policy UB1 (Urban regeneration).

4. Consultations

4.1 Eastleigh Borough Council objects to the retrospective application for the following reasons:

(i) The proposal based on the limited information provided would result in unacceptable harm to the amenities of the surrounding residential area and be harmful in terms of highway safety and the additional vehicle movements generated by the proposal. The proposal would thereby be contrary to the provisions of policy 59.BE and 134.TC of the Eastleigh Borough Local Plan Review (2001-2011).

(ii) The proposal based on the limited information provided fails to demonstrate if there any suitable and available sites or premises for the use within an existing centre or edge of centre location and if the site is genuinely accessible by a choice of means of transport and will reduce reliance on the car and will not increase the need to travel overall. The proposal is therefore contrary to the provisions of policy 134.TC of the Eastleigh Borough Local Plan Review (2001-2011).

4.2 Highways Adviser has no objection in principle but considers that 28 marked car parking spaces should be provided. The Adviser considers that the on-site turning facility for service vehicles and deliveries be maintained for that purpose so that vehicles enter and exit the site in a forward gear. In addition it is recommended that attendees and staff are provided with an information pack on how to get to the site, to encourage advantages of car sharing and, to discourage parking on the road (Penshurst Way).

4.3 The local Member Councillor Davies-Dear has been informed.

5. Representations

5.1 At the time of preparing this report, eight letters of objection/concerns and one letter from the Boyatt Wood North Residents' Association have been received. The grounds of objection/concern are:

(i) letters about the application should have been sent to every address in the area;

(ii) increase in traffic using Penshurst Way since the use of the building as offices has established, and speed of traffic along this relatively narrow residential road;

(iii) another access route to the site should be found in order to reduce traffic along Penshurst Way;

(iv) lorries have had to reverse from the site along this road causing danger to others;

(v) recent accident at junction of Penshurst Way with Broadlands Avenue caused Penshurst Way to be closed for some time; and

(vi) the building should be re-used as a school not offices.

6. Chief Planning Adviser's Comments

6.1 The County Structure Plan and the recently adopted (May 2006) Borough Local Plan both encourage the re-use of sites within urban areas. In the case of the current application the site is within the defined "Urban Edge" for Eastleigh as indicated in the adopted Borough Local Plan. Therefore in principle, there is no objection to the proposed change of use.

6.2 The Borough Council's objections on policy grounds are noted. Policy 134.TC of their Local Plan refers to out-of-centre or edge-of-centre development for uses more appropriate within a town centre. The site comprises a former redundant building albeit not in a town centre. Its re-use is consistent with sustainable development objectives. It is not considered the office use would cause loss of viability with Eastleigh Town Centre. In terms of transport, the site is approximately a quarter of a mile from a regular bus service route in Broadlands Avenue. However, the nature of the Music and Youth Services means that staff operating from the Rookwood Centre means that public transport will not always be a viable option.

6.3 In terms of the letters of objection/concerns from local residents and the Boyatt Wood North Residents' Association all properties within 50 metres of the application site were notified including 24 properties in Penshurst Way. It is acknowledged there may be some increase in traffic movement along Penshurst Way as a result of the development at the Rookwood Centre and that neighbours were disturbed by construction traffic when the buildings were being refurbished. However, the Highway Adviser considers under the current operations as an office use, the traffic movements generated are less than those generated previously when the site was a school.

6.4 In terms of the other comments: there is no alternative access to avoid traffic along Penshurst Way: lorry problems associated with previous building work are acknowledged but some of the problems also arise from on street parking by local residents. There is a vehicle turning area within the former school site which is now accessible; the recent accident at the junction of Penshurst Way with Broadlands Avenue was not attributed to any staff from the Rookwood Centre; and it would not be viable to re-open the site as a school, given that it closed due to a previous lack of pupil numbers.

6.5 In summary, the objections/concerns have been addressed. It is acknowledged that access to the Rookwood Centre uses a residential cul-de-sac and that at times the width of the highway is reduced by some residents' on-street parking. However, the Highway Adviser has no objection in principle to the use of Penshurst Way to serve the Centre and considers that overall; traffic generation for the office use is less than would be for the previous Infant School. There are no other suitable premises that could have been used to accommodate the office use; the use exists within the defined "Urban Edge" where office uses are generally located. Therefore, it is considered the proposal accords with the adopted Borough Local Plan. On balance, planning permission is recommended for the retrospective office use.

Recommendation

That planning permission in respect of retrospective change of use from Infant School to Office Use for Children's Services at Rookwood Centre, Penshurst Way, Eastleigh, SO50 4RJ (Application No. S/06/57789) 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 (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

Conditions

(1) No later than one month from the date of this planning permission, the existing car parking area within the site shall be marked out to a maximum of 28 parking bays. In addition, the existing turning area at the north-eastern part of the site shall be made more prominent on the ground by it being appropriately marked out. The parking bays and turning facility shall be retained for that purpose at all times.

Reason: To ensure that the site has a properly marked out parking and turning facility and in the interest of highway safety.

(2) Any evening meetings held at the Rookwood Centre shall be finished no later than 2215 hours.

Reason: In the interest of amenity of occupiers of those properties closest to the site entrance when vehicles are leaving the premises.

1079/ML

Annexe to Reasons for Conditions

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

(General Procedure) Order 1995 - as amended)

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Hampshire County Structure Plan 1996-2011 (Review) [adopted 2000]

Policy UB1 (Urban Regeneration)

Priority will be given in local plans to policies and proposals which achieve urban regeneration by (inter-alia):

(i) the redevelopment of derelict, outworn or underused land or buildings;

(ii) an appropriate mix of land uses and activities, particularly in town centres and residential areas

Eastleigh Borough Local Plan Review (2001-2011) [adopted May 2006]

Policy 59.BE (Design criteria)

Development proposals which are in accordance with the other policies in this plan will be permitted provided they meet (inter-alia) the following criteria:

(i) they take full and proper account of the context of the site including the character and appearance of the locality or the neighbourhood and are appropriate in mass, scale, materials,, layout, design and siting, both in themselves and in relation to adjoining buildings, spaces and views, natural features and trees worthy of retention;

(ii) they make the most efficient use of the land;

(iii) they have a satisfactory means of access and layout for vehicles, cyclists and pedestrians including appropriate links to surrounding footpaths, cycleways and public transport services;

Policy 134.TC (Edge-of-Centre or Out-of-Centre Development)

Out-of-centre or edge-of-centre development for retail, leisure, offices or other town centre uses will only be permitted if it meets all the following criteria;

(i) there is a demonstrable need for the development;

(ii) there is no suitable, viable and available sites or premises for the proposed use within an existing centre or edge-of-centre location (in that order of preference) having demonstrated realistic flexibility on format, design and car parking provision and the scope for disagregation;

(iii) it will not by itself or cumulatively with other recently completed or permitted schemes undermine any Council's strategy to sustain and enhance the vitality and viability of existing town centres and the roles of other centres;

(iv) it is genuinely accessible by a choice of means of transport and will reduce reliance on the car;

(v) it will not increase the need to travel overall.