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

1. Summary

1.1 At the Regulatory Committee on 17 October, Members considered Report Item 9 for planning permission being sought for the construction of a new Synthetic Turf Pitch (STP) with weldmesh fencing, floodlighting and associated landscaping at Henry Beaufort School, East Woodhay Road, Harestock, Winchester. Following discussion and listening to deputations, it was agreed to defer the item pending a Site Visit on 12 November 2007, then report back to Committee on 28 November.

1.2 Notwithstanding the objections to the proposal, it is considered that the landscaping and acoustic fencing, with limitations to hours of use, make it on balance acceptable.

2. Recommendation

It is recommended that planning consent for the New Synthetic Turf Pitch, weldmesh fencing, floodlighting and associated landscape works at Henry Beaufort School, East Woodhay Road, Harestock, Winchester be granted for the following reason and subject to conditions set out in Appendix 1.

Reason for Approval

It is considered that the proposal would on balance be in accordance with the development plan (summary attached in Appendix 2) and would not unduly harm the character of the area or the amenity of local residents and would be acceptable in terms of highway safety.

3. Site

3.1 The existing school site (as shown on the attached plan) is situated on tiered levels of land between the northern and southern boundaries of its campus; the highest point being the southern boundary adjacent to Halls Farm Close. The site is within a primarily residential area to its north, west and south. The school buildings are situated on the western half of the site with school playing fields to the north (which also has hard-surfaced tennis courts) and east of these buildings. Following the eastern boundary of the school is the main B3420 Andover Road North; east of this highway is farmland.

3.2 There are two accesses serving the school; one from East Woodhay Road to the north and the other from Priors Dean Road to the south. Both these access points link into the school car parking areas. There are some trees within the school campus and hedging on its eastern boundary with Andover Road North. Adjoining this boundary, but on the highway verge, are several trees.

Proposal

3.3 The new STP would be constructed on the area currently used as a grass sports pitch in the north-eastern part of the campus. The new pitch will be approximately 100 metres long by 51 metres wide and would be surfaced in a synthetic grass suitable for football use, hockey training and other informal, supervised games activities. This area is at the lowest level of the terraced field and locating the STP here makes the best use of available field space, allowing the school to continue using the upper large terraced field for rugby, cricket and track athletics. In addition, it is possible to gain level access to the pitch by locating it here. The new pitch effectively replaces the natural grass pitch in size but is intended to provide a hard-wearing, free-draining and consistent play surface suited to the teaching of football and other games. As part of the submitted planning application, a Visual Impact Supporting Statement was included dealing with the visual impact of the STP development on neighbouring and surrounding areas based on short, medium and long distance viewpoints.

3.4 The proposed lighting level is to be maintained at 230 lux (the measure of illumination) because of the anticipated different sports to be played on the STP. The new STP will also have six 12 metre high floodlight masts, the light fittings of which will have internal baffles as standard. Masts on the northern edge nearest to neighbouring properties (most of which are bungalows at a lower land level to the school) will, in addition, have rear cowls fitted to the lanterns to prevent direct glare from them when in use. The addition of floodlighting enables the hours of use of the pitch to be extended into the evenings to maximise the number of community groups, particularly junior sport teams, for supervised coaching sessions. It is therefore proposed to allow evening play until 2115 hours on weekdays with a switch-off of the lighting at 2130 hours; Saturday play from 0900 to 1600 hours (switch-off at 1615); and Sunday from 1000 to 1600 hours (switch-off 1615).

3.5 A 3.6 metre high weldmesh fence is to be provided around the pitch, except on the eastern edge where it is close to the boundary with Andover Road North, where the fence will be 3.9 metres high. Soil removed from forming the STP would be used to create a two metre high earth mound adjacent to, but not physically touching, the north-eastern boundary. The mound would be planted with extensive deciduous and evergreen trees, supplemented with shrub and hedge planting to help screen the pitch from neighbouring properties and viewpoints.

3.6 Some stretches of the school boundary fence require reinforcement to prevent unwanted and unauthorised access into the school grounds adjacent to the proposed STP. It is therefore proposed to erect 2.2 metre high security fencing to restrict access from the garages on Buriton Road and from Andover Road into the school grounds.

3.7 Since the original submission and the site visit, some amended details have been submitted. These include clarification of the position and height of the mound, positioning of the acoustic fence and its specifications and an adjustment to hours of use. These details are shown on the attached plan and it is proposed to restrict the finishing time to 2115 hours during the week.

4. Development Plan

4.1 Winchester District Local Plan Review Adopted Plan July 2006 shows the overall school site, including its playing fields, as being within the defined urban area for Winchester. However, the existing school playing fields are also shown as having separate policies RT.1 (important amenity areas), and RT.2 (important recreational space). Other policies relevant to this application are DP.3 (general design criteria) and DP.4 (landscape and the built environment). See Appendix 2 for fuller details of these policies.

5. Consultations

5.1 Winchester City Council raised objection for the following reason:

"The proposal is contrary to Policies RT.1, DP.3 and DP.4 of the Winchester District Local Plan in that the landscaping detail and bunding are not considered appropriate for this site, and the zone of visual influence has not had regard to the character of the wider area and medium to long distance views from the north and east."

5.2 However, Winchester City Council "advises that the local planning authority do not object to the principle of development." (The Council's formal response had separate comments from its Landscape Team, expanding on the issues of the landscape.)

5.3 Littleton and Harestock Parish Council "fully supports and recommends the installation of a new synthetic turf pitch with fencing and floodlighting. The landscaping at the north end near to No.1 Andover Road is deemed essential, however it is felt that the proposed trees at the south end (Halls Farm Close) may not be necessary and should only be offered if requested by the residents after the pitch becomes operational."

5.4 Kings Worthy Parish Council "fully supports this application. There is a significant demand for a facility such as this within the area."

5.5 Sport England fully supports the proposal for the submitted planning application.

5.6 Environment Agency has assessed the proposal as having a low environmental risk.

5.7 Environmental Health Officer (Winchester City Council) has no adverse comments, but recommends a condition is attached to any consent requiring that use of the pitch is limited to between 0800 and 2130 hours.

5.8 The Highway Authority has no objection in principle, subject to conditions.

5.9 The local Member, Councillor Mrs Bailey, comments:

"This application will have particular impact on residents close to the site, nevertheless I support the application because: it will increase the opportunities for organised sports for the pupils of the school and for the wider community; there is a proven need for an all weather pitch and the supervision of players will be strong; the school has made every effort to involve and consult with local residents and has made many changes in response; the school has done its best to ameliorate the effects of the lighting particularly for the residents of No. 1 Andover Road North and the bungalows in Buriton Road."

5.10 The local Members for the adjoining local areas (Councillor Mrs Dickens and Councillor Mrs Porter) have been informed.

6. Representations

6.1 A total of 36 letters have been received, of which 13 are objections, although 5 of those objections are from residents at the southern end of the site (Halls Farm Close) which only object to the planting of trees near their respective properties; there are 2 letters expressing concern and 21 letters of support some of which are from local youth football clubs.

6.2 The main grounds of objection are:

(i) increase in noise causing disturbance to residents;

(ii) visual intrusion of the floodlights when in use;

(iii) use of the pitch at weekends should not be allowed and the finishing time should be by 1900 hours;

(iv) siting of the pitch in proximity to housing, an alternative site should be found;

(v) increase in traffic generation to and from the site;

(vi) the intervening planting will have little mitigating effect during the 5-6 months of the year when not in full leaf, coinciding with longest hours of use of the floodlighting; and

(vii) devaluation of property.

7. Report of the Site Visit

7.1 Some Members of the Regulatory Committee (Councillors Beagley, Bryant, Cartwright, Cooper, Gurden and Hockley, with Councillor McIntosh in the Chair) undertook a site visit on 12 November 2007 to the Henry Beaufort School. Councillor Charlotte Bailey, as Local Member, and Councillor Mrs Dickens, as adjoining local Member, were also present. Members met the Head Teacher, the Business Development Managers from Henry Beaufort School, representatives from Kings Worthy Parish Council and Littleton and Harestock Parish Council, Winchester City Council Members and a representative of some of the residents of Buriton Road.

7.2 The Head of Planning and Development introduced the application and outlined the key features of the proposed new synthetic turf pitch, floodlighting, fencing and landscaping at Henry Beaufort School. The Landscape Architect who had prepared the scheme on behalf of the school displayed a detailed plan and Members noted the extent of the proposals. Members viewed the site and walked across the playing fields to view the site from different perspectives.

7.3 The Landscape Architect advised that a two metre high earth bund would be built between the pitch and nearby houses and planted with an appropriate mix of evergreen and deciduous trees and shrubs to provide screening. It had been accepted that there would be a certain amount of disturbance, so in addition a 2.4 metre high acoustic barrier would be built. It would take ten years to achieve an appreciable benefit from the planting which by itself does not fully absorb noise.

7.4 Mr Palmer's house, one of those properties closest to the proposed STP, and the proximity to the proposed floodlight positions was pointed out to Members. Mr Dunn's house at 1 Andover Road North was also pointed out because the bedroom windows overlook the school playing field. The Landscape Architect advised that the height of the floodlights would be 12 metres high which meant that they could be directional. As the pitch was not full size, 15 metre high columns that are often used on sports pitches were unnecessary. Members were advised that modern fittings conform with the Institute of Lighting Engineers standards for rural areas and would reduce the glare to an acceptable level. Mr Sayle, acting on behalf of Mr Dunn, advised that Mr Dunn had commissioned his own lighting report and the consultants had advised that the height of three of the lighting columns should be increased to 15 metres to reduce the visual impact.

7.5 The Head Teacher advised that the new pitch would provide new secure fencing, tidy up the existing fencing, prevent trespass and reduce the amount of litter on-site.

7.6 Members noted that Mr Sayle had circulated, by email, three alternative options for the location of the proposed pitch. The Chief Planning Adviser pointed out that acoustic advice indicated that the proposed 2.4 metre high acoustic fence would have a reduction in noise impact at bedroom level of six decibels, which is appreciable.

7.7 The sketch alternatives submitted by the agent on behalf of Mr Dunn do not form part of the submitted planning application, and therefore are not a material consideration.

8. Commentary

8.1 The school site is within the defined urban area for Winchester and the current playing pitches are designated in the adopted Winchester District Local Plan Review as important amenity areas (Policy RT.1) and important recreational space (Policy RT.2) where restrictions apply for development.

8.2 The City Council concern about landscaping and the bund is noted. However, it is considered the two metre high earthworks would provide a useful function, not only to add an attractive landscape feature, but also to act as a partial noise barrier with planting. The intention is to heavily plant the area to the north and east of the proposed STP and, although details of such planting have not been submitted at this stage, they will be required to be approved. The proposed two metre high mounding will be created from the soil taken from the area of the construction for the STP, and will not be required to be removed from the site.

8.3 Some of the planting would be carried out on the mound to help reduce the visual impact of the new STP. However, it is acknowledged that, given the 12 metre height of the floodlighting columns, they will be visible to a certain degree even when the planting establishes itself. There is, however, a long distance viewpoint possible from a public footpath to the south-east of the school with partial glimpses of the fencing or lighting columns. Overall, it is considered the impact of the new STP development on views from this position is very low due to the intervening trees and hedges. The impact is anticipated to be further reduced with the establishment of the additional boundary hedgerow and tree planting.

8.4 It is noted that five of the 13 letters of objection received were from local residents whose properties adjoin the southern but highest part of the school campus. These five objected to having trees planted in front of their properties. Consequently, the proposed trees initially intended for that part of the site will not now be planted.

8.5 The remaining eight letters of objection were on the following grounds:

(i) Increase in noise causing disturbance to residents

It is acknowledged that any outside sports facility in use will generate some noise and disturbance. The proposed STP is to be constructed on the same area as the existing grass playing pitch. However, because the pitch would also be used after normal school hours, there is a potential for some additional noise to be heard. To help in reducing noise, an acoustic fence nearer to the bungalows in Buriton Road can be provided - a planning condition requiring details of this particular fence to be submitted for approval has been added.

(ii) Visual intrusion of floodlights when in use

It is accepted that, even with the best screening, including heavy planting, and because of the height (12 metres) of the lighting columns, when in use the floodlighting will be noticeable to some degree. In the case of the current application, efforts have been made to reduce as much as possible the potential intrusion of the lighting. The lanterns are of the latest design so that most of the light spill is directed down onto the pitch. Where necessary, extra baffles can be fitted to the back of the lanterns to reduce the light onto nearby properties. In addition, it is proposed to provide an earth mound with substantial planting to help reduce the potential intrusion.

(iii) Use of pitch at weekends should not be allowed and the finishing times during the week should be 1900 hours

In common with schools that have community sports facilities, the weekend use is seen to maximise the potential for locals to participate. However, it is acknowledged that additional use may cause some disturbance to local residents. The school has been working closely with the Hampshire County Council and Winchester City Council Sports Development teams, the Hampshire Football Association and the Football Foundation on the development of the STP. The proposed hours for weekend use (Saturday 0900 to 1600, Sunday 1000 to 1600) are normal hours for such an activity - see Appendix 3. The weekday hours are from 0900 to 2115. (The school was mindful of the neighbouring properties when deciding on the hours of use as originally it wanted the use to operate until 2200 hours.) In reality it is unlikely the pitch would be used until 2115 hours every night of the week, but is dependent on bookings.

NB - A schedule of recent planning decisions on STPs, etc with approved operating times is attached as Appendix 3.

(iv) Siting of the pitch in proximity to housing, an alternative site should be found

The school site is tiered with the sports pitches ranging from the higher terraced field in the southern part of the campus to the lower level field in the north. The STP could not be positioned on the higher terraced field without the school losing the space to mark out a running track/cricket pitch during the summer and a rugby pitch in the winter. The STP has been located on an area of school field that is currently used by the school and community groups for football, field sports and informal gathering of pupils at other times. This area is the lowest level of the terraced field and locating the STP here makes the best use of available field space, thereby allowing the school to continue using the upper large field. In addition it is possible to gain level access to the proposed pitch - this makes it easier for disabled players to have access to the facility.

(v) Increase in traffic generation to and from the site

Following a public information event on 24 May 2007, the school had noted that there was general concern about parking in East Woodhay Road. However, this is mostly an issue during the school day, in particular dropping off there in the morning. Since the main community use would be after the normal school day, it is considered there would be less traffic movement than at dropping off times. However, it is also acknowledged that there will be some additional noise from vehicles starting up after the use of the STP. A Traffic Appraisal indicated that current community users park at the top car park off Priors Dean Road. The Highway Authority has no objection to the proposed development subject to planning conditions.

(vi) Intervening planting will have little mitigating effect during the 5-6 months of the year when not in full leaf, coinciding with longest hours of use of the floodlighting

Although at this stage of the application details of the proposed planting have not been submitted, it is anticipated the combination of providing an earth mound with associated heavy planting to include some native evergreens, could help overcome this potential problem. Details of the proposed planting will need to be submitted for approval before the STP is brought into use.

(vii) Devaluation of property

This is not a relevant land planning matter although the objector's comments are noted.

8.6 The supporting text to the relevant planning policies of the Winchester District Local Plan Review Adopted Plan July 2006 recognises the importance of making playing fields owned by the local education authority available for use. The Local Plan considers such use of playing fields outside normal school hours makes an important contribution to meeting recreational needs. It is considered the application accords with the Local Plan policies.

8.7 The objections from local residents have been noted and comments in response to the various points have been discussed, including the Members' Site Visit on 12 November .

8.8 As a result of this, some changes have been made to further reduce the amenity impact. It is acknowledged that there is likely to be some disturbance to nearby occupiers given the proposed sporting activity, including the addition of floodlighting. However, it is also considered that, given the latest design of floodlights, light spillage from the proposed lanterns will be kept to a minimum. It is also considered that the development will provide a facility of wide community benefit. Beyond that, it is noted that the use is restricted and in reality will not be used for all the times it is permitted.

8.9 On balance the recommendation and conditions provide a proportionate balance between the need for the facility and local neighbour concerns.

1520/ML

APPENDIX 1

Conditions

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

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

(2) The trees and hedges to be retained shall be protected during building operations by the erection of sturdy protective fencing in strict compliance with the requirements of the Local Planning Authority relating to their protection. The existing trees shall not be lopped, topped, felled or destroyed without the prior approval in writing of the Local Planning Authority.

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

(3) Before the Synthetic Turf Pitch is brought into use, details of the proposed planting shall be submitted to and approved in writing by the Local Planning Authority. The agreed details shall be implemented as soon as possible following construction of the Synthetic Turf Pitch. Any new planting that dies within the first three years shall be replaced as soon as possible with similar species. In addition, the proposed earth mound to be formed shall only be constructed from clean top soil and sub-soil. In the event it is necessary to import additional soil, this shall be free from solid objects and contamination, including chemicals and builders' rubble.

Reason: In the interest of visual amenity and to help screen the Synthetic Turf Pitch from neighbouring properties, particularly on the northern boundary.

(4) Measures shall be taken to prevent mud and spoil from vehicles leaving the site during the construction works being deposited on the public highway. These measures shall be implemented before the development commences and thereafter maintained. No vehicle shall leave the site unless its wheels have been cleaned sufficiently to prevent mud being carried onto 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.

(5) 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 0830 hours or after 1600 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.

(6) There shall be no access to the development site by any traffic associated with the construction (ie no delivery vehicles, no contractors' cars, nor plant and machinery) in the morning between 0830 and 0915 hours and in the afternoon between 1515 and 1545 hours on normal school days.

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

(7) Unless otherwise approved in writing by the Local Planning Authority, the floodlights on the Synthetic Turf Pitch shall only be switched on when necessary and then only between the hours of 0900 and 2115 Monday to Friday, between 0900 and 1615on Saturday, and on Sunday between 1000 and 1615. In addition, the pitch shall not be used for sport or related activities after 2115 during the week and 1615 at weekends.

Reason: In the interests of amenity of neighbouring residents.

(8) Measures shall be taken to ensure that when the flood lighting is in use, it does not shine directly into drivers of vehicles using Andover Road North on the school's eastern boundary, nor shine directly into neighbouring houses. These measures shall include the addition of baffles fixed to the rear of the lantern housings.

Reason: To reduce further light spillage away from the sports court area.

(9) Before the new Synthetic Turf Pitch is brought into use, written details of a solid noise barrier, minimum height of 2.4 metres, shall be submitted to and approved by the Local Planning Authority. The noise barrier shall be installed on the school grounds from the proposed earth bund in a westerly direction, to the end of the proposed pitch and then to the existing tennis courts.

Reason: To help reduce noise exposure to those properties in Buriton Road which are closest to the site.

APPENDIX 2

Annexe to Reason for Conditions

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

(General Procedure) Order 1995 - as amended)

__________________________________________________________________

Winchester District Local Plan Review Adopted Plan July 2006

Policy RT.1 (Important amenity areas)

The development of buildings and hard surfaced areas will not be permitted within the open areas with an important amenity value defined on the Proposals and Inset Maps.

Where there are substantial existing buildings or hard surfaced areas adjoining and within the same curtilage as an important open area, additional buildings or extensions to the main building will only be permitted where:

(i) the use is related and ancillary to the function of the main building;

(ii) their location is well related to the main building;

(iii) the contribution of the open area to the character of the wider area is maintained or enhanced.

Policy RT.2 (Important recreational space)

Development proposals or changes of use will not be permitted where they would result in the loss or reduction of the recreational value of the important recreational areas within settlements which are subject to Policy H.3 of this Plan, as identified on the Proposals and Inset Maps. [Policy H.3 refers to housing development within Winchester and other settlements.]

Within these areas, the development of additional, ancillary buildings or hard surfaced areas will only be permitted where the Local Planning Authority is satisfied that the recreational value of the site would be maintained or enhanced. Any retained or replacement provision would need to be of at least equal community benefit, in terms of the facilities provided, potential use, location, suitability and availability.

Policy DP.3 (General design criteria)

Development which accords with other relevant policies of this Plan will be

permitted, provided it:

(i) makes efficient and effective use of land or buildings;

(ii) in terms of design, scale and layout, responds positively to the character, appearance and variety of the local environment;

(iii) keeps parking provision to a minimum;

(iv) provides for ease of movement and local `permeability';

(v) maximises access to public transport;

(vi) facilitates the development of adjacent sites;

(vii) does not have an unacceptable adverse impact on adjoining land, uses or property;

(viii) includes within the development sufficient amenity and recreational space, appropriate to its size, design and function;

(ix) makes appropriate provision for the storage of refuse and recyclables.

Policy DP.4 (Landscape and the built environment)

In order to maintain or enhance the District's townscape and landscape, development will not be permitted where it would detract from, or result in the loss of:

(i) important public views and skyline features, both in the immediate vicinity and long-range, where site analysis identifies these as being of recognised importance;

(ii) slopes;

(iii) trees and hedgerows;

(iv) open areas important to the townscape or the setting of buildings, including Listed Buildings;

(v) the landscape framework.

APPENDIX 3