Archived decisions

Decision Maker:

Regulatory Committee

Date of Decision:

22 April 2009

Decision Title:

Applicant: Hampshire County Council

Construction of a Synthetic Turf Pitch with floodlighting, two additional tennis courts, new fencing around synthetic turf pitch and new/existing tennis courts at Portchester Community School, White Hart Lane, Portchester, near Fareham (Application No. P/09/0075/CC) (County Council Ref: FAE 014)

Decision Reference:

640

Report From:

Head of Planning and Development, Environment Department

Contact name:

Martin Leeds

Tel:

01962 846733

Email:

[email protected]

EXECUTIVE SUMMARY

1) Background:

1.1. Portchester Community School, White Hart Lane, Portchester has a need to improve its existing sports facilities and provide an accessible court area for disabled persons. In order to provide these additional facilities it is necessary to have an all-weather floodlit sports pitch and extra tennis courts. A planning application has therefore been submitted for a synthetic turf pitch, associated lighting, new courts and fencing.

1.2. The Football Foundation recently stipulated that synthetic turf pitch facilities which are to be jointly funded will be refused funding if minimum operating times are not achieved for at least 85 hours per week, of which the community must have priority access for at least 35 hours per week. This is the reason for the hours of use in this proposal.

2) Issues:

2.1. Existing community school within a relatively high density residential area with housing on west, north and eastern boundaries of the school campus which is particularly close to the existing school playing field area.

2.2. Only one means of combined vehicular/pedestrian access to the site - from White Hart Lane - and it is not possible to provide an additional or alternative access elsewhere.

2.3. Limited area on the school campus for outside sports.

2.4. An underground main sewer crosses the playing field in an east-west direction, making it very difficult because of easements to provide hard play area for sports facilities.

2.5. Principle of providing community facilities at this school (and other large schools in the Fareham area) is acknowledged in the adopted Borough Local Plan.

2.6. Receipt of objections from local residents - see under section 5 of the Main Report for the grounds of objections.

3) Recommendations:

3.1. That planning permission in respect of construction of a synthetic turf sports pitch with floodlighting, two additional tennis courts, new fencing around the synthetic turf pitch and new/existing courts at Portchester Community School, White Hart Lane, Portchester, near Fareham (Application No. P/09/0075/CC) be granted for the following reason, subject to the conditions in Appendix 1.

4) Reason for Decision:

4.1. It is considered that the proposal would be in accordance with the development plan (summary attached as Appendix 2) and would not materially harm the character of the area. In addition it is considered that the proposed development would be acceptable in terms of highway safety. Finally, the acknowledged impact on local residential amenity is considered insufficient to outweigh the merits of the proposal.

1) Site:

1.1. The existing community school and its associated sports field (as shown on the attached plan) is approximately 0.79 hectare in total and is within a relatively large residential area. The school buildings are situated in the southern half of the campus whilst the sports field is adjoining and due north of those buildings. There are two public footpaths bordering the school playing fields and the houses and their gardens adjoin the footpaths. There are a few trees on the boundary of the sports field.

1.2. Access to the school is from the one vehicular/pedestrian entrance off White Hart Lane to the south; this access also serves the school's car parking area. White Hart Lane is on a regular bus route.

2) Proposals:

2.1. Synthetic Turf Pitch It is proposed to construct a synthetic turf pitch (STP) 70 metres by 52 metres (3,640 square metres) with six 12 metre high floodlighting columns and have rebound and ball-stop weld mesh fencing, including an integral acoustic barrier. The pitch will be surfaced in a synthetic grass suitable mainly for football use but is capable of being used for other informal supervised games activities. It is also intended to construct 4 metre high weld mesh fencing around the STP and include associated drainage works and access footpaths.

2.2. The STP has been located on an area of school playing field furthest away from the surrounding housing but very close to the main school buildings. In addition there is a need to avoid disturbing a main sewer which crosses the existing school playing fields. The STP in the position proposed makes the best use of available field space, allowing the school to continue using the rest of this space for rugby, hockey and track athletics. The new pitch is intended to provide a specialist football training facility for the school and local clubs. Grant support is being discussed with the Football Federation and Fareham Borough Council.

2.3. Tennis Courts/access paths As part of the development two new tennis courts are to be constructed (31 metres by 36 metres: 1,116 square metres) of bitumen macadam surface and surrounded by a 3 metre high weld mesh fence with access gates. These courts would be adjacent to the STP and are in this position to contain the development within a compact area close to school buildings. The courts are not specifically to be floodlit.

2.4. In order to preserve the synthetic surface of the STP, it is important to reduce the amount of mud and grass carried onto it by players, therefore it will be necessary to extend the surfaced footways around the pitch and to make easier access to and from the changing rooms.

2.5. Floodlighting Six 12 metre high floodlighting columns are required for the STP and this will allow the pitch to be used in the evenings to maximise the use by a number of community groups for supervised training sessions. The modern lanterns used on the columns are designed to reduce light spillage as much as possible outside of the designated lit area for the pitch. This is because the lanterns are fitted with internal baffles which re-direct the light to where it is needed on the pitch rather than directing it into the sky. From the supporting lighting plan submitted with the application, the lowest level of light (2 lux) just reaches the two footpaths, one to the west, the other to the east, where they adjoin the school's campus. The 2 lux level is the equivalent to that of moonlight. It is not intended to have floodlighting for the two new tennis courts. In addition, to help off-set some of the effect of the lighting columns and the STP, it is intended to provide tree planting near the facility and also to some of the more visually open spaces on the site's boundary.

2.6. It is proposed to allow evening play until 21:45 hours on weekdays with the lighting being switched off at 22:00 hours. For Saturday, play is from 09:00 hours to18:30 hours, and for Sunday from 10:00 hours to 16:45 hours. Similarly, there will be a 15 minute lighting limit after the respective end times for Saturday and Sunday. The lighting scheme has been designed to allow for part illumination when only part of the pitch is in use.

2.7. Parking The existing vehicle access from White Hart Lane serving the school will not be altered. Construction traffic will be carefully controlled to avoid school start and finish times, and contractors would be required to comply with requirements to minimise dirt and noise nuisance while excavated soil is removed from the site. Contractors will have their parking and compound area close to the site of the STP.

2.8. On completion of the STP and tennis courts, vehicles arriving at the school bringing STP users will be directed to use the existing car parking area situated at the front of the school. There is sufficient parking provision on this main car park to accommodate visitors to the STP after school hours. Coaches or mini-buses will also park on this area but it is not envisaged coaches will bring users on a regular basis. A new accessible parking bay will also be marked out at the end of the existing school service road on the west side of the school.

2.9. Access The school already caters for a number of pupils with poor mobility and has accessible toilets and level thresholds throughout the school site. As part of the works for the new sports facility, it is intended to provide an accessible footpath with low-level lighting between the existing school path network and rear playground leading around the east side of the school to the main STP. Access from this path to the changing rooms within the school building will meet the current standards required for persons with mobility problems. The threshold entrances to the pitch will be level and the pitch surface will be suitable for access to spectators in wheelchairs and be fully accessible to ambulant disabled persons. Emergency vehicles would be able to reach the playground and proposed tennis courts via two 4 metre double gates.

2.10. Tree planting It is proposed to plant additional native trees to partially screen the weld mesh fencing and the floodlights from neighbouring properties and viewpoints. It is proposed to plant eight native trees around the northern corners of the pitch, and a further number along the western and eastern boundaries of the school site.

3) Development Plan:

3.1. Fareham Borough Local Plan Review (2000) shows the site as an existing school with playing fields in the defined urban area for Portchester. The relevant Policies are: R1: Recreation, Leisure and Tourism in the Urban Area, R3:Protection of Existing Open Space; DG1:Environmental Impact; DG3: Impact on the Surrounding Area.

4) Consultations:

4.1. Fareham Borough Council comments: "Whilst in principle this Authority has no objection to the proposal, there is concern that the floodlighting and the prolonged period of play that this lighting would facilitate could cause detriment to the amenities of neighbouring residential properties by virtue of noise, disturbance and light pollution."

4.2. In addition, the Borough Council considers since "the application site is within close proximity to a number of residential properties, that the continual use of floodlighting throughout the week would be likely to impinge on the reasonable enjoyment of these properties that the occupants would expect to enjoy."

4.3. Corporate Manager, Street Lighting considers the lighting proposals fulfil the requirements of the Street Lighting Policy document and that there are no road safety implications.

4.4. Highway Authority has no objection in principle subject to conditions.

4.5. Sports England has no objection subject to conditions ensuring the high quality of the new and enhanced sports facilities.

4.6. The local Member, Councillor Price, has been informed.

5) Representations:

5.1. To date, 11 individual letters and two petitions have been received. The grounds of objection/concern are:

(i) increase in noise once the pitch is in use leading to further disturbance to local residents;

(ii) unauthorised use of the existing playing field outside school hours with consequential further unauthorised usage and the accompanying bad behaviour/bad language likely to arise with the new sports pitch;

(iii) increase in use to 10 pm is not acceptable and should be limited to much earlier finish;

(iv) increase in traffic using an already well-trafficked road (White Hart Lane) will cause additional parking problems for local residents; and

(v) extensive floodlighting within a residential area leading to light pollution.

6) Members' Site Visit:

6.1. Seven Members of the Committee, Councillors: Bryant, Cartwright, Cooper, Hockley, McIntosh, Price and Simpson, with Councillor McIntosh in the Chair, undertook a visit on 6 April 2009 to a site at Portchester Community School, White Hart Lane, Portchester. Members met Fareham Borough Councillor David Norris and two representatives of Portchester Community School.

6.2. The Head of Planning and Development introduced the application and outlined the key features of the proposed application including the location of the synthetic turf sports pitch and tennis courts. He pointed out the housing which bordered the site to the north, west and east. He also pointed out the area which would be used by the contractor during the works on site.

6.3. Members toured the site and viewed the area where the synthetic turf sports pitch and tennis courts would be situated. Members noted the distances between bordering housing and the edge of the proposed pitches and tennis courts; and the fencing. It was noted that the school would manage the use of the facilities including use by the community outside of school hours. The applicant advised that the hours of use in the report were incorrect and that they would be increased to total 85 hours per week, 35 of which would be for community use.

6.4. The application is to be considered by the Regulatory Committee on 22 April 2009 and Members asked for the report to include further information on:

(i) the necessary height of the floodlight columns to adequately light the pitch;

(ii) the proposed increase in hours of use; and

(iii) opportunities for increased landscaping and replacement of existing boundary fencing.

7) Additional information requested from the Members' Site Visit:

(i) The necessary height of the floodlight columns to adequately light the pitch.

7.1. The lighting engineer has designed the optimum lighting scheme with the following variables: (a) number and spacing of columns, (b) height of the columns, (c) brightness of floodlighting bulbs. These factors led to an effect on the following - mounting angle of floodlighting units, evenness and brightness of pitch lighting and the ability to light the pitch in smaller sections to reduce energy consumption. The optimum scheme is therefore designed to suit the size of the pitch, the key dimension being the width of the pitch since this is the spacing that cannot be changed by adjusting the spacing of the columns. Therefore, the change to increase the number of columns or decrease the height of columns would mean the angle of the lights are increased leading to increased light spill. In addition, changing the height of the columns or the light level affects the evenness and brightness of the pitch lighting conditions. It is considered the proposed six 12 metre high columns are the most appropriate in this particular environment and suitable in height, as they are no higher than the adjacent school building.

(ii) The proposed increase in hours of use.

7.2. There are two main reasons for the proposed increase in hours of use, one is the need by the school to improve facilities available for community purposes and the other is with regard to funding. The Football Foundation recently stipulated that STP facilities which are jointly funded will be refused funding if minimum operating times are not achieved for at least 85 hours per week, of which the community must have priority access for at least 35 hours per week. This latter point is therefore critical to the whole scheme being implemented once planning consent has been granted.

(iii) Opportunities for increased landscaping and replacement of existing boundary fencing.

7.3. Details of this are not available at present and a scheme will need to be worked and appropriately costed, but it is likely an additional planning application will be needed for the boundary fencing since it is not covered under the current submitted proposal. Once the STP and additional courts are provided, and given the remainder of the school playing field area is going to be relatively tight for space for the formal playing pitches/athletics track, there may only be limited areas to take some landscaping works.

8) Commentary:

8.1. The existing school and its immediate environs are within a residential area, and also it is in the defined built-up area for Portchester where development is usually allowed. However, the objections/concerns from local residents raise material issues.

8.2. The potential for the floodlighting to impact on the residents' amenity is acknowledged, as the STP will be floodlit using six-12 metre high floodlight masts, but the lanterns themselves are of the very modern type which deflect most of the light onto the court area. These lanterns have been specifically selected to reduce light glare and overspill to an absolute minimum. The submitted plan, indicating the brightness of the lanterns, shows at its furthest point, which would coincide with the public footpaths either side of the school playing field, the level of luminance to only be 2 lux. This level of brightness equates with that of a bright moon. It has to be remembered that the floodlights would not be on all the time but only when necessary, and then only when the STP was in use. In addition, on weekdays the evening play would finish by 2145 hours and on Saturday by 1800 hours with Sunday at 1645 hours. In all cases, and to allow for clearance of the pitch, there would be a 15 minute period at the end of the session for the lights to then end. The lighting system has also been designed to allow for part use of the pitch which means that not all the lights would be in use at the same time. Overall, the lighting impact is considered acceptable.

8.3. Concerns over potential increase in traffic on the local road network during community use of the STP has been raised. However, there has been no objection from the Highway Authority and it is expected that STP users will not be arriving at times that coincide with the start and end of the normal school day. It is therefore considered the existing parking facility at the school would be sufficient to cater for users of the STP after the school day.

8.4. It is acknowledged that external sports facilities at schools can cause additional noise to those residential properties closest to the site, and so does unauthorised use of facilities. However, this is a matter that can be controlled by effective management measures and is not something that should be addressed by planning controls.

8.5. On balance, there may be some impact of the development on local amenity this has to be balanced by the advantages the facility will bring to the local community. Additionally, the Borough Local Plan supports the need to provide sports facilities at specific schools such as the Portchester Community School.

Section 100 D - Local Government Act 1972 - background documents

The following documents discuss facts or matters on which this report, or an important part of it, is based and have been relied upon to a material extent in the preparation of this report.

(NB: the list excludes published works and any documents which disclose exempt or confidential information as defined in the Act.)

Document

Location

Construction of a Synthetic Turf Pitch with floodlighting, two additional tennis courts, new fencing around synthetic turf pitch and new/existing tennis courts at Portchester Community School, White Hart Lane, Portchester, near Fareham
(Application No. P/09/0075/CC)
(County Council Ref: FAE 014)

Environment Department
Castle Avenue
Room G, Lower Ground Floor

CONDITIONS:

Time Limits:

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.

Hours of Working:

2) 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.

3) 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 hours or after 1800 hours Monday to Friday inclusive, before 0800 hours or after 1400 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.

Highways:

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) Prior to construction commencing a Construction Management Plan shall be submitted in writing to, and approved by the Local Planning Authority. The agreed Plan shall be maintained for the duration of the construction works.

Reason: In the interests of highway safety.

Lighting:

6) Unless otherwise approved in writing by the Local Planning Authority, the floodlights on the all-weather pitch shall only be switched on when necessary and then only between the hours of 08.00 to 21.45 Monday to Friday, 09.00 to 18.30 on Saturday and on Sunday and bank holidays from 10.00 to 16.45. A security light will be permitted for 15 minutes after the floodlights are switched off.

Reason: In the interests of amenity of neighbouring residents.

Access and Quality of Sport Facilities:

7) Prior to the commencement of the development, a Community Use Agreement for the Synthetic Turf Pitch shall be submitted to and approved in writing by the Local Planning Authority. The approved scheme should be implemented upon commencement of use of the development.

Reason: To ensure a well-managed community access is achieved with sufficient benefit to the development of sport.

8) The Synthetic Turf Pitch and replacement playing fields at the site shall be constructed and laid out in accordance with Sport England/National Sports Governing Bodies Design Guidance Notes.

Reason: To ensure high quality of the design for maximum sport benefit.

9) Prior to the commencement of development details for the phasing of the replacement grass pitches, the construction of the Synthetic Turf Pitch and reinstatement of the tennis courts shall be submitted to and approved in writing by the Local Planning Authority. The development shall be implemented as approved.

Reason: To ensure continuity of use of the grass pitches and tennis courts at the school.

Tree Planting:

10) Before the development is commenced details, including numbers, species initial sizes and positions of the proposed tree planting to be carried out, shall be submitted in writing and approved by the Local Planning Authority. The agreed planting shall be implemented as soon as possible following completion of the Synthetic Turf Pitch and new tennis courts. Any new trees within its first three years from initial planting that dies or becomes diseased, or is removed, shall be replaced with similar species as soon as it is practicable to do so.

Reason: To provide some natural screening of the courts in the interest of the amenity of those properties closest to the site.

FAREHAM BOROUGH LOCAL PLAN REVIEW JUNE 2000 (Adopted March 2000)

Policy R1 (Recreation, Leisure and Tourism in the Urban Area):

New or improved recreation, leisure and tourist facilities, will be permitted in the urban area, provided that:

(A) where appropriate, the sequential approach has been applied and suitable sites and buildings in the town centre are considered first, followed by edge-of-centre, district and local centres;

(B) there is good access to a range of means of transport, particularly public transport;

(C) they do not require buildings of a type of quantity which would be harmful to the character of the area;

(D) they do not result in the loss of public open space; and

(E) they do not have unacceptable traffic, environmental or amenity implications.

Policy R3 (Protection of Existing Open Space):

Development which would result in the loss of or reduce the recreational value of open space, including public and private playing fields, allotments and informal open space, will not be permitted unless a replacement site is provided which is equivalent in terms of accessibility, size and quality.

Policy DG1(Environmental Impact):

Development will be permitted provided that:

(A) it does not detract from the use and enjoyment of adjacent land or have an adverse impact on the wider environment by reason of noise, dust , fumes, heat, smoke, liquids, vibration or light;

(B) it provides for the satisfactory disposal of surface water:

(C) it is not located in areas at risk from flooding or where it would increase flooding risk in other areas.

Policy DG3 (Impact on the Surrounding Area):

Development will be permitted provided that it:

(A) does not detract from the existing landscape, streetscene, skyline and building line;

(B) is in keeping with the character of the surrounding area in terms of scale, layout, density, form, height, mass and space around and between buildings;

(C) does not conflict with adjoining land uses or result in a volume of traffic which would adversely affect the amenity of the surrounding area.