Agenda item

Proposal:	Demolition of existing structures, and erection of an 85 bed care home (Class C2) with associated works including one access, parking, services, and landscaping.
Location:	Stonehams Farm, Long Lane, Tilehurst
Applicant:	Frontier Estates Limited
Recommendation:	The Head of Development and Planning be authorised to GRANT planning permission.

 

The Committee considered a report (Agenda Item 4(1)) concerning Planning Application 19/00344/COMIND in respect of the demolition of existing structures and erection of an 85 bed care home (Class C2) with associated works including one access, parking, services and landscaping.

Mr Michael Butler introduced the report to Members’ of the Committee, which recommended conditional approval, and ran through the key points. Over 10 letters of objection had been received for the application. Objections had been received from Tilehurst Parish Council, Public Rights of Way and Pang Valley Ramblers. Objections had not been received from any of the other statutory bodies consulted on the application.

Mr Butler clarified that the original application for the site included a 74 bed care home plus four additional dwellings with a separate access. Following negotiations with Officers the dwellings were removed along with the additional access. The number of bed spaces at the proposed care home increased by 11 to 85.

Regarding Planning Policy, Mr Butler reported that the National Planning Practice Guidance (NPPG) encouraged the provision of care homes. Mr Butler drew attention to section 6.2.2 of the report which highlighted that there remained an extant need for care home beds.

Mr Butler drew attention to comments in the update sheet from Travel Policy, which raised no objections to the proposal. The update sheet also contained a comment from the Highways Officer in response to ongoing concerns raised at the site visit regarding access to the site.

Also in the update sheet was a recommendation to amend the wording of condition 16 concerning reducing the age restriction on people entering the care home from 65 to 55 years old.

Finally Mr Butler clarified that there was no proposed footpath link between the application site and the housing to the north west of the site. This had been indicated in the Housing Site Allocation Development Plan Document (HAS DPD) however, did not form part of the application given the nature of the proposal and the residents of the care home who would not be walking outside the application site for health and safety reasons.

Mr Butler concluded that on balance Officers were recommending the application be approved.

In accordance with the Council’s Constitution, Mr Clive Taylor and Ms Rose Reynolds, Parish Council representatives, and Ms Hannah Pearce, agent, addressed the Committee on this application.

Parish Council Representation:

Mr Taylor and Ms Reynolds in addressing the Committee raised the following points:

·                    Mr Taylor was the vice-chairman of Tilehurst Parish Council, which had taken an interested view in the development of the land in question for many years.

·                    The Parish Council objected to the proposal for an 85 bed care home one the site for a number of reasons:

1)    The HAS DPD had been adopted by West Berkshire Council on 17^th May 2017. Originally the site had been allocated in the view of accommodating 15 family dwellings. It was important that consistency was applied and if the current proposal was approved it would call the whole HSA DPD process into question.

2)    The site was outside the settlement boundary and within the North Wessex Downs Area of Outstanding Natural Beauty (NWD AONB).

3)    There was no evidence to suggest that a care home was required in the area.

4)    There was concern regarding where site traffic would park during the development phase.

5)    The access off Long Lane was located at the narrowest point and was not deemed appropriate by the Parish Council. There was also a dip in the road at the proposed access point, which would impair vision.

6)    The road proposed at the exit for the site was already used at a ‘rat run’ to the M4 and if the hedgerow was not maintained it would become a single track lane.

7)    There was insufficient car parking proposed for the site. There could potentially be up to 25 members of staff per shift, which would only leave three spaces for visitors to the care home. Mr Taylor was concerned about overspill parking and highlighted that Long Lane was not suitable for this purpose.

8)    The site was not easily accessible by public transport.

9)    Because care workers were often paid the minimum wage, this would attract workers from further afield

10) Mr Taylor referred to potential shift patterns and did not feel that the projected traffic movements to and from the site included staff movements.

11) The number 16 bus service was the only one serving the area and only stopped once per hour on a Saturday. Anyone accessing the bus stop would have to walk along Lone Lane, which was considered dangerous.

12) Finally Mr Taylor stated that plans for the site no longer included much needed affordable housing, which had been included as part of application for 15 houses permitted in June 2017. There was no need for such a care home in the local area and Mr Taylor stated that a similar provision in the area was currently underused.

Member Questions to the Parish Council:

Councillor Graham Pask asked the representatives from the Parish Council to describe the location of the bus stop. Ms Reynolds stated that it was 200 yards from the roundabout off Dark Lane.

Councillor Alan Macro asked what information the Parish Council was basing its statement on, regarding shift patterns. Ms Reynolds stated that the information could be found in the Planning Officer’s report.

Agent’s Representations:

Ms Hannah Pearce in addressing the Committee raised the following points:

·         The care home would provide an acute care setting.

·         The principle of the development was well established.

·         The site had been allocated through the Local Plan and there was already planning permission on the site for 15 dwellings.

·         The proposed care home would sit within the settlement boundary.

·         Care homes were classed as C2 and needed to be considered under new policy guidance.

·         If approved 47 of the units could be counted towards the housing supply. This would release housing stock locally.

·         Nationally the elderly population was increasing. Planning Policy required specialist accommodation to meet the needs of people with Dementia.

·         The proposed care home had a low roof profile being only 2.5 storeys high.  The overall height of the proposal was the same height as the dwelling located next to the site.

·         Regarding the wider surroundings, 66 dwellings had recently been approved on the adjacent site. Therefore the proposal would sit comfortably within its surroundings and the adjacent site would provide an element of screening.

·         Pedestrian crossings were proposed as part of the development.

·         No objections had been received from any of the statutory consultees.

·         There was an identified need for a care home in the local area.

Member Questions to the Agent:

Councillor Graham Pask noted that a local need for such a facility had been indicated by Ms Pearce and asked what evidence this was based on. Ms Pearce reported that Christie and Co had conducted a care needs assessment on behalf of the applicant over a five kilometre radius. The current need in the area had been calculated to be 329 beds and this was expected to double by 2029.

Councillor Tony Linden noted that Mr Taylor had mentioned the existence of a care home within the local area that was underused and asked Ms Pearce to comment on this point. Ms Pearce stated that the design of care homes had moved on substantially and that sometimes older provision was not able to meet demand.

Councillor Jeremy Cottam referred to the calculated figure of need from the needs assessment of 329 beds and queried how many would be dementia patients. Ms Pearce confirmed that the number was based on the beds required. The care home if approved would be dual registered and would not be specifically for patients with dementia.

Councillor Pask queried when a care home was classed as a nursing home. Ms Pearce confirmed that the care home would be dual registered so that it could provide nursing and residential care. There was a recognised level of staff per bed. Councillor Pask further questioned if staffing figures would adequately cater for the high needs of patients staying at the home. Ms Pearce confirmed staffing levels were based on an average and would be adequate to meet the need of patients. Ms Pearce added that staff would have access to a mini bus service and this was incorporated into a draft travel plan for the development. Councillor Pask requested that the point of a draft travel plan be revisited later in the proceedings.

Member Questions to Officers:

Councillor Pask asked if there was a draft travel plan for the site and at what stage this would be agreed. Mr Butler stated that the applicant had submitted a draft travel plan and Officers were satisfied with this. Mr Butler confirmed that positively the travel plan contained details of a mini bus service for staff. The Chairman suggested that a condition be added if planning permission was approved requesting the inclusion of an agreed travel plan.

Councillor Macro referred to page 28 of the report, which detailed an objection from the Public Rights of Way Officer and asked Officers to comment on this point. Secondly Councillor Macro referred to condition 20 on page 38 of the report regarding BREEAM. He was of the understanding that all residential developments required an ‘excellent’ rating for BREEAM. He noted that the application if approved would only achieve a rating of ‘very good’ and queried why this was deemed acceptable.  The Chairman commented that BREEAM had recently progressed.

In response to Councillor Macro, Mr Butler referred to the objection from the Public Rights of Way Officer and stated that there had been an ongoing internal debate between Highways and Public Rights of Way regarding the traffic that would be generated along Long Lane if the application was approved. As the case officer, Mr Butler stated that he had taken the objection from the Public Rights of Way Officer concerning pedestrian safety into account however, did not consider that the small increase in generated traffic would warrant refusal of the application.

Mr Butler further stated that the site was identified under the HSA DPD and many issues had been raised at this stage and therefore the site was not to be considered as building on a greenfield site.

Regarding BREEAM, Mr Butler stated that the Chairman was correct in his comment that BREEAM had moved on. The rating of ‘excellent’ was extremely difficult to reach for a care home because of the internal building regulations required due to the nature of the occupants. The rating of ‘very good’ was the highest that could be achieved for the application.

Debate:

Councillor Cottam expressed his disappointment in the BREEAM rating as he did not feel the expected rating of ‘excellent’ should be compromised due to the nature of the patients staying at the care home. The Chairman highlighted that an ‘excellent’ rating would be impossible to achieve.

Councillor Macro stated that he shared concerns about the possible traffic generated by the site as there would be almost twice the number of vehicle movements compared to what there was currently. Visibility along Long Lane was poor and often reached the stage where several vehicles had to attempt to pass each other at the same time. Councillor Macro was also concerned about pedestrian safety when walking in and out of Footpath (TILE/6/2).

Councillor Pask stated that his interpretation of the BREEAM rating of ‘very good’ was that it was not quite ‘excellent’. If ‘excellent’ was not achievable then he was satisfied. Regarding traffic, Councillor Pask commented that visitors did not normally visit during peak times. He also noted the mini bus provision. Councillor Pask referred to the NPPG, which encouraged the planning system to help meet the needs of the elderly and according to a risk assessment conducted over a five kilometre radius, there was a need for such a facility. Councillor Pask commented that on balance he was minded to support the application and therefore proposed that Members support Officer recommendation to approve planning permission. He added that approval would need to be subject to an agreed traffic plan that provided adequate means of travel to the site. Councillor Geoff Mayes seconded the proposal by Councillor Pask.

Councillor Linden stated that the site once fell within his own ward and therefore he was aware of the history of the site. He understood concerns about traffic generation and safety however, the Highways Officers had raised no objection to the application. Councillor Linden noted that the site already had planning permission for a number of dwellings and therefore he was minded to support the application.

Councillor Geoff Mayes noted that Thames Water had raised a concern regarding water supply to the site and queried if the supply was adequate. Mr Butler stated that this would be dealt with through conditions.

The Chairman invited Members of the Committee to vote on the proposal by Councillor Pask, seconded by Councillor Mayes, to support Officer recommendation, subject to an additional condition ensuring a travel plan was submitted and agreed. At the vote the motion was carried.

RESOLVED that the Head of Development and Planning be authorised to grant planning permission subject to the following conditions:

Conditions

1.  Time limit.

The development hereby permitted shall be begun before the expiration of three years from the date of this permission.

Reason: To comply with Section 91 of the Town and Country Planning Act 1990 (as amended by Section 51 of the Planning and Compulsory Purchase Act 2004).

2.  Plans approved.

The development must be carried out in strict accord with the following approved plans: [all G4250] Site layout-90-001w, Elevations-0-P-07 B, Location plan-P-08 C, Ground floor-P-01-E, Roof plan-P-04-C, First floor-P-02-E, Second Floor-P-03-E.

Reason: To clarify the permission in accord with the DMPO of 2015.

3.  Samples of materials.

On completion of the slab level of the care home no further work shall take place until samples of the materials to be used in the proposed development have been submitted to and approved in writing by the Local Planning Authority. This condition shall apply irrespective of any indications as to the details that may have been submitted with the application, and shall where necessary include the submission of samples of glass, plastic and mortar materials. Thereafter the materials used in the development shall be in accordance with the approved samples.

 

Reason: In the interests of visual amenity in accordance with Policy ADPP5 in the WBCS of 2006 to 2026.

 

4.  Hours of working.

The hours of work for all contractors for the duration of the site development shall unless otherwise agreed by the Local Planning Authority in writing be limited to:

7.30 am to 6.00 p.m. on Mondays to Fridays 8.30 am to 1.00 p.m. on Saturdays and NO work shall be carried out on Sundays or Bank Holidays.

Reason: In the interests of the amenities of neighbouring occupiers, in accord with saved policy OVS6 in the WBDLP of 1991 to 2006.

5.  Contamination.

Should any unforeseen contamination be encountered during the development, the developer shall inform the Local Planning Authority immediately. Any subsequent investigation/remedial/protective works deemed necessary by the Local Planning Authority shall be carried out to agreed timescales and approved by the Local Planning Authority in writing. If no contamination is encountered during the development, a letter confirming this fact shall be submitted to the Local Planning Authority upon completion of the development.

Reason To ensure public safety is protected, in accord with the advice in the NPPF of 2019.

6.  SUDS

No construction shall take place until details of sustainable drainage measures to manage surface water within the site have been submitted to and approved in writing by the Local Planning Authority. These details shall:

e) Include attenuation measures to retain rainfall run-off within the site and allow discharge from the site to an the public sewer at no greater than 2 l/s for up to the 1:100 year storm event with a 40% allowance for Climate Change;

f) Include flood water exceedance routes, both on and off site; include flow routes such as low flow, overflow and exceedance routes;

g) Include pre-treatment methods to prevent any pollution or silt entering SuDS features or causing any contamination to the soil or groundwater;

Reason: To ensure that surface water will be managed in a sustainable manner; to prevent the increased risk of flooding; to improve and protect water quality, habitat and amenity and ensure future maintenance of the surface water drainage system can be, and is carried out in an appropriate and efficient manner. This condition is applied in accordance with the National Planning Policy Framework, Policy CS16 of the West Berkshire Core Strategy (2006-2026), and Part 4 of Supplementary Planning Document Quality Design (June 2006).

 

7.  CMS

No development shall take place until a Construction Method Statement has been submitted to and approved in writing by the Local Planning Authority.

The development shall be carried out in accordance with the approved details. The statement shall provide for:

(a) The parking of vehicles of site operatives and visitors

(b) Loading and unloading of plant and materials

(c) Storage of plant and materials used in constructing the development

(d) The erection and maintenance of security hoarding including decorative displays and facilities for public viewing

(e) Wheel washing facilities

(f) Measures to control the emission of dust and dirt during construction

(g) A scheme for recycling/disposing of waste resulting from demolition and construction works

(h) HGV haul routes

Reason: To safeguard the amenity of adjoining land uses and occupiers and in the interests of highway safety. This condition is imposed in accordance with the National Planning Policy Framework, Policies CS5 and CS13 of the West Berkshire Core Strategy (2006-2026), Policy TRANS 1 of the West Berkshire District Local Plan 1991-2006 (Saved Policies 2007).

8.  EV charging points.

On completion of the slab level of the care home, details of electric vehicle charging points must be submitted to and approved in writing by the Local Planning Authority. The development shall not be occupied until associated electric vehicle charging point(s) have been provided in accordance with the approved drawings. The charging points shall thereafter be retained and kept available for the potential use of an electric car.

Reason: To promote the use of electric vehicle. This condition is imposed in accordance with the National Planning Policy Framework (February 2019), Policies CS13 and CS14 of the West Berkshire Core Strategy (2006-2026), Policy P1 of the Housing Site Allocation DPD and Policy TRANS1 of the West Berkshire District Local Plan 1991-2006 (Saved Policies 2007).

9.  S278 works.

The development shall not be brought into use until the following works have been completed via Section 278 of the Highways Act 1980 or other appropriate mechanism:

a. Pedestrian crossing and footway connections across Long Lane adjacent the proposed access point.

b. Widening of Long Lane opposite the proposed northern vehicular access.

The works shall be constructed in accordance with the approved drawing(s) and any statutory undertaker's equipment or street furniture located in the position of the works must re-sited to the satisfaction of the Local Highway Authority.

Reason: In the interest of road safety and to ensure adequate and unobstructed provision for pedestrians and/or cyclists. This condition is imposed in accordance with the National Planning Policy Framework and Policy CS13 of the West Berkshire Core Strategy (2006-2026).

 

10.  Visibility splays

The development shall not be brought into use until the visibility splays at the proposed access has been provided in accordance with the approved drawings. The land within these visibility splays shall thereafter be kept free of all obstructions to visibility over a height of 0.6 metres above the carriageway level.

Reason: In the interests of road safety. This condition is imposed in accordance with the National Planning Policy Framework, and Policy CS13 of the West Berkshire Core Strategy (2006-2026).

11.  Vehicle parking.

The development shall not be brought into use until the vehicle parking and/or turning space have been surfaced, marked out and provided in accordance with the approved plan(s). The parking and/or turning space shall thereafter be kept available for parking (of private motor cars and/or light goods vehicles) at all times.

Reason: To ensure the development is provided with adequate parking facilities, in order to reduce the likelihood of roadside parking that would adversely affect road safety and the flow of traffic. This condition is imposed in accordance with the National Planning Policy Framework, Policy CS13 of the West Berkshire Core Strategy (2006-2026) and Policy TRANS1 of the West Berkshire District Local Plan 1991-2006 (Saved Policies 2007

12.  Vehicle access construction.

The development shall not be brought into use until the associated vehicular access onto Long Lane has been constructed in accordance with the approved drawing(s).

Reason: In the interest of road safety. This condition is imposed in accordance with the National Planning Policy Framework (July 2018) and Policy CS13 of the West Berkshire Core Strategy (2006-2026).

13.  Cycle parking.

The development shall not be brought into use until associated cycle parking and storage space has been provided in accordance with the approved details and retained for this purpose at all times.

Reason: To ensure that there is adequate and safe cycle storage space within the site. This condition is imposed in accordance with the National Planning Policy Framework,, Policy CS13 of the West Berkshire Core Strategy (2006-2026) and Policy TRANS1 of the West Berkshire District Local Plan 1991-2006 (Saved Policies 2007).

14.  Water network upgrades.

The care home shall not be occupied until confirmation has been provided that either all water network upgrades required to accommodate the additional flows from the development have been completed; or an infrastructure phasing plan has been agreed with Thames Water to allow the care home to be occupied. Where an infrastructure phasing plan is agreed no occupation shall take place other than in accordance with the agreed infrastructure phasing plan.

Reason: The development may lead to no / low water pressure and network reinforcement works are anticipated to be necessary to ensure that sufficient capacity is made available to accommodate additional demand anticipated from the new development in accordance with the advice in the NPPF on public health.

15.  Minerals 

No development shall commence until the following has been submitted to and approved in writing by the Local Planning Authority and thereafter all works for each phase shall be carried out in accordance with the methods agreed throughout the construction period:

i) a method for ensuring that minerals that can be viably recovered during the development are recovered and put to beneficial use;

ii) a method to record the quantity of recovered mineral (for re-use on site or off-site) and the reporting of this quantity to the Local Planning Authority.

Reason: To ensure no sterilisation of minerals in accord with policy 2A of the RMLP for West Berkshire.

16.  Age restriction.

At no time shall any occupant of the care home be under the age of 55 years old, unless specific agreement in writing with the Local Planning Authority has been achieved.

Reason: To ensure the care home is used for its intended purpose, and in the interests of ensuring parking on site does not become congested, in accord with policy CS13 in the WBCS of 2006 to 2026.

17.   Finished floor levels.

No development shall commence until details of the finished floor levels in relation to existing and proposed ground levels have been submitted to and approved in writing by the Local Planning Authority. Thereafter the development shall be carried out in accordance with the approved levels.

Reason: To ensure a satisfactory relationship between the proposed building and the adjacent land in accordance with Policy ADPP5 in the WBCS of 2006 to 2026.

18.  Landscaping

No development shall commence until, a detailed scheme of landscaping for the site has been submitted to and approved in writing by the Local Planning Authority. The details shall include schedules of plants noting species, plant sizes and proposed numbers/densities, an implementation programme and details of written specifications including cultivation and other operations involving tree, shrub and grass establishment. The scheme shall ensure;

a) Completion of the approved landscape scheme within the first planting season following completion of development.

b) Any trees shrubs or plants that die, become seriously damaged or die within five years of this development shall be replaced in the following year by plants of the same size and species.

Reason: To ensure the implementation of a satisfactory scheme of landscaping in accordance with the objectives of policy ADPP5 of the WBCS of 2006 to 2026, and the conservation of the AONB area.

19.  Use of site restricted.

The premises shall be used for a care home only and for no other purposes in Class C2 of the Schedule of the Town and Country Planning (Use Classes) Order 1987 (as amended) or any subsequent amendment or replacement of this Order, nor shall its use be changed to any use falling under any other use class set out in the Town and Country Planning (Use Classes) Order 1987 (as amended) or any consequent amendment or replacement of this Order.

Reason: Any other use is not acceptable on the site in accordance with the advice in the DMPO of 2015 and the parking facilities on the site.

20.  BREEAM

The Care Home shall achieve ‘very good’ under BREEAM (or any such equivalent national measure of sustainable building which replaces that scheme). The care home shall not be occupied until a final Certificate has been issued certifying that BREEAM (or any such equivalent national measure of sustainable building which replaces that scheme) rating of very good has been achieved for the development, has been issued and a copy has been provided to the Local Planning Authority.

Reason: To ensure the development contributes to sustainable construction. This condition is imposed in accordance with the National Planning Policy Framework and policy CS15 of the WBCS of 2006 to 2026.

21.  External lighting.

On completion of the slab level of the care home, details of the external lighting to be used in the areas around the proposed building shall be submitted to and approved in writing by the Local Planning Authority. Thereafter the care home shall not be occupied until the external lighting has been installed in accordance with the approved details. No additional external lighting other than that proposed in accordance with the approved details shall be installed unless permission has been granted in respect of a planning application.

Reason: The Local Planning Authority wish to be satisfied that these details are satisfactory, having regard to the setting of the development in the AONB in accord with policy ADPP5 in the WBCS of 2006 to 2026.

22.  Hard surfacing and fencing.

On completion of the slab level of the Care Home, a scheme for the means of treatment of the hard surfaced areas of the site, and the perimeter fencing around the site, must be submitted to and approved in writing by the Local Planning Authority. The care home shall not be occupied until the hard surfaced areas and fencing has been constructed in accordance with the approved schemes.

Reason: In the interests of visual amenity, in accordance with Policy ADPP5 of the WBCS of 2006 to 2026.

23.  Travel Plan Condition

The owner/occupier shall implement the approved Travel Plan (dated 07 July 2019), commencing no later than three months after the first occupation of the development hereby approved and take reasonable practicable steps thereafter to deliver the key measures as outlined in the plan to encourage sustainable travel and to discourage car journeys to the site. This shall include if possible a minibus service for staff if proved viable.   The owner/occupier shall also maintain the agreed targets and undertake monitoring and reporting within the timescales set out in the plan.

Reason:  To ensure the development reduces reliance on private motor vehicles.  This condition is imposed in accordance with National Planning Policy Framework, Policy CS13 of the West Berkshire Core Strategy (2006-2026), Policy TRANS1 of the West Berkshire Local Plan 1991-2006 (Saved Policies 2007) and Policy LTP SC1 of the Local Transport Plan for West Berkshire 2011-2026.

Informative.

1.    This decision has been made in a positive way to foster the delivery of sustainable development having regard to Development Plan policies and available guidance to secure high quality appropriate development. In this application whilst there has been a need to balance conflicting considerations, the Local Planning Authority has worked proactively with the applicant to secure and accept what is considered to be a development which improves the economic, social and environmental conditions of the area.