Committee Report: Former Mere Oaks School, Wigan Road, Standish Development Brief

Report to:	Planning Committee Cabinet
Date:	7 November 2006 16 November 2006
Subject:	Former Mere Oaks School, Wigan Road, Standish Development Brief
Report of:	Director Designate of Environmental Services
Contact officer:	Dave Round (Telephone: 01942 404251)
Purpose / summary:	To advise Members that a Development Brief has been prepared and to request their approval.
Alternative options considered and reason for selecting the one recommended:	The other option would be to provide no guidance to prospective developers. This would lead to uncertainty, abortive design work and increased time taken for negotiations over the planning application. Therefore, option for a Development Brief presents an opportunity to provide clear planning guidance for applicants.
Recommendation / decision:	Cabinet be recommended to approve the draft Development Brief and refer it to the Director of Legal and Property Services for inclusion within the Sales Particulars.
Key Decision:	This report does not involve a key decision.
Implications:
Financial:	The disposal will create a capital financial receipt
Staffing:	Contained within existing staff resources
Policy:
Equal Opportunities – has a Diversity Impact Assessment been conducted?	N/A
Wards affected:	Wigan Central Ward
Special Interest Members – Which have been consulted	None

Tracking/Process:

Panel	Overview & Scrutiny	Cabinet	Council
	Consultation	Ward Members	Partners
	-	Wigan Central	-
Planning – 07.11.06	-	16.11.06	-

List of Background Papers in accordance with Section 100D of the Local Government Act 1972:

Document	Date	File Reference	Place of Inspection
Report to Cabinet	16 March 2006	Minute 466	Legal and Property Services Department, Town Hall, Library Street, Wigan

Proper Officer	Martin Kimber
Date	20 October 2006

1.0 Background

1.1 The site is the subject of an outline planning application for residential use (reference A/06/66949) to be considered by Planning Committee on 7 November 2006.

1.2 Consultation was carried out with Ward Members and all necessary parties and the responses received have been used to inform the brief.

1.3 This development brief will be used by the Council as a guide for considering the acceptability of any development proposals.

2.0 Proposals

2.1 The development brief for the former site of Mere Oaks School is attached for Members to consider.

2.2 The purpose of the brief is to provide a document that sets out guidelines and requirements for developing the site.

2.3 The brief supports all associated Replacement Unitary Development Plan polices (adopted April 2006) and specifies in detail what is expected in terms of design and planning obligations.

2.4 The brief supports the need to reduce the effects of climate change. It seeks to provide housing that is environmentally sustainable.

2.5 The means of access is also specified. This requires the developer to close the existing accesses, and to create a new access on Wigan Road, in the interests of highway safety.

3.0 Alternative Options Considered and Reason for the Recommended Option

3.1 The other option would be to provide no guidance to prospective developers. This would lead to uncertainty, abortive design work and increased time taken for negotiations over the subsequent planning application. Therefore, opting for a development brief presents an opportunity to provide clear planning guidance for applicants.

4.0 Conclusions

4.1 The development brief will provide clear planning guidance to applicants to help them meet UDP policy requirements and improve design quality for applicants.

4.2 Cabinet is therefore requested to approve the development brief and refer it to the Director of Legal and Property Services for inclusion within the sales particulars for the site.

Return to Agenda

Environmental Services Department - Former site of Mere Oaks School, Wigan Road, Standish: Draft Development Brief

1.0 Introduction

1.1 Wigan Council has resolved to dispose of the above site which is surplus to requirements for residential development.

1.2 The following document will be used by the Council as a guide for considering the acceptability of any development proposals.

1.3 This document should be fully considered by prospective developers, together with the relevant Unitary Development Plan policies , and the adopted Supplementary Planning Document (SPD) Design Guide for Residential Development before any proposals are formulated.

2.0 Location and Site Description

2.1 The site is to the north of Wigan, approximately 2,820 metres (1.7 miles) from the town centre. It is 2,478 metres (1.5 miles) south from Standish Town Centre, and falls within Wigan Central Ward. (See Plan 1).

2.2 The site consists of approximately 1.29 hectares of land, boundaries of which are shown on Plan 2. The developable area of the site is however reduced due to the presence of a number of trees which are subject to a Tree Preservation Order, which are required to be retained to provide a significant landscape buffer strip. The trees and the associated “stand off” zone reduce the developable area down to 0.93 hectares. (See Plan 3).

2.3 The site includes the former Mere Oaks Special School and all associated buildings, together with the landscaped areas. Generally, the ground level is mostly flat, rising slightly to the north. There are however a number of localised level changes.

2.4 The site is located in a predominately residential area. Residential properties lie to the south. The West Coast railway line forms the west boundary, and the A49 Wigan Road lies to the north and east.

2.5 The approximate area covered by the Tree Preservation Order is indicated on Plan 4. This plan does not however respect the extent of the tree canopy.

2.6 Before the site was developed as a school (mid 1960s), it was used for residential purposes. (See Plan 5).

3.0 Planning Requirements

3.1 The site is the subject of an outline planning application, reference A/06/66949, for residential use.

3.2 The site has been developed previously and therefore is classified as brownfield land in accordance with PPG3 Annex C.

3.3 The eastern boundary of the site includes in part, a stone wall approximately 2 metres in height and gates of architectural/historical interest , which are in poor condition.

For clarification of any planning issues please contact David Round on (01942) 404251 or Richard Taylor on (01942) 488045 in the Environmental Services Department, Civic Buildings, New Market Street, Wigan, WN1 1RP.

4.0 Design Requirements

4.1 The overall context of the site is low density residential dwellings set within well spaced plots. The houses face Wigan Road/Wigan Lane and are set back from the road. The area can be considered as being of a “leafy” character with mature woodland trees located close to the roadside. Although more recently, the immediate vicinity has experienced an increase in density due to the construction of apartment blocks.

4.2 Concern has been expressed by the public at the loss of quality housing in the area and its replacement with high density apartment developments. The Council’s SPD Design Guide for Residential Development, seeks to ensure that future development is appropriate to its context and meets certain standards.

4.3 Given the number of apartments which have been constructed in the vicinity quite recently, combined with extant consents which have not yet been constructed, the Council are of the view that further apartments are not required and therefore will not be permitted on this site.

4.4 The wider characteristics of th is area is predominately still one of low density, high quality housing. In order to maintain and protect these characteristics, the Council is undertak ing an appraisal of the “Greenhill” area of Wigan Lane and will consider the declaration of a Conservation Area should the appraisal support such an approach.

4.5 The density within the Greenhill area has been calculated at 11 dwellings per hectare.

4.6 The redevelopment of the Mere Oaks site will be required to reflect the wider characteristics of the area and accordingly a maximum density of 15 dwellings per hectare will be applied to the developable area of the site. Therefore a maximum of 14 dwellings will be allowed on this site.

4.7 One of the main characteristics of the site is the well matured, landscaped areas. As such, the site offers the unique opportunity to develop residential units that reflect the quality of the setting.

4.8 A mixture of high quality housing types will be required . Along the Wigan Road boundary, low density, large scale, (bespoke/distinctive) housing with spacious gaps between them, and frontages on to Wigan Road would be preferred. A ridge height not exceeding 9 metres (2.5 storeys) in height must be observed.

4.9 The western boundary affords the opportunity to introduce a higher density, possibly a mews style development with a maximum ridge height of 11 metres (3.5 storeys).

4.10 Materials will be red brick with natural or artificial slate. Rendering will not be acceptable.

4.11 The development must provide good visual interest. In accordance with the recent amendments to the Town and Country Planning (General Development Procedure) (Amendment) (England) Order 2006:

The successful tenderer will be required to provide Design and Access Statements which will accompany the subsequent planning application.

4.12 Thi s statement will explain how the scheme has been designed to achieve a high quality development that is appropriate to the character of the area. The Council has produced a document “An Introduction to Design and Access Statements” (available on the Council’s web site) and the pro forma in that document should be followed.

4.13 The development should be designed with regard to crime prevention and should incorporate defensible spaces and good natural surveillance.

4.14 Security of individual properties and safe footpath routes will be required. For further information and advice, prospective developers are strongly advised to contact the Community Safety Officer, Leigh Police Station, Chapel Street, Leigh, WN7 2PS. Telephone 0161 856 7262 prior to formulating any schemes.

4.15 The Council may consult the Community Safety Officer on proposed layouts at the certification stage.

4.16 Greater Manchester Police also operate the "Secured by Design" award which can be of great benefit to developers in the subsequent marketing of their properties. Police recommendations which have a general application include 2.1 metre high robust fencing reinforced with hostile hedging for gardens abutting footpaths, the installation of vehicle prohibitors within the footpath network (at appropriate locations) and good lighting of all pedestrian routes.

5.0 General Design Principles

5.1 The following documents and policies should be fully considered before preparing any proposals:

Policy R1D of the Replacement UDP - The Design of New Residential Development and House Extensions.
Policy EV3A of the Replacement UDP - Design of New Development.
Design Guide for Residential Development (SPD).
Access for All (SPD).

5.2 In traditional two storey developments, the minimum distance between face elevations of buildings containing windows of habitable rooms must not be less than 21.5 metres.

5.3 The minimum distance between face elevations containing windows of habitable rooms and windowless gable elevations must not be less than 12.2 metres.

5. 4 In two and a half and three storey developments, an additional 3 metres will be applied to the interface distances for each additional storey.

5.5 In traditional developments, the minimum rear garden length must not be less than 10 metres.

5.6 In the case of dwellings fronting onto access ways, surfaced driveways must be provided no less than 6 metres long by 4 metres wide so as to avoid parked vehicles encroaching onto the public highway.

5.7 One car parking space will be required for dwellings with up to three bedrooms.

5.8 Two car parking spaces will be required for dwellings with four or more bedrooms.

Note: In considering residential development proposals, domestic garages will not be counted as comprising car parking spaces but rather as ancillary domestic storage space in view of the predominance of such use. It is anticipated that the application of these standards will result in development with an average of 1.5 off‑street car parking spaces per dwelling.

5.9 The proposed layout should conform to the Council’s standards set out in the current version of the “Layout of Roads in Residential Areas”.

5.10 The proposed layout should actively demonstrate how it will respond to the current principles of sustainability (see Paragraph 13).

6.0 Highway Requirements

6.1 Vehicles

6.1.1 The Highway Engineering Section has advised that a new junction to the site is required in the interests of highway safety.

6.1.2 The developer will be required to create an access off Wigan Road in the position and with the visibility splay shown on Plan 6.

6.1.3 The stone wall fronting Wigan Road may partially interfere with the visibility splay. If this proves to be the case, the wall will need to be carefully taken down and reconstructed in a position which does not impact on the visibility splay.

6.1.4 Shared parking areas should be discreet by not dominating the frontage of properties and defensible in that it is clear that they are private parking areas for residents only.

6.1.5 The Council is particularly keen to encourage innovative traffic calming measures in all new residential developments. The appropriate means of achieving these aims will be dependant on individual circumstances but the use of rumble strips, speed tables and raised junction plateaux features may be required as appropriate.

6.1.6 Developers should consult the Highway Engineering Section for detailed requirements for the design of any highway structure or the use of an existing one affected by the scheme and which is necessary for the support of a proposed or existing highway or footpath.

6.1.7 A highway structure may consist of a bridge, footbridge, retaining wall or culvert.

6.1.8 All Highways will be required to be brought up to an adoptable standard and offered to the Council for adoption within two years of the development being completed.

6.1.9 For further information in respect of the highway requirements, contact Kevin Hargreaves, Environmental Services Department, telephone (01942 404311).

6.1.10 Developers are advised to consult with Network Rail as the railway line is adjacent to the western boundary of the site.

6.2 Pedestrians

6.2.1 A key element in the security of any development is to discourage casual intrusion by non-residents. Access should be restricted to as few routes as possible, taking into account the requirements for convenient and safe circulation.

6.2.2 Footpaths should be designed to serve the development rather than provide unnecessary public access.

6.2.3 Footpaths should be as short as possible, direct, open to view and overlooked by habitable rooms.

6.2.4 The ornate gates referred to in 3.3 and the single modern pedestrian gate on Wigan Road should be replaced.

6.2.5 The ornate gates should be replaced with gates to be permanently closed, or iron work, that should be of a height commensurate with the stone gate piers, of substantial gauge and to a design agreed by the Director Designate of Environmental Services.

6.2.6 The pedestrian gate should be replaced with a gate or iron work that is sympathetic to the opening and to a design agreed by the Director Designate of Environmental Services.

6.2.7 Both the replacement ornate gates and the pedestrian gate should be galvanised (to BS729) and polyester coated (to BS EN 13438:2005) in black.

7.0 Public Open Space

7.1 In accordance with replacement UDP Policy R1E(a), the Council requires that ‘where a scheme consists of between 1‑99 dwellings, developers make a financial contribution to the capital and commuted maintenance costs of off‑site amenity open space and play space provision commensurate with the number of units in the scheme, in lieu of on‑site provision, unless otherwise agreed or required by the Council’.

7.2 The density of housing will fall within this category therefore the developer is obliged to contribute the following.

In lieu of on-site open space (combined capital and commuted maintenance) = £430.

In lieu of an on-site play area (capital and commuted maintenance) = £800, ie, a total of £1,230 per dwelling.

7.3 The above financial contributions will be separate from any tender offers and should not be included in any developer’s bid for the site.

7.4 As the outline planning application preceded the Council’s Affordable Housing Policy, there is no requirement to provide any affordable housing on this site.

8.0 Landscaping

8.1 All protected trees identified for retention must be protected for the duration of development in accordance with BS 5837(2005) and current Council policy. A detailed tree report and plan identifying tree protection measures will be required to be submitted with any detailed planning application.

8.2 Protective fencing must be erected and approved prior to any development activity with the exception of approved arboricultural operations.

8.3 Routing of services (water, gas, electricity, drainage and culverts, etc) must be planned to prevent encroachment into tree protection areas. This must also include any proposed easements . Plans showing the routing of services will be required to be submitted with any detailed planning application.

8.4 Any proposed level changes must be considered as part of an application to include raising and lowering of levels for the development and landscape operations. All level changes must be kept outside of tree protection areas . Detailed plans will be required to be submitted with any detailed planning application.

8.5 The positioning of site cabins, sale offices, compounds, car parking and development advertising signs must be kept outside of tree protection areas. The positioning of the above will require the agreement of the Council at all times. Please discuss with the Council’s Tree Officer, Andy Smallshaw on (01942) 404233.

8.6 Any design must consider location and orientation of dwellings including windows, conservatories and gardens to reduce the overshadowing from protected trees.

8.7 An appropriate landscape scheme must be submitted as part of any application. It must include provision for planting of extra heavy standard trees appropriate for garden locations and include various mixed species/family groups to prevent a monoculture.

8.8 All species should be native and the design proportional in size to the area to be landscaped. Any trees to be retained should follow the Council's "Supplementary Planning Guidance for Trees on Development Sites".

8.9 All landscaping should be to the satisfaction of the Council and should be designed in such a way as not to present a major maintenance liability to the Council in the future.

8.10 Within the development, hard or soft landscaped surfaces may be appropriate depending on circumstances, but very small incidental areas of landscaping or open space generally will not be adopted and should be either avoided or placed within private curtilage.

8.11 All access drives, pathways, boundary walls or fences and front gardens must be completed before the dwellings to which they relate are occupied.

9.0 Drainage

9.1 The site is currently drained on a fully separate system as shown on Plan 7.

9.2 Foul drainage discharges to the public foul sewer in Wigan Lane and the surface water from the building and car parks drains towards the rear of the building away from Wigan Lane.

9.3 The surface water drains terminate on the boundary at the top of the railway embankment.

9.4 The surface water drainage system is not considered to be adequate because the school has suffered from periodic flooding in the car parks.

9.5 The surface water drainage outfall is not considered to be acceptable as it would appear that it drains onto the railway embankment.

9.6 Surface water from the site will have to be pumped to the 225 mm surface water in Wigan Lane. This system will require attenuation such that the peak discharge into the sewer is limited to 10 l/s, for a 1 in 30 year storm, which is required by the Environment Agency and United Utilities.

9.7 It may be possible for the developer to enter into a Section 104 Agreement with United Utilities.

9.8 All downspouts should be sealed directly into the ground ensuring the only open grids present around each dwelling are connected to the foul sewage systems.

9.9 Developers are advised to consult the Council’s Environmental Services Department (Drainage Special Projects) – Jon Worthington on (01942) 705232 for more detailed information.

10.0 Other Services

10.1 All services such as electricity, gas and telecommunications must be placed underground.

10.2 Provision should also be made for cable television during construction so as to avoid subsequent disturbance to newly laid highways. Developers must consult with NTL/Telewest Communications who are the appointed franchisee for this part of Wigan. Contact: Alan McLeod, Planning Engineer on 0131 4782060.

11.0 Mining and Gas

11.1 There are no known landfill sites listed within 250 m of the site.

11.2 If the site is found to be contaminated, the developer is required to take the appropriate remedial measures when developing the site. The methodology, investigation and any subsequent remediation undertaken by the developer shall be in accordance with a scheme submitted to and approved by the Director Designate of Environmental Services.

11.3 A licence to undertake such ground investigation or gas testing must be obtained from the Council – contact Lynne Knowles, Legal and Property Services Department on (01942) 827327.

12.0 Noise

12.1 There is potential for noise to affect the proposed residential properties from the railway line, and road noise from Wigan Road. Noise from any source should be assessed for potential impacts as appropriate mitigation measures may be required.

13.0 Sustainable Resources

13.1 In order to meet the needs of the present without compromising the requirements of future generations, the Council requires all developers to promote the principles of sustainability within the design construction and overall performance of the buildings. Hence developers should aim to:

reduce the impacts upon climate change;
improve energy and water efficiency;
strive for innovation in building design;
reduce the use of primary materials in building and road construction.

Details of how this will be achieved should be submitted with any detailed planning application.

13.2 The Council shall seek to ensure that the development achieves the excellent rating under BREEAM (Building Research Establishment Environmental Assessment Method).

13.3 BREEAM is a standard method for the assessment of the environmental impact of house building. In a good location, it has been estimated that the cost to achieving an excellent rating based on a private house of £76,000 capital cost would be in the region £3,192.

13.4 That the development/design of the properties are designed to incorporate:

solar panels;
wind turbines;
or any other measures that will mitigate the effects of climate change.

These measures are required in order to reduce the impact on neighbours at a future date.

14.0 Scheme Certification

14.1 Prior to the submission of tenders, three sets of plans containing the following information are required to be submitted to the Director Designate of Environmental Services for "certification" purposes at least 14 days before the tender deadline.

Site surveys at 1:500 scale showing:
1. the boundary of the site and all adjoining developments and roads;
2. the position of existing trees and hedgerows;
3. existing ground levels over the whole site.
1. all plot boundaries and dwellings;
2. all roads, access drives, garages and footpaths;
3. all service arrangements;
4. proposed site levels (including finished floor levels).

14.2 Although not essential for certification purposes, the following information is desirable:

Detailed plans and elevations of all new buildings including the specification of materials.
Detailed plans and elevations of all landscaping and open space, including ground surface treatments, walls, gates, fences and new planting.

14.3 The certification procedure is an important process that enables the Council and prospective developers to reach agreement on the acceptability of proposed schemes prior to any tenders being submitted. This also allows the Council to ensure that tenders are subsequently submitted on an equitable basis and that the Council’s requirements have been correctly interpreted.

14.4 All schemes must be submitted for certification at least 14 days before the tender deadline in order for Planning Officers to give sufficient consideration to prospective schemes and to allow time for revisions should this prove necessary. Schemes submitted after this date may not be considered.

14.5 Schemes which are considered to meet the requirements of this brief will be given certification and will be capable of forming the basis, without any significant changes, of a detailed planning application which will be submitted by the successful tenderer.

14.6 Draft schemes should contain all the requested information as any omissions may result in unnecessary delay and failure to meet the tender deadline.

15.0 Building Control

15.1 The Local Authority offers a full Building Control Service. For further information regarding Building Regulation submissions, please contact Mr P Swift, Environmental Services Department, Civic Buildings, New Market Street, Wigan, WN1 1RP. Telephone (01942) 404281.

15.2 Developers are requested to indicate on the tender form if they intend to use the Building Control service if successful. It should be noted that if a positive indication is given, a condition to that effect would be included in the acceptance of tender.

16.0 References

16.1 Wigan Replacement Unitary Development Plan. Adopted April 2006 (Wigan Council MBC).

16.2 The current versions of the following:

The Layout of Roads in Residential Areas (Wigan Council MBC).
Construction Design Guide for Minor Highway Works (Wigan Council MBC).
Specification for Highway Works (Department of Transport).
New Construction Standard Road Lighting Specification (September 1993) (Wigan Council MBC).
Sewers for Adoption (Water Research Centre).
Supplementary Planning Guidance for Trees on Development Sites (Wigan Council MBC).
Play Provision in Residential Areas - Guidelines for Developers (Wigan Council MBC).
Secured by Design (Greater Manchester Police).
Supplementary Planning Guidance ‘The Good Fencing Guide’ (Wigan Council MBC).
Supplementary Planning Document for Landscape Design Submissions (Wigan Council MBC).
Supplementary Planning Document Provision of Open Space in New Housing Developments – Adoptions & Financial Contributions From Developers (Wigan Council MBC).
Supplementary Planning Document Design Guide to Residential Development (Wigan Council MBC).
Supplementary Planning Document. – Affordable Housing Provision in New Housing Developments (Wigan MBC).
Supplementary Planning Document - Access For All (Wigan Council MBC).
An Introduction to Design and Access Statements (Wigan Council MBC).

Note: Other applicable guidance may be available on the Council’s website and should be referred to in addition to this note.