Report of the Chief Planning Officer NORTH AND EAST PLANS PANEL Date: 11th October 2018 Subject: PREAPP/17/00631 - Demolition of buildings and redevelopment of site for community care village including conversion of listed building at Scarcroft Lodge, Wetherby Road, Scarcroft. APPLICANT

DATE VALID TARGET DATE

Audley Court Ltd 23rd October 2017 PPA Submitted

POSITION STATEMENT: Members are requested to note this report on the proposal and to provide initial views in relation to the pre application enquiry and answer any questions posed to aid the progression of the application. 1.0 INTRODUCTION 1.1 This pre-application enquiry has been submitted by Gaunt Francis Architects on

behalf of Audley Court Ltd for the demolition of buildings and redevelopment of site to create a community care village including conversion of Grade II Listed Building, Scarcroft Lodge.

1.2 Initial pre-application advice was given to the applicant in January 2018 in

response to pre-application enquiry (PREAPP/17/00631) which sought advice on the change of use of the site to a C2 care community with 152 units of accommodation and 9 dwellings. The advice offered was based on a meeting with the applicant on site visit including inspection of the Listed Buildings and their setting and a discussion with relevant Council officers around the principles of development and how best to approach evolving proposals in the future.

1.3 Following receipt of pre-application advice, the proposals have been amended to

better reflect the advice offered by officers and discussions have been on-going

Specific Implications For: Equality and Diversity Community Cohesion Narrowing the Gap

Electoral Wards Affected: Harewood

Originator- Jenna Riley Tel: 0113 3787646

Ward Members consulted

(Referred to in report) Yes

since the latest scheme was tabled at a meeting with the Council on 3rd September 2018. The current proposals are considered suitable for a pre-application presentation to Members of North & East Plans Panel. It is the developers intention to submit a planning application in the near future, taking into consideration any comments raised by the Panel.

2.0 PROPOSAL

2.1 This pre-application enquiry concerns the proposed change of use of land and

buildings within the site curtilage of Scarcroft Lodge, Wetherby Road, Scarcroft, to a C2 community care village with 172 units of accommodation and 9 private residential dwellings. All the land is in ownership of the applicant.

2.2 Of the 172 units proposed, the accommodation comprises of 148 apartments (2 x

one bed, 146 x two bed) and 24 cottages (all two bed) located across 19 blocks within the site. The proposal includes 172 parking spaces for the community care village residents plus 13 spaces for staff and visitors, and 1 minibus space together with 9 private parking spaces, 2 single private garages serving the private residential dwellings and 48 spaces allocated to the cricket club (245 in total). Additionally 17 mobility scooter spaces are proposed. The total site area serving the community care village is 21,752m², of which 1,800m² is communal facilities including a health and well-being centre with swimming pool, sauna, steam room, gym, salon and treatment rooms; lounge, library, hobbies room, restaurant and bistro and meeting rooms.

3.0 SITE AND SURROUNDINGS 3.1 The proposal relates to a large brownfield site located within land defined as Green

Belt in the Development Plan which lies to the southern edge of Scarcroft village in North East Leeds which is also a designated Conservation Area. Located centrally within the site is Scarcroft Lodge, a Grade II Listed Building and former mansion house currently in use as offices by Npower, who are in the process of relocating to new premises within Leeds. The site is dominated by a large three/four storey modern office building and smaller mid-twentieth century office buildings with a significant area of hardstanding. Two lodges and a building known as Woodlands are located towards western edge of the site close to Wetherby Road are not listed in their own right but these buildings are considered to be curtilage listed due to their position and role within the important setting of Scarcroft Lodge. The north western section of the site is occupied by a cricket pitch and pavilion which is a designated playing pitch protected by Policy N6. A number of large and mature trees line the access road and site boundaries which form part of the important Leeds Habitat Network protected by Policy G9. The site is accessed from the A58 Wetherby Road, main arterial route and with security barriers in operation offering private access only through the site. Agricultural land is located to the east.

4.0 RELEVANT PLANNING HISTORY 4.1 Planning Permission was granted in March 2015 for the conversion of the ground

floor of Woodlands to A1 Retail and refurbishment of the first floor as B1 offices (Ref 15/00602/FU). This permission has now lapsed.

5.0 PUBLIC/LOCAL RESPONSE:

5.1 None. Due to the preliminary nature of pre-application enquiries, formal publicity

and consultation with the public by the Council is not a statutory requirement. Full

and proper consultation would be carried at planning application stage should the applicant wish to submit a planning application in the future.

5.2 Notwithstanding the above, it is understood that the Applicant carried out a public consultation event on Thursday 30th August at Scarcroft Village Hall which was well attended by over 100 people including Parish Councilors and local ward Members and the majority of local residents are supportive of what they have seen so far.

7.0 CONSULTATIONS RESPONSES: 7.1 Statutory: None 7.2 Non- statutory: Highways Flood Risk Management Contaminated Land Local Plans (Planning Policy) Conservation Team 8.0 PLANNING POLICIES: 8.1 Section 38(6) of the Planning and Compulsory Purchase Act 2004 requires the

application to be determined in accordance with the development plan unless material considerations indicate otherwise.

Development Plan

8.2 The Development Plan for Leeds comprises the Adopted Core Strategy (November

2014), saved policies within the Leeds Unitary Development Plan (Review 2006) and the Natural Resources and Waste Development Plan Document (2013) and any made neighbourhood development plan. Adopted Core Strategy

8.3 The Core Strategy is the development plan for the whole of the Leeds district. The

following core strategy policies are considered most relevant: Policy EN1: Climate Change Policy EN2: Sustainable Design and Construction Policy EN3: Low Carbon Energy Policy EN4: District Heating Policy G9: Seeks to enhance Leeds Habitat Network via biodiversity

improvements Policy H8: Housing for independent living Policy P9: States that access to local community facilities including health is

important to the health and wellbeing of a neighbourhood Policy P10: Seeks to ensure that new development is well designed and respect its

context Policy P11: Relates to conservation of the historic environment Policy P12: Relates to landscape and encourages the quality, character and

biodiversity of townscapes is preserved or enhanced Policy T2: Accessibility requirements and new development

Saved UDP policies: 8.4 Policy A8: Nature conservation sites

Policy BD2: Design and siting of new buildings Policy BD3: Disabled access and new buildings

Policy BD5: Amenity and new Buildings Policy BD14: Floodlighting Policy GB4: Changes of use in the Green Belt Policy GP5: Development proposals resolve detailed planning considerations

including amenity Policy GB7: Major developed sites in the Green Belt Policy GB9: Redevelopment of buildings in the Green Belt Policy LD1: Seeks to ensure that development is adequately landscaped Policy LD2: New and altered roads Policy N6: Protected Playing Pitches Policy N14: Presumption in favour of the preservation of listed buildings Policy N15: Changes of use of listed buildings will be considered favourably Policy N16: Extensions to listed buildings should relate sensitively to the original

building and be subservient Policy N18-22, BC7: Conservation Areas Policy N23/N25: relates to space around buildings and boundaries to be designed

in a positive manner Policy N32/33: Green Belt Policy N37: Special Landscape Area Policy: T24: relates to parking provision

8.5 Emerging Planning Policy Emerging Site Allocations Plan DPD

o This site is a proposed housing allocation is referred to as site HG2-26, Wetherby Road, Scarcroft Lodge, Scarcroft in the SAP

o The site has a site area of 5.79ha o The site has an identified capacity of 100 units o Matters relating to housing were heard by the appointed Inspectors at the

hearings sessions in August 2018 Scarcroft Neighbourhood Plan (currently at examination)

o The principle of developing this site for housing is supported in the Scarcroft Neighbourhood Plan

Relevant Supplementary Planning Guidance includes:

8.6 SPG10 Sustainable Development Design Guide

SPG13 Neighbourhoods for Living SPG22 Sustainable Urban Drainage SPD Street Design Guide SPD Designing for Community Safety SPD Travel Plans SPD Sustainable Design and Construction

National Planning Policy (NPPF) 8.7 The revised National Planning Policy Framework (2018) sets out the Government’s

planning policies for England and how these are expected to be applied. It sets out the Government’s requirements for the planning system and promotes sustainable

(economic, social and environmental) development. NPPF must be taken into account in the preparation of local and neighbourhood plans and is a material consideration in planning decisions.

8.8 The National Planning Policy Framework (NPPF) sets out the Government’s

planning policies and contains policies on a range of issues. Paragraph 91 of the NPPF states planning decisions should aim to achieve

healthy, inclusive and safe places which enable and support healthy lifestyles especially where this would address identified health and well-being needs.

Paragraph 92 of the NPPF supports the provision of community facilities and other local services in order to enhance the sustainability of communities: To deliver the social, recreational and cultural facilities and services the community needs, planning policies and decisions should:

• plan positively for the provision and use of shared space, community facilities (such as local shops, meeting places, sports venues, cultural buildings, public houses and places of worship) and other local services to enhance the sustainability of communities and residential environments;

• take into account and support the delivery of local strategies to improve health, social and cultural well-being for all sections of the community

• ensure that established shops, facilities and services are able to develop and modernise in a way that is sustainable, and retained for the benefit of the community; and

• ensure an integrated approach to considering the location of housing, economic uses and community facilities and services.

8.9 Paragraph 117 supports the effective use of land in meeting the need for homes

and other uses while safeguarding and improving the environment and ensuring safe and healthy living conditions.

8.10 Paragraph 124 of the NPPF relates to the creation of high quality buildings and

places is fundamental to what the planning and development process should achieve. Good design is a key aspect of sustainable development, creates better places in which to live and work and helps make development acceptable to communities. Being clear about design expectations, and how these will be tested, is essential for achieving this. So too is effective engagement between applicants, communities, local planning authorities and other interests throughout the process.

8.11 Paragraph 127 states that planning policies and decisions should ensure that

developments:

a) will function well and add to the overall quality of the area, not just for the short term but over the lifetime of the development; b) are visually attractive as a result of good architecture, layout and appropriate and effective landscaping; c) are sympathetic to local character and history, including the surrounding built environment and landscape setting, while not preventing or discouraging appropriate innovation or change (such as increased densities); d) establish or maintain a strong sense of place, using the arrangement of streets, spaces, building types and materials to create attractive, welcoming and distinctive places to live, work and visit;

e) optimise the potential of the site to accommodate and sustain an appropriate amount and mix of development (including green and other public space) and support local facilities and transport network f) create places that are safe, inclusive and accessible and which promote health and well-being, with a high standard of amenity for existing and future users; and where crime and disorder, and the fear of crime, do not undermine the quality of life or community cohesion and resilience.

8.12 Paragraph 143-144 states inappropriate development is, by definition, harmful to the Green Belt and should not be approved except in very special circumstances. When considering any planning application, local planning authorities should ensure that substantial weight is given to any harm to the Green Belt. ‘Very special circumstances’ will not exist unless the potential harm to the Green Belt by reason of inappropriateness, and any other harm resulting from the proposal, is clearly outweighed by other considerations.

8.13 Paragraph 189-190 seek to preserve and enhance heritage assets. In determining applications, local planning authorities should require an applicant to describe the significance of any heritage assets affected, including any contribution importance and no more than is sufficient to understand the potential impact of the proposal on their significance. As a minimum the relevant historic environment record should have been consulted and the heritage assets assessed using appropriate expertise where necessary. Where a site on which development is proposed includes, or has the potential to include, heritage assets with archaeological interest, local planning authorities should require developers to submit an appropriate desk-based assessment and, where necessary, a field evaluation.

8.14 Local planning authorities should identify and assess the particular significance of

any heritage asset that may be affected by a proposal (including by development affecting the setting of a heritage asset) taking account of the available evidence and any necessary expertise. They should take this into account when considering the impact of a proposal on a heritage asset, to avoid or minimise any conflict.

8.15 Paragraph 192 states that in determining applications, local planning authorities

should take account of: a) the desirability of sustaining and enhancing the significance of heritage assets and putting them to viable uses consistent with their conservation;

b) the positive contribution that conservation of heritage assets can make to sustainable communities including their economic vitality; and

c) the desirability of new development making a positive contribution to local character and distinctiveness.

8.16 Paragraph 194 states any harm to, or loss of, the significance of a designated

heritage asset (from its alteration or destruction, or from development within its setting), should require clear and convincing justification. Substantial harm to or loss of:

a) Grade II listed buildings, or grade II registered parks or gardens, should be exceptional;

9.0 MAIN ISSUES

• Principle of Development

• Heritage Assets • Design and Visual/Residential Impact • Highways • Landscape Issues • Conclusion

10.0 APPRAISAL Principle of development

10.1 The proposal involves redevelopment of an unallocated brownfield site located within the Green Belt in the Development Plan. Saved policies of the Leeds UDP (Review) N33 and N37 and National Planning Policy Framework (NPPF) are relevant.

10.2 The NPPF attaches great importance to Green Belts and the fundamental aim of

the Green Belt policy is to prevent urban sprawl by keeping land permanently open; the essential characteristics of Green Belts are their openness and their permanence. Paragraph 143-144 of the NPPF states inappropriate development is, by definition, harmful to the Green Belt and should not be approved except in very special circumstances. When considering any planning application, local planning authorities should ensure that substantial weight is given to any harm to the Green Belt. ‘Very special circumstances’ will not exist unless the potential harm to the Green Belt by reason of inappropriateness, and any other harm resulting from the proposal, is clearly outweighed by other considerations.

10.3 It is noted that it is the Council’s intention to allocate this site for housing in the

emerging Site Allocations Plan (SAP) which is currently at examination. The proposed housing allocation is referred to as site HG2-26, Wetherby Road, Scarcroft Lodge, Scarcroft in the SAP. The site has a site area of 5.79ha and an identified capacity of 100 units. Matters relating to housing were heard at the Hearing Sessions in August 2018 and the Council are awaiting the Inspectors outcome. The principle of developing this site for housing is also supported in the Scarcroft Neighbourhood Plan however, only limited weight can be attached as the Plan is yet to be formally adopted by the Council.

10.4 Guidance contained within the NPPF and Core Strategy promote a brownfield first

approach to delivering housing and seek that opportunities to enhance the quality of life of local communities through the design and standard of new homes should be maximised. It is acknowledged that redevelopment of the site would create an isolated development which is not well related to the urban area, however the site is well screened and separated from the built up area of Scarcroft. Given the amount of development being proposed in comparison to what currently exists, it is clear that the proposals represent a significant intensification of built development on this Green Belt site and a development which will have a greater impact on openness and character. As such, it would be deemed to be inappropriate development in the Green Belt and therefore very special circumstances would need to be advanced to address the matter. It would therefore be up to the developer to put forward any very special circumstances which could be securing a long term future use for the listed Scarcroft Lodge, amongst other factors.

10.5 The Core Strategy acknowledges the importance of planning for a wide range of

housing needs and independent living and meeting such needs is a key challenge. Para 5.2.40 states that when considering proposals for Independent Living it is

important that such schemes are appropriately located and form part of a wider housing mix in reflecting a range of housing needs within individual communities. The proposal is for a community care village falling within the C2 Use Class (Residential Institutions).

10.6 It is understood from discussions with the developer that the average age of an

occupant being cared for at the proposed community care village would be 79 years of age and level of care offered would range from flexible care right through to high level 24hr care including monitoring three times per day. The applicant would go on to be the operating care provider and communal facilities include a health and well-being centre with swimming pool, sauna, steam room, gym, salon and treatment rooms; lounge, library, hobbies room, restaurant and bistro and meeting rooms.

10.7 It is considered that there is a strong case for Very Special Circumstances in this

instance given that this is a brownfield site in the Green Belt that the Council is proposing to release from the Green Belt for residential purposes as part of the Site Allocations Plan in order to help meet its housing targets across the city. The bespoke nature of proposed community care village will help address a particular local housing need and redevelopment of the site will offer various community benefits with the overall aim to create an integrated community in Scarcroft Village. These combined wider benefits will need to be considered further in order to outweigh the harm to the Green Belt.

10.8 Against this background do Members support the principle of this

development? Heritage Assets 10.9 Core Strategy Policy P11 seeks to preserve the historic environment, consisting of

archaeological remains, historic buildings townscapes and landscapes, including locally significant undesignated assets and their settings. Development proposals will be expected to demonstrate a full understanding of historic assets affected.

10.10 Innovative and sustainable construction which integrates with and enhances the

historic environment will be encouraged. Enabling development may be supported in the vicinity of Listed Buildings and in Conservation Area where linked to the refurbishment or repair of heritage assets.

10.11 The proposals involve the repair, refurbishment and extension of Scarcroft Lodge,

Grade II Listed Building to create the health and well-being centre. Scarcroft Lodge is a positive building within Scarcroft Conservation area however the building is identified as a building at risk. It is understood that Scarcroft Lodge itself has suffered internally through office conversion, anti-social behaviour and poor maintenance. However, there is still a reasonably high retention of internal fabric, including piers, cornices, door surrounds and mahogany panelling and fireplaces. Subject to any redevelopment to principal property ensuring that existing features are taken into account and retained where possible it is considered that proposed alterations would enhance the Listed Building and character of the Conservation Area and as such be would be generally considered welcomed.

10.12 The proposals also involve the part demolition and rebuild of the building to the left

of Scarcroft Lodge and construction of new accommodation blocks within the setting of the Listed Building to create a largely flatted development. Although this is a pre application enquiry it is understood that the Councils Conservation Team

are broadly happy with the indicative layout of the site but would like further consideration of the replacement block immediately adjacent to the north of the property when a planning application is submitted. The proposals are policy compliant and would secure a future use of the Scarcroft Lodge, Grade II Listed Building.

10.13 Do Members support the repair, refurbishment, extension and conversion of

Scarcroft Lodge, Grade II Listed Building? Design and Visual Impact 10.14 At this stage the proposals relate only to a pre application enquiry and the full

planning application is yet to be formally submitted to the Council, however indicative plans suggest that the proposal would involve the demolition of buildings and redevelopment of the site to create a community care village including conversion of Grade II Listed Building, Scarcroft Lodge.

10.15 Development of the site would create a largely flatted development comprising of

148 apartments and 24 cottages located across 19 rectangular blocks within the site. Indicative plans show a residential development that is spaciously distinct and of vernacular appearance with a modern twist. The proposals are a mixture of 1 to 3 storey’s in height with sympathetic materials and architectural features. All the units will have a patio, Juliette balcony or balcony and are set amongst shared attractive gardens and open parkland. The proposal retains the relatively large area of existing hardstanding with layout focused around Scarcroft Lodge and its important setting.

10.16 The existing office buildings are not particularly attractive in terms of their design,

scale or massing whereas it is considered that the approach to design and visual impact taken in this instance is considered to be more in keeping with the residential appearance of Scarcroft Village and character of the wider conservation area. It is considered that the proposals will cause no visual harm or intrusion in terms of residential amenity as the site is isolated and separated from the main Scarcroft Village therefore public views into the site from A58 Wetherby Road are restricted due to tree cover and the presence of other lodge buildings as you enter the site. Significant landscape buffers strategy will help create a suitable visual screen. Residential amenity and the living conditions of existing or future residents would be assessed at planning application stage

10.17 It is understood that the applicant intends to the create a sustainable development

which is BREEAM compliant and one which operates off the district heating system whereby 20% of the predicted energy needs on site is will come from renewable sources which exceeds the minimum target as set out in Core Strategy Policies.

10.18 Are Members content with the design approach? Highway Safety 10.19 The scheme is described as a C2 community care village; 245 car parking spaces

are proposed in total together with 17 mobility scooter spaces. The Council’s Parking SPD advises that car parking provisions for C2 Residential Institutions should be provided on the basis of total bed spaces including treatment rooms. This level of parking provision is well in excess of what would normally be provided for such a use.

10.20 The Highways Team have highlighted a need to demonstrate (with vehicle tracking) that the geometry of the existing access from A58 Wetherby Road would be adequate for the development and that this road would need to be brought up to adoptable standards to serve a traditional housing scheme. It is anticipated that resurfacing of the existing road would be required for adoption purposes under Section 38 of the Highways Act. Additionally, adequate footways and street lighting would also be required and the cost of road markings, signage and appropriate speed limit Orders will be fully funded by the developer (inclusive of staff fees and legal costs).

10.21 It is acknowledged that due to the remote location of the development site to the

southern edge of Scarcroft Village, the proposal is identified as failing to meet the Core Strategy Accessibility Standards. Further information is required in order to understand the nature/car parking rationale for the C2 units. Proposals will need to facilitate access for the turnaround for servicing and deliveries. It is anticipated that this information will be submitted as part of the detailed planning application and Highways colleagues would be consulted.

10.22 Do Members support the highway comments? Landscape and Biodiversity Issues 10.23 The site is a Special Landscape Area located within the Leeds Habitat Network and

a large number of trees on the site are protected due to their location within the Conservation Area, trees located around the site boundaries have the potential to provide screening to the development. In compensation for this loss of trees the applicant is proposing replacement planting 3:1 in order to provide an overall enhancement to the character of the area which is considered acceptable. The initial proposals have evolved and the scheme now includes a 10m landscaping buffer around the site boundary to help soften the appearance of the development within the Green Belt so that the proposals are considered to be broadly compliant with Saved UDP Policy N24.

10.24 An indicative landscape character plan proposes various areas of communal

garden space including cottage gardens, central landscaping, courtyards and open parkland within the site. Furthermore biodiversity is to be enhanced on this site by way of an integrated SUDS system which features an attenuation lagoon to the eastern edge of the site measuring 2390m2.

10.23 At this early stage, the proposals relate only to a pre application enquiry and full

details which show existing tree locations, tree root protection areas and distances to trees are yet to be submitted. However, retained trees can be protected through the construction phase through the instalment of protection measures and barriers around the root protection areas. A Tree Protection Method Statement will need to be provided showing how this work will be undertaken and adherence to this statement can be secured by planning condition.

10.25 Do Members agree to landscaping proposals and biodiversity enhancement? 11.0 CONCLUSION

11.1 Members are respectfully requested to provide answers to the questions posed in

the main body of this report, all of which are reproduced below for ease of reference and to offer any additional comments that they consider are appropriate regarding this development proposal:

• Do Members support the principle of development? • Do Members support the repair, refurbishment, extension and

conversion of Scarcroft Lodge, Grade II Listed Building? • Are Members content with the design approach? • Do Members support the highway comments? • Do Members agree to landscaping proposals and biodiversity

enhancement? Background Papers: Application file: PREAPP/17/00631

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