Scale 1/1250

Date 5/12/2007

Camberwell Bus Garage

Claire Cook© Crown Copyright. All rights reserved. London Borough of Southwark.OS Licence (0)100019252

Item No.

4

Classification OPEN

Decision Level Camberwell Community Council

Date 11/12/2007

From Head of Development & Building Control

Title of Report DEVELOPMENT CONTROL

Proposal (05-AP-0421) Demolition of existing workshop building between Warner Road and Camberwell Station Road and use of area for open parking for cars during the day and buses at night. Construction of new workshop extension behind 1-33 Camberwell Station Road.

Address London Central Bus Co.Ltd, 2 Warner Road SE5. Ward Camberwell Green

PURPOSE

1 Members are asked to agree that in respect of this non-determination appeal that planning permission be refused for the reason given in paragraph 4 of this report.

RECOMMENDATION

2 That if Members' had been able to make a decision they would have been minded to

refuse permission for the reason in pararaph 4 of this report. d to refuse.

Background

3 This application was referred to Members of Camberwell Community Council on 18 July. Officers were at that time seeking Members' general view on the proposed extension and increased open parking area subject to a solution being found in respect of the adjoining site where planning permission had been granted for theerection of a new mixed commercial and housing development block to be located on the southern boundary of the site. The previous report is attached as an appendix.

4 The application is now subject of a planning appeal and officers having not resolved

the issue on the adjoining site do not feel in a position to recommend the scheme, and would have been minded to refuse permission for the following reason; The proposed use of land to the south of the site for the open parking of buses would be prejudicial to the future use of the adjoining site, in the light of the recent approval of the adjoining site for mixed commercial / residential purposes it is considered that the proposal would give rise to a future loss of amenity by reason of unacceptable levels of noise and fumes in close proximity to residential windows and amenity areas. The proposal is therefore contrary to Policy 3.2 Protection of Amenity, 3.11 Efficient Use of Land of the Southwark Plan July 2007.

5

Reason for Lateness of report This application is subject of a non-determination appeal. The report has been put forward as a late item due to the need to have Members' agreement to the proposed recommendation in order to meet the appeal deadlines.

LEAD OFFICER Gary Rice Head of Development & Building Control REPORT AUTHOR Sonia Watson Team Leader Development Control [tel. 020

7525 5434] CASE FILE TP/2052-A Papers held at: Regeneration Department, Council Offices, Chiltern, Portland Street SE17

2ES [tel. 020 7525 5402]

APPENDIX

Item No.

Classification OPEN

Decision Level Camberwell Community Council

Date 17/07/2007

From Interim Head of Development & Building Control

Title of Report DEVELOPMENT CONTROL

Proposal (05-AP-0421) Demolition of existing workshop building between Warner Road and Camberwell Station Road and use of area for open parking for cars during the day and buses at night. Construction of new workshop extension behind 1-33 Camberwell Station Road.

Address London Central Bus Co.Ltd, 2 Warner Road SE5. Ward Camberwell Green

PURPOSE

1 This application for consideration at Community Council because of the number of objections that have been received.

RECOMMENDATION

2 To agree in principle to the grant of planning permission, (subject to the suggested

conditions) for the workshop extension and new acoustic wall and to delegate to officers to resolve the issue in respect of the provision of a new parking area for buses and to report back to Members.

BACKGROUND

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Site location and description The application site is a bus depot, office building, associated workshop/repair building and car parking area. The office building lines approximately half of the west side of Warner Road, with the main depot building behind. The site is bounded to the west by Camberwell Station Road and to the north by Camberwell New Road, where the car parking area is located behind four-storey residential buildings and a pub. The workshop/repair building is located to the south of the site and is the only building on the application site that faces onto both Warner Road and Camberwell Station Road. Buses access the site via an entrance on Camberwell Station Road, turning right into the workshop/repair building or left into the main depot as appropriate, and exiting themain depot via an exit on Camberwell New Road, close to the corner with Warner Road. Surrounding land uses consist of residential use on the other side of Warner Road, consisting of the five-storey Edwardian apartment blocks of the Samuel Lewis Trust and two/three-storey houses further along; workshops and garages under the arches of the railway line on the other side of Camberwell Station Road; a snooker club, a Greek Orthodox church and another bus depot on the north side of Camberwell New Road; a Royal Mail sorting office sandwiched between the main bus depot and Camberwell Station Road, and the aforementioned four-storey buildings on the

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northern part of Camberwell Station Road and on Camberwell New Road. No part of the application site is located in a conservation area, nor are any listed buildings affected, although the Warner Road and Camberwell New Road frontages of the office building are of attractive Edwardian character (and are unaffected by the proposals). Planning History Planning permission was granted in 1981 for use of part of the existing car park to provide an overnight bus parking zone. Planning History of Adjoining Sites Land at 69-91 (odd) Camberwell Station Road and 90-106 (even) and 108A Warner Road, planning permission was granted subject to a S106 Agreement on 2/5/2007 for the redevelopment of the site to provide 83 residential units and 1663m² of Class B1 (Office) floorspace in three separate buildings ranging in height between 3 storeys (9m) and 6 storeys (18.5m); Communal open space; Basement car parking and bicycle storage. Details of proposal Permission is sought to demolish the workshop/repair building and use the land as an open rolling parking area for cars during the day and buses overnight, together with a small staff car park for early shift workers. A new workshop would be built in the form of an extension to the main depot building, on land where the current car parking area is located (behind the four-storey residential buildings of Camberwell Station & New Roads). In effect, the proposal seeks to swop the existing workshop building and existing car parking area around. The workshop extension would consist of two elements. The bulk of the extension would comprise the main workshop, which would be two-storeys high and built of yellow stock brickwork on the first storey, with composite cladding wall panels above, and light-coloured insulated metal roof cladding. This would extend the existing boundary wall of the main depot out 52m in part and 72m in part. The second element would extend out further from this and would be one-storey high, housing a smaller workshop and storage areas. This part would be set back 3 m from the rear fences of the four-storey residential buildings and their 7-8m-long gardens - to which this part of the extension would run parallel. The material used would also be yellow stock brick. At the southern end of the site, the new car/bus park would be able to accommodate thirty-eight 'bendy' buses or seventy-six double decker buses at full capacity, together with seventeen separate car-parking spaces for early shift workers. The car/bus park would be surrounded by a wall-mounted 'Buffalo' acoustic barrier and would be lit by eight Aeris forward-throw 400w lights on 12m columns, two Aeries forward-throw 400w lights wall-mounted 8m high, and one Syracuse 100w light mounted at 8m out of the back of an Aeris column. The depot will continue to operate as it does currently, with buses entering the site from Camberwell Station Road and exiting from the corner onto Camberwell New Road. Inspection pits are being phased out for health and safety reasons, to be replaced by 'column lifts' which jack the buses up to a suitable height for undercarriage maintenance. The existing workshop isn't sufficiently high for this operation to be carried out while still avoiding the roof structure and any high-level services. In addition, housing the workshop/repair uses within the main depot building will help

rationalise uses throughout the site and provide a larger bus parking area, which is needed so that the bus fleet can be increased.

FACTORS FOR CONSIDERATION

Main Issues

15 The main issue in this case is the potential impact of the development upon the

amenity of neighbouring occupiers. Other issues include the appearance of the proposal and public transport implications.

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Planning Policy At its meeting on 24th March 2007 the Council resolved to adopt the emerging Southwark Unitary Development Plan [Jan. 2007] subject to any direction given by the Secretary of State. The policies in the Southwark Unitary Development Plan 2007 now have significant weight in the determining of planning applications. Whilst the 1995 Unitary Development Plan remains the statutory development plan until such time as the Southwark Unitary Development Plan 2007 is formally adopted, the Council will give predominant weight to the 2007 plan policies in determining pending applications unless material considerations indicate otherwise.

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The Southwark Plan [Modifications Version] March 2007: 3.2 'Protection of Amenity' 3.12 'Quality in Design' 3.13 'Urban Design' 5.1 Locating Developments 5.2 Transport Impacts 5.4 'Public Transport Improvements'

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Southwark Unitary Development Plan 1995 [UDP]: E.1.1 Safety and Security in the Environment E.2.3 Aesthetic Control E.3.1 Protection of Amenity B.1.1 Protection of Employment Areas B.2.1 Employment Areas and Sites T.3.1 Safeguarding and improving the Quality of Public Transport Services and Facilities T.3.2 New Public Transport Schemes and Services

Consultations

19 Site Notice: 13/4/05 Press Notice: 14/4/05

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Consultees: Flats 1-5, 334 Camberwell New Road, SE5 Apollo Home Entertainment, 334 Camberwell New Road, SE5 Flats 1-15, Tillings Close, Warner Road, SE5 9JU Thames Reach Bondway, Tillings Close, Warner Road, SE5 9JU Flats 101-148 (inclusive), Block A, Samuel Lewis Trust Dwellings, Warner Road, SE5 Flats 201-245 (inclusive), Block B, Samuel Lewis Trust Dwellings, Warner Road, SE5 Flats 301-348 (inclusive), Block C, Samuel Lewis Trust Dwellings, Warner Road, SE5 Flats 401-448 (inclusive), Block D, Samuel Lewis Trust Dwellings, Warner Road, SE5

Flats 501-544 (inclusive), Block E, Samuel Lewis Trust Dwellings, Warner Road, SE5 Flats 601-624 (inclusive), Block F, Samuel Lewis Trust Dwellings, Warner Road, SE5 51, 51a, 53, 55, 57, 59, 61, 63a, 63b, 65, 69, 69a, 71, 73, 75 Warner Road, SE5 Flats 1-4 (inclusive), 67 Warner Road, SE5 Flats 1-4 (inclusive), Crawford House, Cnr of Warner Road and Crawford Road, SE5 Flats 1-20 (inclusive), Mitcham House, Crawford Road, SE5 Ali’s Shop, 77 Warner Road, SE5 Lambeth Vehicle Pound, 92-106 Warner Road, SE5 Cedar’s Recovery, 108a Warner Road, SE5 Rose & Thistle PH, 97 Warner Road, SE5 International Glaucoma Association, 108 Warner Road, SE5 Golf Colour Ltd, First Floor, 108 Warner Road, SE5 Quayland Limited, Photo Lithographers, 108 Warner Road, SE5 The Symbiosis Group Ltd., 110 Warner Road, SE5 Shaftesbury Society, 93 Camberwell Station Road, SE5 Elease Taxis, Arch 370, Camberwell Station Road, SE5 Queens Motors, 91 Camberwell Station Road, SE5 European Autos, Arch 367, Camberwell Station Road, SE5 9JN Grove Repair Centre, Arch 362-364, Camberwell Station Road, SE5 Nitron Process Engineering Ltd, 69-73 Camberwell Station Road, SE5 Pace Auto Services/Camberwell Accident Repair Centre, 361 Camberwell Station Road, SE5 Manager, Royal Mail, Camberwell Delivery Office, 35-45 Camberwell Station Road, SE5 The Occupier, Arch 350, Camberwell Station Road, SE5 The Occupier, Arch 351, Camberwell Station Road, SE5 The Occupier, Arch 352, Camberwell Station Road, SE5 The Occupier, Arch 357, Camberwell Station Road, SE5 The Occupier, Arch 358, Camberwell Station Road, SE5 Grand Autos Ltd, 355-356 Camberwell Station Road, SE5 Shan Autos, 353-354, Camberwell Station Road, SE5 Hanuman, 5 Camberwell Station Road, SE5 5a Camberwell Station Road (Station Terrace), SE5 Master Mechanix, 18 Camberwell Station Road, SE5 Scotch & American Autos, Arch 348, Camberwell Station Road, SE5 9JN Discount Car Spares, 344 Camberwell Station Road, SE5 Rumbles Cafe, 3 Camberwell Station Road, SE5 Upper Flat, 3 Camberwell Station Road, SE5 RSPCA Camberwell Clinic, 1 Camberwell Station Road, SE5 Upper Flat, 1 Camberwell Station Road, SE5 Jack Beards PH, 296a Camberwell New Road, SE5 Top Floor, 7 Camberwell Station Road, SE5 7a, 7b, 9a, 9b, 11a, 11b, 11c, 13a, 13b, 13c, 15a, 15b, 15c, 17a, 17b, 19a, 19b, 19c, 21a, 21b, 23a, 23b, 23c, 25a, 25b, 27a, 27b, 27c, 29a, 29b, 31a, 31b, 31c, 33a, 33b, 33c Camberwell Station Road, SE5 Jono's, Camberwell New Road, SE5 Camberwell Snooker Club, Camberwell New Road, SE5 St. Mary's/Aghia Maria Greek Orthodox Church, Camberwell New Road, SE5 Manager, Texaco Petrol Station, 316-322 Camberwell New Road, SE5 298a, 298b, 298c, 300a, 300b, 300c, 302a, 302b, 304a, 304b, 304c, 306a, 306b, 308a, 308b, 308c, 310a, 310b, 310c, 312a, 312b, 314a, 314b, 314c Camberwell New Road SE5.

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Replies from: Statutory: Network Rail. Would need to be satisfied that Network Rail's infrastructure would not be adversely affected by the proposal either during construction or after

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completion, and requests details of any demolition of existing buildings and any tower cranes to be used on site, to that effect. Statutory: Transport for London Generally support the scheme on the basis of the submitted Transport Assessment, suggest that there be an increase of cycle spaces and no increase to staff parking due to the high number of traffic incidents in the locality. Internal: Pollution Control, Noise, Satisfied with the Noise Impact Assessment , but it is recommended that a condition should be placed on the permission that the noise barrier should installed in the areas as shown on the plan 2005-4340-B1. The building elements of the workshop will need to provide an installed sound reduction performance as set out in table 2005/4340/T10 in the report, and plant should meet the emission limits as set out in Table 2005/4340/T11 in the report. Internal: Traffic Group. Given the increased impact to Camberwell Green signalled junction, a traffic impact assessment is requested, showing both existing and proposed levels of traffic and both existing and proposed hours of operation. Internal: Archeology. There may be an adverse impact on archaeological remains, and archeological investigations may be necessary. Requests attachment of conditions to secure the protection of archeological deposits and investigations. Internal: Metropolitan Police Service Liaison. No issues. 76 Allendale Close. Will be supporting, if concerns can be addressed. Wants to know why the gross floor area of the application site is increasing and whether the bus parking area is increasing in size (which the correspondent would support). States that the overnight bus parking area is underused, and "must be expanded to many more routes". Complains that the scope of the transport assessment isn't wide enough, and should extend further south. Would like to see the depot "utilised in a much better way than in the past" which means it "must accommodate buses and allow the turnaround day and night at the depot, not along the Orpheus Street/Daneville Road gyratory," which suffer from congestion and long queuing. Approves of proposed noise attenuation measures. Would like to see the site utilised for even more significant transport interchange links. 322 Samuel Lewis Trust Dwellings, Warner Road. Does not support the application on balance, because the car park "will not be for the people in the neighbourhood to park at nights, when it is most needed." 69 Warner Road. Objects, on the grounds that the proposals will exacerbate the noise emitted by buses' reverse warning sirens; unacceptable levels of pollution; the possibility of envrionmental contamination with the possible presence of asbestos, possible soil contamination and unexploded ordnance. Complains about Southwark's consultation methods. Camberwell Society. Objects, on the grounds of detrimental effect to the residential nature of Warner Road and lack of information on traffic movements and impact. 434 Samuel Lewis Trust Dwellings, Warner Road. Supports the application on balance. No reason given. 65 Warner Road. Two identical letters submitted by related occupiers. Objects, on the basis that the application will exacerbate already 'intolerable' noise levels, and on the grounds of noise and dust during demolition, as well as the risk from the possible presence of asbestos,unexploded ordnance, hydrocarbons and ground gases.

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25b Camberwell Station Road. Does not support the application on balance, on the grounds of diminished outlook and increased noise and pollution. 226 Samuel Lewis Trust Dwellings, Warner Road. Does not support the application on balance, on the grounds that the proposal will result in increased noise, increased congestion and pollution. 71 Warner Road. Two representations from this address. Objects, on the basis that the Environmental Noise Impact Survey is inadequate and inaccurate, and on the grounds of risk from the possible presence of asbestos, unexploded ordnance, hydrocarbons and ground gases. Complains about the council's consultation procedure, alluding to the different consultation start dates on site notices and consultation letters. 73 Warner Road. Does not support the application on balance, on the basis that the Environmental Noise Impact Survey is inadequate and inaccurate. 542 Samuel Lewis Trust Dwellings, Warner Road. Does not support the application on balance, on the grounds of the risk of increased vehicle traffic and unsuitability for purpose. "There is a primary school in the area and crossing the road is hazardous enough." 604 Samuel Lewis Trust Dwellings, Warner Road. Does not support the application on balance, on the grounds that the proposal will result in in increased traffic, noise and pollution. 124 Samuel Lewis Trust Dwellings, Warner Road. Supports the application on balance. No reason given. Camberwell Traders Association. No explicit objection or support, but requests that at least part of the open parking area be made available for public parking, as Camberwell is desperately short of parking. Opines that the existing workshop on Warner Road is "not very attractive" and with "the proposed acoustic fence could become even more ugly, " and asks whether the applicants could landscape and maintain the area as a contribution to the community. 5 Valmar Road (owner of 61 Warner Road). Objects, on the grounds that the proposal will result in increased noise and be very unsightly, and inadequate and inaccurate noise assessment. Proposal for acoustic fencing is appreciated but felt to be insubstantial. 16 Mitcham House, Crawford Road. Would object if additional lighting was going to be installed, if buses were allowed to reverse late in the evening and at night, and if buses were allowed to rev their engines either late in the evening or early in the morning. CTC Southwark. Objects, on the basis that the proposal will lead to over-provision of car-parking and "yet more private vehicles on the over-crowded streets of Southwark and London. The bus companies should not be encouraging yet more driving to work and should find another means of transport for their drivers." 3 Dunnage Crescent, SE16. Objects, on the basis that the proposal will lead to over-provision of car-parking and "yet more private vehicles on the over-crowded streets of Southwark and London. The bus companies should not be encouraging yet more driving to work and should find another means of transport for their drivers."

PLANNING CONSIDERATIONS

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Design The overall design of the proposed structure is relatively simple, the single storey element would be built in Yellow Stock brickwork with the main extension would comprise composite cladding wall panels and a light coloured metal roof. Impact of the proposed extension on adjoining residential properties The proposed new building would lie 3 metres off the boundary with the rear gardens of the four storey terraces along Camberwell Station Road. This would provide an escape passage from the rear of the proposed building. The plans indicate a drop in the ground floor levels thereby giving an overall visible height of 3.375 metres from the ground level of the properties on Camberwell Station Road beyond the 3 metre escape route. This single storey element would include storage areas and a workshop, the depth of this element varies along the site between 2 to 7 metres. The higher part of the extension would have a shallow pitch and a maximum height of 9.4 metres. The increase in the amount of building on the site would result in a loss of outlook from the rear of the houses on the Camberwell Station Road and the Camberwell New Road properties, which previously had a more open aspect. This loss needs to be assessed and balanced against the benefits from providing an improved garage capable of accommodating the number and type of buses now required to provide a reasonable level of service. Notwithstanding the loss of outlook there would not be a significant loss of daylight or sunlight such that would warrant refusal of the scheme. Noise A number of concerns were raised by residents about the increase in noise and the adequacy of the documentation submitted. The information has been reviewed by the Council's acoustic officers and additional information submitted. It is considered that subject to conditions the level of noise could be adequately dealt with so as to not result in a loss of amenity to the existing or future residents. The proposal would result in the existing parking area behind the residential properties on the Camberwell Station Road and the Camberwell New Road being developed and a new open parking area to the south of the site being created further along Camberwell Station Road in place of the existing workshop building. The southern boundary of the bus garage adjoins a site recently granted permission for 83 residential units. The acoustic report carried out by the applicants and the comments received by the Council's acoustic officer did not take this development into account.Whilst the proposed acoustic wall would contain some of the noise resulting from the manoeuvring of buses, there would inevitably be a level of disturbance to the proposed units located closest to this boundary. Concern is also raised by residents about the queuing of buses along Camberwell Station Road waiting to be parked, whilst the applicant has advised that this should not occur unless there is an emergency, it is suggested that a condition be imposed to retain a level of control should queuing occur on a regular basis. Traffic impacts The Transport Assessment (TA) estimates that the new bus garage would generate some 11 vehicle trips (bus and car) during the AM peak hour and some 3 vehicle trips in the PM peak hour in weekdays. Transport for London (TfL) considers that the overall increase in daily traffic resulting from the garage extension would not result in any unacceptable impact to the local road network, this is the view supported by the

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Council's transport officers.

Highway safety - The accident statistics indicate that there is a high level of incidents in this location. TfL advise that the level of staff parking remain as existing and the use of cars should not be encouraged over more sustainable modes such as cycling and public transport.

Cycling - It is noted that cycle parking is provided on site. However, no specific information is noted in the TA regarding the level of cycle parking provision. 34 cycle parking spaces are proposed for the development site. For consistency with the TfL Cycle Parking Standards, as referred to in the London Plan (Annex 4, Para 37), the level of cycle parking provision should be judged upon its own merits. 34 spaces for 678 employees is seen to be unreasonably low. In line with advice from TfL it is recommended that a condition be imposed requiring at least 1 cycle space for every 10 staff.

CONCLUSION

This application has arisen from the need to update existing facilities so that the numbers of buses in the fleet can be increased and to replace the existing inspection pits which are being phased out for health and safety reasons. The scheme would impact on both the amenities of the existing residents in terms of outlook and future residents in terms of the location and size of the open parking area. The proposal would on the other hand give the bus company a more efficient layout and enable them to comply with health and safety regulations, this should in turn result in an improvement to bus services. In terms of the overall assessment of the proposed new workshop extension on highway safety grounds, and impact on the amenity of the existing residential units the application is on balance considered acceptable. There does however, remain an outstanding concern about the 24 hour use of the land to the south for the open parking of buses and cars and its impact upon the recently consented residential scheme. There has not been sufficient consideration given to any potential impacts due to the change in circumstance since the submission of this application. Having informally discussed the matter with the Council's acoustic officers it is considered that there is a possible solution, which would require some form of partial enclosure of the parking area. To offer some degree of comfort to the applicant it is requested that Members, if so minded agree to the principle of the workshop extension and delegate to officers to resolve the open parking issue, reporting back to Members to make a final decision.

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COMMUNITY IMPACT STATEMENT In line with the Council's Community Impact Statement the impact of this application has been assessed as part of the application process with regard to local people in respect of their age, disability, faith/religion, gender, race and ethnicity and sexual orientation. Consultation with the community has been undertaken as part of the application process. a] The impact on local people is set out above. b] The following issues relevant to particular communities/groups likely to be affected by the proposal have been identified as the open parking of buses and cars on land for which a residential consent has been granted.

c] The likely adverse or less good implications for any particular communities/groups have been also been discussed above. Specific actions to ameliorate these implications are the acoustic walls around the site boundary and conditions to restrict the number of cars permitted to park in the area at any one time and a condition of the provision of additional

SUSTAINABLE DEVELOPMENT

60 The application should facilitate extra buses and increase public transport provision,

which should improve services and encourage the use of buses.

LEAD OFFICER David Stewart Interim Head of Development & Building Control

REPORT AUTHOR Sonia Watson Team Leader Development Control [tel. 020 7525 5434]

CASE FILE TP/2052-A Papers held at: Regeneration Department, Council Offices, Chiltern, Portland Street SE17

2ES [tel. 020 7525 5402]

RECOMMENDATION

This document shows the case officer's recommended decision for the application referred to below. This document is not a decision notice for this application.

Applicant The Go Ahead Group PLc Reg. Number 05-AP-0421 Application Type Full Planning Permission Recommendation Refuse Case

Number TP/2052-A

Draft of Decision Notice

Planning Permission was REFUSED for the following development: Demolition of existing workshop building between Warner Road and Camberwell Station Road and use of area for

open parking for cars during the day and buses at night. Construction of new workshop extension behind 1-33 Camberwell Station Road.

At: CAMBERWELL BUS GARAGE, 2 WARNER ROAD, LONDON, SE5 9LU In accordance with application received on 07/03/2005 The applicant has appealed to the Secretary of State against the failure of the Council to issue a decision. Reason for refusal:

The proposed use of land to the south of the site for the open parking of buses would be prejudicial to the future use of the adjoining site, in the light of the recent approval of the adjoining site for mixed commercial / residential purposes it is considered that the proposal would give rise to a future loss of amenity by reason of unacceptable levels of noise and fumes in close proximity to residential windows and amenity areas. The proposal is therefore contrary to Policy 3.2 Protection of Amenity, 3.11 Efficient Use of Land of the Southwark Plan July 2007.