References: P/2010/2894 01091/P/P1

Address: St Margaret’s House, Sutton Court Road, Chiswick

Ward: Turnham Green

Proposal: Extension of building to create 26 self-contained bedsits, associated communal facilities and training facilities

Drawing numbers: Drawing Numbers 868OD1, 868OD2, 868OD3B, 868OD4A, 868OD10, 868OD12, 868OD13, 868OD14, 868X2, 868X3, 868X4, 868X5, 868X6, received 06/10/10

Design and Access Statement, Energy Demand and Sustainability Assessment, Air Quality Assessment, Daylight and Sunlight Report, Transport Statement received 11/10/10.

Application received: 12/10/10

The application is being submitted to Chiswick Area Planning Committee for comment, prior to the application being reported to the Sustainable Development Committee in December 2010 for decision.

1.0 SUMMARY

1.1 The application proposes the redevelopment of St. Margaret’s House, which is presently operated by the Council as supported housing for young single mothers. The redeveloped site would provide temporary supported housing for young people aged 16 to 21 in the Borough, who are either at risk or are leaving care and are unable to live independently or remain in the family home. The housing would be provided by the Shepherd’s Bush Housing Association (SBHA).

1.2 The Council’s Executive agreed a contract for the sale and redevelopment of the site to SBHA subject to funding being secured from the Homes and Communities Agency, as well as planning permission and other regulatory consents for the scheme being obtained. The redevelopment would be part of a scheme of consolidation of supported housing provided by the Council. Existing residents would be relocated to the existing hostel for young women at Elm Court (Spencer Road, Chiswick), which is to be refurbished with proceeds received from the sale of a Council owned property at 61 Barrowgate Road, Chiswick.

CHISWICK AREA (PLANNING) COMMITTEE

16th NOVEMBER 2010

Sean Doran

e-mail: sean.doran@hounslow.gov.uk

1.3 The proposal would demolish and replace the existing building, with the exception of the front of No. 50, the replacement building being three-storey. Parking would be provided to the front and rear of the site. Residents would have self-contained facilities and there would be an on-site manager.

1.4 Consideration would be given to the need for the housing, the design and impact of the proposal on the streetscene and character of the area, environmental constraints, the impacts on the living conditions of neighbours, the standard of accommodation for future residents, impacts on traffic and parking conditions in the area and sustainable design.

1.5 It is recommended that Members comment on the applications and that Members’ comments be reported to Sustainable Development Committee.

2.0 SITE DESCRIPTION

2.1 St Margaret’s House is a three-storey building originally comprised of three Victorian era houses, Nos. 50, 52 and 54 Sutton Court Road. The Council owns the building. No. 50 is one half of a pair of semi-detached houses; it has been linked by a three-storey extension to the adjoining pair of semi-detached houses, Nos. 52-54. This extension is c1960s.

2.2 The building was formerly an elderly care home with shared facilities. At present, the property operates as a hostel facility providing supported housing for homeless young mothers. It houses 21 bedrooms with capacity to accommodate up to 21 adults and 21 children.

2.3 The building is in a poor state of repair with some maintenance problems, and the extensions are unsympathetic to the style and form of the original buildings.

2.4 The site itself is not located in a conservation area, but is sandwiched between Chiswick House and Wellesley Road Conservation Areas. Both areas are characterised by domestic buildings with large gardens.

2.5 The site is located adjacent to the A4, with large and dense shrubs and trees forming a barrier between these roads and the main building. There is a large four-storey block of flats to the rear of the site.

2.6 Whilst Nos. 48-54 Sutton Court Road form a consistent architectural group, other adjacent buildings are varied in architecture, although the dominant style of buildings in the vicinity is large Victorian/ Edwardian semi-detached houses.

3.0 HISTORY

3.1 None

4.0 DETAILS

4.1 Background

4.2 The Council has resolved to redevelop the site and engaged in tendering procedures for the development of the site to provide support services for young people to prepare them for independent living.

4.3 The brief called for the provision of supported accommodation for up to 26 young people at risk of leaving care between the ages of 16-21 years who are unable to live independently or remain in the parental home. The brief required a specific short-term (assessment) facility for up to five16-17 year old newly homeless young people and provision for longer-term supported accommodation for up to 21 young vulnerable homeless people aged 16-21 years old. An intensive support service was required to be provided based on on-site services.

4.4 The aims of the brief were that the housing support provider would provide intensive support service to vulnerable young people who have been living in the borough. The service would have a support planning process and good local partnership links to develop independent living skills, cultivate self confidence, cultural identity and social inclusion.

4.5 The short-term facilities for 16 and 17 year olds with medium support needs will offer intensive short stay provision for up to 8 weeks whilst family mediation is undertaken.

4.6 The average duration of service for those young people in the longer term accommodation should not exceed 24 months whilst based at the project.

4.7 The brief required compliance with all relevant Local Development Framework policies, including wheelchair accessibility.

4.8 In November 2009, the Executive agreed to dispose of the Council’s freehold interest in St. Margaret’s House and award the contract for the sale and redevelopment to Shepherds Bush Housing

Proposal

4.9 The application proposes the redevelopment of the site to provide a new building providing supported housing for young people. The existing building would be demolished, with the exception of the façade to No. 48, which is one half of a pair of semi-detached houses.

4.10 The proposed building would be three-storey with pedestrian and vehicle access to the site maintained from Sutton Court Road. The building would be 28.5m wide (widening to 30m adjacent to the security gate) on Sutton Court Road, with four obvious vertical sections and a flat roof with railings. Each end section is accented by a flat roofed projecting bay, whilst the middle two sections have projecting bays at first floor level and above. The façade would be no higher than the adjacent existing buildings bays. The brickwork would be red and buff coloured brick to complement the existing, with reconstructed banding, also to match existing. The middle section projecting bays would be clad in rockwool rockpanel cladding (a timber substitute). Aluminium coping would edge the roof and there would also be small areas of grey cladding.

4.11 The rear elevation would differ in design, with no projecting bays, other than at ground floor level. The building would stagger away from the original element of the site to allow light into neighbouring properties. Buff brickwork with red detailing with stone banding would be the materials used. There would be small areas of cladding similar to that of the front elevation. This elevation would be 27.3m wide at ground floor level, 23m wide at first floor level and 18.5m wide at second floor level. The southern elevation, facing the A4 would be 21.8m wide.

Layout

4.12 Ground Floor- This would consist of a large reception area and various staff and operational rooms at the front of the site. To the rear would be six 1-bedroom single occupancy flats 34.9m2 in floor area. Each flat would consist of a bed/sitting room, kitchen, shower room/bathroom, hall and storage. All are wheelchair accessible, with one especially designated for wheelchair use.

4.13 First Floor- This would consist of a further 11 1-bedroom single occupancy flats, all wheelchair accessible (34.8m2 to 35.3m3).

4.14 Second Floor- This would consist of a further 9 1-bedroom single occupancy flats (31m2 to 35.3m3), all wheelchair accessible. A single staff flat, similar in size to the others on this floor would also be present.

Access

4.15 The building is designed to comply with Part M of the Building Regulations and all other relevant legislation.

Sustainability

4.16 The Code for Sustainable Homes does not apply to supported housing, however the Council’s tender specification required Code for Sustainable Homes Level 4 to be achieved. In addition, the scheme proposals comply with the design and quality standards required by the Homes and Communities Agency. Where possible, the building will meet Lifetime Homes standards.

4.17 Solar water heating panels combined with photovoltaic panels are to be provided to the main roof to meet the required 20% renewable energy target.

4.18 A sustainable drainage system will be provided, likely to entail the provision of an underground attenuation tank to collect rainwater. Paving used at the front of the site will be small concrete block paving to reduce surface water run-off. Paving used at the rear will be chosen to avoid damage to tree roots. It is proposed that grasscrete paving will be used to support the car parking spaces at the rear of the property, maintaining the appearance of a grassed area at the rear.

4.19 Other environmental design features include:

• High efficiency boilers

• Low energy lighting.

• High efficiency heating system

• Super insulation in storage tanks

• Whole House ventilation with heat recovery

• Low air permeability

• Low flush toilets

• 9 litre per minute showers

• 2 litre per minute low flow taps

• Low energy and low water appliances

• Water butts.

Refuse and Recycling.

4.20 A 1 x 1100 litre standard refuse bin (Eurobin), 1 x 1100 litre bin for cardboard recycling and 1 estate recycling frame would be provided at the rear of the property. As it is not possible for collection trucks to enter the site, the wheeled bins would be placed close to the kerb on collection days.

Safety and Security

4.21 The scheme is designed to comply with Secured by Design and incorporates the following design features:

• Boundary fences at the rear and side of the site to be a minimum 1800mm high fence topped with a 300mm high trellis.

• Security gates at the head of the side entrance to the site.

• Staff areas are at the front of the property and provide natural surveillance

• Entrance doors will be PAS23/24 rated with appropriate locking facilities

• Windows will meet secured by design standards and will incorporate laminated glass and toughened glass double glazed units.

• A single letter box, only accessible from staff areas will be provided

• The reception desk will be climb-proof and incorporate a security and fire shutter, as well as panic alarms. Interview rooms will have toughened glass and electronic locks.

Air Quality

4.22 Flats will be provided with whole house ventilation systems, with fresh air drawn in from the north-east corner of the site, i.e. the point furthest away from traffic.

4.23 Boundary fencing and trees along the A4 will be maintained in order to aim to help air quality.

Parking

4.24 Access to the development via the existing footway crossover to Sutton Court Road. The crossover is 8.5m wide at the highway. A visibility splay 2.4m x 43m along Sutton Court Road would be provided to meet the guidance in Manual for Streets. Tracking diagrams have been provided showing that both cars and minibuses can enter and leave the site.

4.25 The proposal includes 6 car parking spaces, three at the front and three at the rear. One of these will be for disabled use. Secure sheltered cycle parking for 3 cycles will be provided.

5.0 CONSULTATIONS

5.1 Sixty-two (62) neighbouring residents were notified by letter on 11/10/10 with an additional four (4) residents notified on 13/10/10. A site notice was posted on 11/10/10 and a press notice published.

5.2 As of writing the thirteen (13) responses objecting to the proposal and one letter in support had been received. A summary of the comments is given below. Any further responses will be reported in an addendum.

Comment

The existing building has been unacceptably been allowed to fall into a state of disrepair especially taking into account the nature of the current residents who are homeless 'at risk' young mothers with babies.

St Margaret's most definitely needs to be redeveloped or sold and considering the current financial climate and the cuts that we are all facing, surely it would seem far more logical for Hounslow to sell this property. A private developer would undoubtedly offer a very high price for such a large property despite its condition and the funds could be reinvested to improve welfare services across the borough.

Hounslow Council have neglected St Margaret's as a property for the last 10-15 years. It appears to be a refuge for all sorts of people that are either itinerants, one parent families, unemployed foreigners or drug pushers.

It will encourage the wrong sort of non-tax paying individual, crime will increase and will not be managed well enough in order to safeguard the area.

Increased crime and safety risk to neighbourhood.

Overdevelopment of site and lack of amenity space.

The scale and scope of the development is far in excess of what can be expected of the land and existing building. The planned building will negatively impair the neighbours with its size and oppressiveness.

The proposed deign is completely out of keeping with the rest of the residential neighbourhood which are all Victorian buildings. The design is ugly and will provide a negative contribution to the landscape.

It does not have the necessary car parking space and is very dangerous in terms of access and exit onto Sutton Court Road. It will cause more accidents at a very busy junction. This is probably Chiswick’s busiest junction and the addition of turning vehicles here, in conjunction with the existing bus stop, would be highly dangerous.

The building will significantly increase in size and most definitely affect the adjoining neighbours light and outlook from their gardens.

The Council may have a conflict of interest in selling site to a housing association and then being in charge of planning permission.

Inadequate consultation of neighbours.

Area should retain residential character.

Already two sheltered housing schemes nearby.

The layout of the shelter is not conducive to rehabilitating young homeless people back into the community and there is little outside space.

The proposed increase in parking would adversely affect traffic on a busy road, near a bus stop and major junction.

The building does need some TLC, & it is a lovely big oldish building. I have no qualms about this and cannot see it as a eyesore once finished, and I feel sure the Planning Permission takes into account the surrounding area.

6.0 POLICY

6.1 National Policy Guidance

PPS1

PPS3

Delivering Sustainable Development

Housing

PPS5

PPG13

PPS22

PPG24

PPS25

Planning for the Historic Environment

Transport

Renewable Energy

Planning and Noise

Development and Flood Risk

6.2 Determining applications for full or outline planning permission

6.3 When determining applications for planning permission, the authority is required to have regard to the development plan, so far as is material, and to any other material considerations. In addition, the determination must be made in accordance with the development plan unless material considerations indicate otherwise.

The Development Plan

6.4 The Development Plan for the Borough comprises the saved policies in the Council’s Unitary Development Plan (‘UDP’), the Employment Development Plan Document, the Brentford Area Action Plan and the London Plan.

6.5 The London Plan (Consolidated with alterations since 2004) was adopted in February 2008.

6.6 Relevant London Plan policies are:

Policy 3A.1 Increasing London’s supply of housing

Policy 3A.3 Maximising the potential of sites

Policy 3A.5 Housing Choice

Policy 3A.6 Quality of new housing provision

Policy 3A.13 Special needs and specialist housing

Policy 3A.17 Addressing the needs of London’s diverse population

Policy 4A.1 Tackling climate change

Policy 4A.3 Sustainable design and construction

Policy 4A.7 Renewable energy

Policy 4A.13 Flood risk management

Policy 4A.14 Sustainable drainage

Policy 4A.20 Reducing noise and enhancing soundscapes

Policy 4B.1 Design principles for a compact city

Policy 4B.3 Enhancing the quality of the public realm

Policy 4B.5 Creating an inclusive environment

Policy 4B.8 Respect local context and communities

Policy 2A.1 Sustainability criteria

Mayor of London - Supplementary Planning Guidance (SPG):

Providing for Children and Young People’s Play and Informal Recreation

Accessible London: achieving an inclusive environment

Housing

Sustainable Design and Construction

6.7 The UDP was adopted in December 2003 and was amended and saved as of 28 September 2007 by Direction from the Secretary of State.

6.8 Relevant UDP policies are:

Unitary Development Plan 2003

IMP.1.1 Integrating Patterns of Land Use & the Provision of Transport

IMP.1.2 The Reuse and Recycling of Urban Land

IMP.6.1 Planning Obligations

ENV-B.1.1 New Development

ENV-B.2.2 Conservation Areas

ENV-B.1.5 Environmental Improvements

ENV-B.1.9 Safety and Security

H.4.1 Housing Standards and Guidelines

H.7.1 Supported Housing

T.1.2 The Movement Implications of Development

T.1.4 Car & Cycle Parking & Servicing Facilities for Developments

T.4.3 Traffic Implications of New Development

T.4.4 Road Safety

T.5.3 Vehicle Crossovers and Hardstandings

Supplementary Planning Documents

Planning Obligations

Air Quality

Supplementary Planning Guidance

6.9 1997 Supplementary Planning Guidance- The guidance contained within the Supplementary Guidance was subject to formal public consultation and unlike normal SPG were subject to an inquiry process and consideration by a government inspector. The Inspectors report recommended the appendices be removed from the plan, as they added to its bulk, cost and complexity and may well have consumed further resources at the first review of the UDP. He also considered that they could stand alone away from the main plan as SPG. This was the course of action to be taken by the Council. During the consultation process, objections were received from individual house builders and the HBF. The guidance was amended as part of the process. The Council did not therefore consider it necessary to reconsult on this proposed guidance, but simply to use the guidance in light of the suggested amendments and the Inspector’s comments.

Section 1 Design and layout

Section 3 Safety and security guidelines

Section 4 Daylight and sunlight

Section 9 Form and design.

Section 10 Private amenity space.

Section 11 Roads, footpaths, parking and servicing

Section 12 Internal space provision

Section 13 Housing for people with disabilities

Conservation areas and determining applications for Planning Permission or Conservation Area Consent:

6.10 In considering whether to grant consent with respect to any buildings or other land in a conservation area, the authority shall pay special attention to desirability of preserving or enhancing the character or appearance of the conservation area.

7.0 PLANNING ISSUES

7.1 The main planning issues to consider are:

• The acceptability, in principle, of the proposal

• The design and appearance of the building and its impact on the streetscene

• Environmental constraints

• The impacts on the living conditions of neighbours

• The standard of accommodation for future residents

• The impact of traffic and parking conditions in the area

• Sustainable design

The acceptability, in principle, of the proposal

7.2 National Policy

7.3 National policies support reform of health and social services to encourage independent living in high quality accommodation. The National Supporting People Strategy, Independence and Opportunity, makes clear that the Supporting People programme has a continuing important role to contribute to enabling people to live fulfilled, active and independent lives. The aim of the programme is summed up as enabling people to live in stable homes, as the Strategy states, “Everyone needs a stable roof over their head in order to keep or find a job, a social network, or participate in a range of other opportunities”. Further context is provided by national housing policy objectives which are the prevention of homelessness and encouraging independence.

7.4 Regional Policy

7.5 The London Supporting People Strategy 2005-2010 London’s programme aims to ensure that vulnerable people in the capital have access to support services that enable them to achieve stability, social inclusion and independence. The Supporting People Programme will enable delivery of services, to meet the needs of London’s diverse communities, and provide a foundation for partnerships between the statutory agencies and providers to secure investment in new services where needed.

7.6 Page 8 states: Supporting People is critical in ensuring that vulnerable households are supported in developing the basic life skills they need to build a sustainable lifestyle and secure home. It is also vital that Supporting People engages with, and provides services to, those in the private rented and owner occupier sector whose needs are often overlooked. There can be substantial cost savings to the public purse if vulnerable people receive appropriate interventions. Prevention is more effective than cure and the Supporting People programme allows vulnerable people to receive support how, and where, they need it. All of these outcomes benefit London as a whole and the boroughs should look to share the administrative costs of provision wherever possible.

7.7 Policy 3A.13 (Special needs and specialist housing) of the London Plan states that borough policies should provide for special needs housing, including sheltered housing with care support, staffed hotels and residential care homes, for older persons, children and other client groups, based on up-to-date estimates of need.

7.8 Policy 3A.17 (Addressing the needs of London’s diverse population) states that boroughs should identify the needs of the diverse groups in their area. They should address the spatial needs of these groups and ensure they are capable of being met wherever possible. Existing facilities that meet the needs of particular groups should be protected and where shortfalls have been identified, policies should seek to address them proactively.

7.9 A fifth of London’s population is under 18 and has one of the biggest populations of deprived children and young people. Poverty can affect children and young people through conditions such as overcrowding, poor quality housing.

7.10 Mayor of London Supplementary Planning Guidance: Planning for Equality and Diversity in London states that many Londoners require special needs and specialist housing. The Mayor supports the redevelopment of unpopular, outmoded or hard-to-let sheltered accommodation to provide housing that more closely meets current needs.

7.11 Policy 3.8 of the Draft London Plan on Housing Choice requires supported housing needs to be identified authoritatively through assessment and that good quality new accommodation is provided.

7.12 The proposal is broadly in line with these polices, as it supports the redevelopment of unpopular, outmoded or hard-to-let sheltered

accommodation to provide housing that more closely meets current needs, seeking to provide for a user group in need and where there is a shortfall in protection.

7.13 Local Development Framework

7.14 Policy H.7.1 (Supported Housing) of the Unitary Development Plan states that the Council will, where appropriate, including in large scale developments, seek to facilitate and increase the provision of a variety of supported accommodation for people with special needs, from residential care homes to small scale “ordinary living” housing.

7.15 The following criteria will be taken into account:

(i) The current or designated use of the site.

The current use of the site is for supported housing and the proposal would retain this use, although for a different user group than at present.

(ii) The proposal should meet a local need for that type of supported accommodation and be located within the residential area it is intended to serve, unless the scale of the accommodation is inappropriate for a residential setting

There is a local need (discussed in following sections and paragraphs) and is located in the borough and locale it would serve. The scale of the accommodation, in terms of bulk and massing is greater than at present, although the height is largely the same. The number of residents will not significantly increase.

(iii) There should not be an over-concentration of provision locally

The reason for this proposal is that there is a lack of supply of this type of provision locally and there is a local need.

(iv) The effect of the proposed use on the environment, the amenity of adjoining occupiers and on access and highway considerations

The applicant has attempted to produce a sustainable development, which considers the amenity of its neighbours, access and traffic issues. This is discussed further in subsequent sections/paragraphs)

(v) The location is near shops, appropriate supporting services and public transport

The site is served by local buses and is within reasonable walking distance of Chiswick railway station and Chiswick High Road.

(vi) Residential care homes should have regard to the Council’s standards for registered homes and nursing homes should meet the Health Authority’s registration requirements.

Not applicable as the proposed scheme is not a residential care home.

(vii) The proposal should have regard to the Council’s access guidelines for people with disabilities “Think Access”.

These guidelines have been replaced by more recent London Plan guidance. The proposal would have satisfactory regard for people with disabilities.

7.16 Need

7.17 The Council recognises the particular housing needs of elderly people, people with disabilities and other special needs groups such as students, young single people, rough sleepers and victims of domestic violence and the increased demand for special hostel accommodation resulting from Community Care Policy, which encourages more people to live independently rather than in institutional care. It is recognised that residential areas are the most appropriate locations for supported housing particularly where there is easy access to public transport, local shops and appropriate support services. On the other hand a flexible approach is necessary to ensure that there is not an over concentration of such accommodation in any locality sufficient to change its character. Appropriate sites will be identified for future development, including the option of supported housing in large housing developments through planning agreements.

7.18 This policy is informed and supported by the Council’s Supporting People Commissioning Strategy 2008-2011 that operates under national policies focused on enabling independence in accommodation, prevention and promotion of housing options.

7.19 The previous government established a national policy framework for this strategy in its Strong and Prosperous Communities. Local priorities were set out in the Sustainable Community Strategy. The Council and Local Strategic Partnership are expected to agree a Local Area Agreement which identifies the priority indicators from within the national indicator set that will measure the impact on the sustainable community strategy objectives, and to set performance targets appropriately. Councils will receive an Area Based Grant settlement to help meet these targets. It is proposed that Supporting People funding will be subsumed within Area based Grant from 2009. Housing related support services will therefore need to demonstrate their contribution to the locally set priorities in order to justify continued funding. This will be reflected in services’ support focus, local performance indicators, service specifications, and the target groups for services.

7.20 Non accommodation based services should become the norm in terms of a service model, but there remains a clear place for accommodation-based services either as a short-term emergency response e.g. a women’s refuge or where the individual’s needs are such that an accommodation-based service is the most economic and effective way to meet them e.g. for many young people.

7.21 Attention needs to be given to the potential of streamlining access to housing related services. Due to the difficulty in securing appropriate housing in Hounslow there is still a shortage of accommodation-based units. More innovative ways of securing the building base for such services is needed, including the re-use of existing resources such as sheltered blocks,

and the private rented sector. Partnerships with housing providers and landlords are needed to facilitate this.

7.22 The Homeless Strategy 2008-2013 sets out the Council’s plans for the prevention of homelessness and for securing that sufficient accommodation and support are available for those who become homeless or who are at risk of becoming available. As such the strategy has three fundamental objectives:

• The prevention of homelessness

• To ensure that there is sufficient accommodation for those at risk of homelessness and who are homelessness

• Provide effective co-ordinated support to people who are homeless or those at risk of homelessness.

7.23 The Homeless Strategy recognises that youth homelessness remains a significant issue. It is identified that young people are more likely to need accommodation based support and those that do become homeless need to be in short-term assessment facilities rather than Bed and Breakfast (B&B) accommodation in order to meet the Government’s intention to end the use of (B&B’s) for young people by 2010.

7.24 The London Borough of Hounslow’s Housing Strategy 2010-2015 sets out five key objectives including ensuring well managed and good quality social housing and within this key aim an associated action to ensure provision of supported housing.

7.25 The Youth Homelessness Strategy identified three key objectives :

• Preventing homelessness where possible, including through mediation

services and preventative education programmes, as well as through better liaison between children’s services and housing

• Ensuring sufficient supported and specialist accommodation to meet

demand, in particular to ensure that young homeless people were no longer placed in mainstream bed and breakfast accommodation

• Early identification of young people at risk of homelessness, including

working more closely with schools

• The Strategy proposed in principle the establishment of a Youth

Assessment Centre, for those presenting as homeless, which would receive a revenue contribution from Supporting People.

7.26 Needs for Young People

7.27 Young People Leaving Care

7.28 As of March 2010 there were 102 looked after young people 16 years old and over in Hounslow. All local authorities are subject to National Indicator 147, which measures the proportion of former care leavers aged 19 who are

in suitable accommodation. The 2009/10 figure for Hounslow is 86.5% which is higher than the London average of 83.8%.

7.29 Young People at Risk

7.30 Youth homelessness has decreased as housing prevention and resettlement work has improved the outcomes for young people approaching the Council as homeless and reflects the continuing emphasis on diversion from the statutory system. Whilst the number of applications as homeless have been reduced by more targeted prevention work, in 2009/10 108 applications as homeless were made by 16 to 21 year olds, of which 43 were made by 16 to 17 year olds and 65 were made by 18 to 21 year olds. Of the total 109 applications, 45 were accepted and of these 16 were 16 to 17 year olds and 29 were 18 to 21 year olds. At the end of quarter 4 of 2009/10 there were 6 young homeless people cases in Bed and Breakfast or Self-contained annex accommodation and a further 83 cases in other forms of temporary accommodation.

7.31 The Council’s Housing Development and Partnerships Team has provided the following comments on the scheme:

7.32 The proposed redevelopment of St. Margaret’s House is a high priority for the London Borough of Hounslow and the scheme will deliver much needed suitable supported housing provision for young homeless people aged 16 to 21 years old. The new premises will be operated by Shepherd’s Bush Housing Group and the London Borough of Hounslow will receive 100% nomination rights. The Council will ensure that those referred to the scheme are eligible for the supported housing provision.

7.33 St. Margaret’s House was formerly an older persons’ sheltered housing scheme. The facilities were very poor quality shared accommodation and the Council made a decision some years ago to decant the residents and use the premises for temporary accommodation hostel facilities.

7.34 The premises currently operate as a hostel for young homeless mothers. The current provision offers 21 bedsit with shared bathroom facilities. Over the past 18-24 months the vacancy rate has increased and in September 2009 the Executive agreed to the refurbishment of Elm Court in Chiswick to provide an 11 bed space hostel facility for homeless young mothers which would replace the provision at St. Margaret’s. Elm Court came into use in July 2010.

7.35 At present, St. Margaret’s is in a poor state of repair and the internal condition is very poor. In addition, the communal areas and bathroom facilities are not fit for purpose, there is a large amount of underused and poorly maintained garden area to the rear, and general maintenance is an on-going problem.

7.36 On 17th November 2009, the Executive agreed to award the contract for the sale and redevelopment of St. Margaret’s to Shepherd’s Bush Housing Group subject to obtaining grant funding from the HCA, planning approval

for the proposed scheme and any other necessary regulatory permissions and the contract for associated support services.

7.37 The proposed scheme will provide accommodation for up to 26 young people at risk or leaving care between the ages of 16-21 years who are unable to live independently or remain in the parental home. A total of 26 1-bedroom single occupancy flats are proposed and an intensive support service will be provided based at the on-site office. One staff flat is proposed. There would also be communal facilities and ancillary office/training areas to assist with training and vocational opportunities as well as mediation.

7.38 All flats are intended to be wheelchair accessible and two flats will be specifically designed for wheelchair users. The scheme proposals comply with the Homes and Communities Design and Quality standards and the scheme will achieve Code for Sustainable Homes Level 4.

7.39 The new development will include 5 flats to the ground floor that will form a specific short-term facility for 16 and 17 year old newly homeless young people the importance of this provision is identified in the Council’s Supporting People Strategy, Youth Homelessness Strategy and Homeless Strategy. The short-term facilities will offer intensive short stay provision for up to 8 weeks whilst family mediation is undertaken and the Council’s Resettlement Team and Children’s Services and Lifelong Learning carry out joint assessments.

7.40 The recent House of Lords decision concerning Southwark makes it clear that a joint approach by Housing and Children’s Services is necessary in these cases and young people should be assessed under the Children Act not just housing legislation. This provision will facilitate meeting this requirement, and provide a safe place for young people whilst assessments are carried out. This development will assist with the assessment of 16 to 17 years olds seeking assistance from the Borough and it is hope that this facility will lead ultimately to less demand on both housing stock and placements within the care system.

7.41 The remaining 21 bed spaces are for longer-term accommodation meeting the aspirations in the Youth Homeless Strategy to end the use of bed and breakfast accommodation in line with central government targets and assisting in preparing the residents for independent living. These facilities will complement the short-term provision planned for St Margaret’s offering a longer term supported environment for homeless young people unable to return home or benefit from supported lodgings. Residents would be expected to live in this accommodation for a temporary period, but for months (not exceeding 24 months) rather than weeks.

7.42 As the housing support provider, Shepherds Bush Housing Group will be housing and providing supported people services to those residing young people who may have various medium support needs.

7.43 The Scheme will provide 24-hour cover with emergency contact numbers and arrangements in place. The support services will be delivered in line

with an agreed service specification between the Council and Shepherds Bush Housing Group. Support Officers will provide the housing management services on site and a sleep in officer will be available as part of the support services. In addition, there will be an awake concierge service during the night to complement the sleep in officer.

7.44 The development will ensure that there is a multi-agency approach across Children’s Services, Community Services, Health and Community Safety in order to tackle issues that may arise from the client group. The service will establish effective local links with housing, social services, health, community safety; education and employment services to offer in-house training, drop-in sessions and referrals to appropriate external agencies, to meet identified Service User needs.

7.45 This development will provide an innovative approach to providing supported housing services for young people who are either at risk of or are homeless providing a safe and secure environment to enable the young person to realise and achieve their goals.

The impact of the proposal on the streetscene and neighbouring properties

7.46 PPS 1: Delivering Sustainable Development and PPS 3 seek good design and says developments should contribute positively to making places better for people. This policy states that “Design which is inappropriate its context, or which fails to take opportunities available for improving the character and quality of an area and the way it functions, should not be accepted.” Paragraph 16 of PPS 3 lists matters to consider when assessing design quality, and includes “…the extent which the proposed development is well integrated with, and complements, the neighbouring buildings and the local area more generally in terms of scale, density, layout and access.”

7.47 Policy ENV-B.1.1 of the UDP promotes high quality design that enhances

the overall environmental quality and the townscape. Section 1.0 & 9.0 of the UDP Supplementary Planning Guidance sets out standards for the design and layout of developments to enable them to be compatible with, and make a positive contribution to the character of the locality.

7.48 The existing building has no special architectural merit or historic value, and

the modern infill extension that linked what was originally two pairs of semi-detached houses, is a particularly unsympathetic addition. Any replacement building or extension must respect the scale of neighbouring houses, and the design must take account of the semi-detached house at No. 48, which is linked to the existing building.

7.49 The application proposes the demolition of the existing building with the exception of the façade and roof attached to the adjoining house at No. 48. The proposed building would be of a similar height and width to the existing building, but its footprint and bulk extends further rearward than at present. It has three-storeys and its style aims to echo rather than pastiche surrounding buildings though it does pick up on some basic architectural forms of the portion to be retained with symmetrical bays. The scale and

height of the building is similar to neighbouring buildings though flat roofs are proposed instead of pitched roofs.

7.50 The applicant has advised that initial designs looked to retain all facades, but subsequently it was decided that because of No.50 was one half of a semi-detached pair of buildings, the façade of No.50 needs to be retained. The reasons given for not retaining the facades of Nos. 52-54 were as follows:

• Many of the windows are generally too small to provide adequate daylight to the flats.

• The flats on the 2nd floor would be compromised by trying to fit them in below pitched roofs and headroom in these flats would be less than satisfactory.

• The vertical alignment of the windows relative to floor levels would be compromised and would not relate well to the internal layouts. Operation of windows by people with disabilities would also be compromised because of unsatisfactory heights of opening lights.

• The wall insulation that is possible on retained facades is below that required by Code for Sustainable Homes Level 4.

• It would be necessary to create an extra 3rd floor to accommodate one or two of the required 26 flats.

7.51 The proposed building is shown in the image below. The entrance would be located centrally between the retained façade of No. 50 and a new block attached to the south.

Proposed Elevation to Sutton Court Road (Nos. 48-52)

7.52 The forecourt area would be repaved and used for car parking (3 spaces). There would also be a driveway along the southern boundary that provides access to the rear of the site where a paved parking area is proposed in the southeast corner of the site (3 spaces). The distance from the rear of the new building to the rear boundary would range from 9.65m and 17m.

7.53 A detailed assessment will be made as to how the proposed building complements the surrounding development in terms of massing, bulk, height of building and human scale and whether or not the proposal would be in keeping with the streetscene.

Environmental considerations

7.54 At present the site contains a residential building with associated parking areas. There are some areas of lawn and also trees around the perimeter providing some ecological value. Environmental factors to be considered with relation to the proposed development include noise pollution, air quality and trees.

Noise 7.55 Planning Policy Guidance Note (PPG) 24 outlines the considerations to be

taken into account in determining planning applications both for noise-sensitive developments and for those activities that generate noise. Policy ENV-P.1.5 of the UDP states that the Council will not allow any development that could result in unacceptable noise nuisance to nearby of future occupiers. The site is adjacent to the A4, which is a very busy major road and front Sutton Court Road, which is a bus route. As such it is exposed to high levels of noise. Mitigation of noise will be likely to be required though as residents would be housed temporarily the use is more suitable than permanent residential development may be on the site. A Noise Assessment is to be assessed.

Air Quality 7.56 PPS 23: Planning and Pollution Control states that air quality relating to land

use and development is capable of being a material planning consideration. The whole borough has been declared an Air Quality Management Area (AQMA) as monitoring and modelling indicates that the national objectives for air quality are not likely to be met at present. However, whilst the designation of the AQMA is indicative of a certain level of air quality, this in itself does not prevent development. New development should not result in an increase in airborne pollutants without mitigation. Policy ENV-P.1.6 of the UDP states air quality will be considered when assessing development proposals and that an Air Quality Assessment will be required for potentially polluting developments, including those that will significantly increase the number of vehicle trips.

7.57 An Air Quality Assessment was submitted with the application. This

assessment notes that the existing building’s condition means present occupants, which includes babies, would be likely to suffer more from air pollution that occupants of the proposed scheme, the new development to have a whole of building ventilation system. The implications for air quality and the details of the Air Quality assessment are to be assessed.

Trees

7.58 There are a number of trees on the site in the front and rear gardens. None of the trees are subject to a Tree Preservation Order. A full arboricultural survey was carried out on the trees. A number of trees were found to be in very poor condition with removal recommended, however the proposed development has been designed to allow the retention of most trees, including those around the boundaries of the site.

The impacts on the living conditions of neighbours

7.59 The proposal would replace the essentially replace the existing building with a new building that extends further rearwards on the site. The number of bedrooms would also increase from the existing 21 to 26 plus a staff flat. This has the potential to impact on the residents of the flats at No.48 and those in the flats to the rear of the site.

Daylight and Sunlight

7.60 Section 4 of the UDP SPG refers to guidelines from BRE1 guidelines for assessing the impact of development on natural light. The aim of the guidelines is, “to help to ensure good conditions in the local environment, considered broadly, with enough sunlight and daylight on or between buildings for good interior and exterior conditions”.

7.61 The BRE guidelines focus on whether existing daylight or sunlight values

would be reduced by more than 20% by a proposed development. They cover both daylight and sunlight to rooms of dwellings and also sunlight in spaces between buildings, which would normally include the main back garden of a house. Overshadowing of open spaces is normally measured on 21st March. No sunlight testing is necessary for windows not facing within 90o of due south.

7.62 The applicant has submitted a Daylight and Sunlight Report in accordance with the BRE guidelines, assessing the impact on proposal on neighbours and the design of the building has accounted for potential overshadowing with the rear section adjacent to No. 48 stepping down in height to be single storey near the boundary. The distance from the neighbour’s side return, in which there are side windows, to the boundary with the site is 4.18m. The new building would extend 4.83m beyond the rear elevation of the side return of No.48. The distance from the side elevation of the new building, in which there are no windows, to the boundary with No.48 (which is divided into flats) is 2.89m at ground floor level, 7.38m at first floor level and 11.79m at second floor level.

7.63 The report demonstrates that the existing ground floor kitchen window at

No. 48 would not be affected, the affect on the living room will be minimal on an annual basis and the winter daylight is reduced slightly more, the total figures exceed the BRE guidance.

1 ‘Building Research Establishment Report: Site Layout Planning for Daylight and Sunlight – A good practice guide’ (1991)

Privacy

7.64 There are no windows proposed to the flank elevation of the building facing the attached house at No. 48. The properties to the rear are screened by existing trees that are retained. This design and layout would mean the privacy of neighbouring residents would be likely to be satisfactorily maintained.

Noise and Disturbance

7.65 The proposal would replace the existing supported housing (young mothers) with supported housing for young people. The number of bedrooms would be increased from 21 to 26 though overall the potential number of occupants is lower as there would not be babies living at the premises. The potential for increased noise and disturbance of neighbours needs consideration, though no change of use in planning terms is proposed with the site to remain in residential use. Strict management and security is proposed, with the entrance to be via a staffed reception area, secure boundary fencing and gates, internal locks and there would also be a supervising member of staff living on site. The limitation of car parking would significantly reduce the potential impact from traffic noise, as car movements to and from the site would not be significant.

The standard of accommodation for future residents

7.66 The existing premises provide a less than satisfactory standard of accommodation and would require increased enjoining maintenance costs to ensure living conditions and the appearance of the building is acceptable.

7.67 The proposed accommodation would provide good standard living conditions for a temporary basis with each unit having separate kitchen and bathroom facilities. All units would receive good natural daylight and sunlight. As the accommodation is temporary private open space is not considered necessary. The rear garden area would provide outdoor space that could be used by occupants but no formal communal outdoor facilities are proposed.

The impact of traffic and parking conditions in the area

7.68 Policy T.1.4 of the UDP states that all developments must provide parking and servicing facilities in accordance with the Council’s standards with provision to be made for people with disabilities. The parking standards are a maximum with there being no minimum requirement except in relation to disabled parking. Operational requirements such as space for deliveries and loading must also be met on site. In relation to this policy, Appendix 3 of the UDP lists relevant parking standards for different uses.

7.69 In considering the level of parking provision necessary, account should be given to the public transport links of the site and its proximity to the town centre, the nature of the use and any parking restrictions in the area.

7.70 The maximum UDP parking standard for such accommodation is 1 space per 5 units. There are 26 units and 6 spaces. The parking layout is satisfactory in terms of manoeuvring into and out of the parking spaces

7.71 It is proposed that the actual vehicle trips generated at the site entrance will be limited to staff and visitors. It is therefore unlikely to have an intensification of trips as a result of the redevelopment.

7.72 The Highways Agency and Transport for London have commented on the proposal and there are no objections from either body.

Sustainable design 7.73 The broad aim of sustainable development is to ensure that the quality of

social, economic and ecological environments are improved and maintained for future generations. The UDP and London Plan encourage sustainable development through many policies including promoting the use of energy efficient building design and materials, re-use of previously developed land and existing buildings, and location of development in or close to town centres and areas with good public transport.

7.74 The proposed re-development of the site is consistent with these aims as the site is has been previously developed and has good public transport links. In addition to this being a suitable site, the proposed development should incorporate the principles of sustainable design and, given its scale, it is reasonable that it include the provision of on-site renewable energy production and a system of rainwater harvesting. An Energy Statement submitted with the application has investigated various options for the on-site production of energy from renewable sources.

8.0 COMMENTS ON CONSULTATION RESPONSES

8.1 Consultation responses received to date have been summarised in section 5.0. At the time of writing this report the consultation is ongoing. There has been a variety of concerns, the main areas raised relating to:

• Design

• Traffic and parking

• Suitability of accommodation

• Amount of development

• Use

• Security

• Conflict of interest

8.2 These matters will be fully assessed and considered in a report to the Sustainable Development Committee. Other comments received relating to uses that are not proposed are not relevant. Additionally comments that link

the existing use of the site to previous crimes in the area are not supported by evidence to support such claims.

9.0 EQUAL OPPORTUNITIES IMPLICATIONS

The Council has had due regard to its Equalities Duties and in particular with respect to its duties arising pursuant to the Disability Discrimination Act 1995, s.49A, the Race Relations Act 1976, s.71 and the Sex Discrimination Act 1975, s.76A.

9.0 RECOMMENDATION

9.1 It is recommended that Members comment on the applications and that Members’ comments be reported to Sustainable Development Committee.