Planning Statement...“Hybrid planning application seeking outline permission for up to 89 dwellings (with all matters reserved except for access) and detailed permission for an all-weather

gva.co.uk

Planning Statement Land at Hookstone Road and Hornbeam Park Avenue Harrogate College

April 2016

Report

First Floor, City Point 29 King Street Leeds LS1 2HL T: +44 (0)8449 02 03 04 F: +44 (0)113 280 8080

Harrogate College Contents

April 2016 gva.co.uk

Contents 1. Introduction................................................................................................................................................... 1

2. Site and Surroundings .................................................................................................................................. 3

3. The Proposed Development ...................................................................................................................... 6

4. Planning Policy Review ............................................................................................................................... 9

5. Assessment of Proposed Development ................................................................................................ 20

6. Summary ...................................................................................................................................................... 27

Appendices Appendix I Site Plan

Prepared By: Chris Jones Status: Final Draft Date: April 2016 For and on behalf of GVA Grimley Limited

Harrogate College Planning Statement

April 2016 gva.co.uk 1

1. Introduction

1.1 Bilfinger GVA is instructed by Harrogate College (hereafter referred to as “the College” or “the

applicant”) to prepare and submit a hybrid application seeking outline planning permission

for residential development and full planning permission for a new artificial sports pitch on

surplus land to the north and east of its main campus at Hornbeam Business Park, Harrogate.

1.2 The application site is immediately adjacent to the existing College building and fronts onto

Hookstone Road and Hornbeam Park Avenue (a site plan is attached at Appendix I). It

currently comprises former playing fields primarily associated with the site’s previous occupier,

ICI to the north and ancillary grassed land to the east. The former playing fields have

remained unused for many years, principally owing to the sloping topography and poor

drainage in certain elements of the site. As a result, they offer no benefit to the College and

perform no wider community function.

1.3 In addition, the College is seeking funds for an ambitious investment program including new

and improved facilities at their Hornbeam Park campus (currently under construction and due

to complete later this year) and infrastructure capabilities, enabling it to better serve the wider

Harrogate district community. The sale of the former playing fields will significantly contribute

towards the program of works.

1.4 As a consequence, the College is seeking planning permission for:

“Hybrid planning application seeking outline permission for up to 89 dwellings (with all matters

reserved except for access) and detailed permission for an all-weather sports pitch with

associated access, car parking, open space, landscaping, drainage infrastructure and

demolition of buildings”

1.5 The purpose of the application is to secure the principle of the site’s development for housing

prior to securing a its sale to a developer. This will ensure the College secures maximum value

for the land in line with the requirements of public service providers.

1.6 The application is submitted following detailed pre-application discussions with the Local

Planning Authority and a thorough public consultation exercise, throughout which the College

and its design team have worked positively to prepare a well-considered and balanced

application. As a result, the proposed development forming the basis of this application

accords with the Council’s policies and requirements and responds positively to the feedback

received during the consultation exercise.



1.7 This Statement will set out the main planning considerations relevant to the determination on

the application including:

• A description of the site and its surroundings and relevant planning application history;

• A description of the proposed development subject of the planning application;

• A review of the relevant planning policies and guidance; and

• An assessment of the proposed development against the policies, guidance and other

material considerations.

1.8 The application is supported by the following documents:

• The application forms and notices;

• A full set of plans and elevations;

• Design and Access Statement;

• Statement of Community Involvement;

• Sports Needs Assessment

• Flood Risk Assessment and Drainage Strategy;

• Phase 1 and Phase 2 Geo-Environmental Assessments;

• Noise Impact Statement;

• Preliminary Ecological Assessment;

• Arboricultural Assessment;

• Landscape and Visual Impact Assessment;

• Transport Assessment; and

• Travel Plan;



2. Site and Surroundings

Site Description

2.1 The application site is located south east of Harrogate town centre and is approximately 3.63

hectares (ha) in size, split 2.66ha for the proposed residential development and 0.98ha for the

sports pitch and surrounding facilities (open space, parking and changing pavilion).

Proposed Residential Site

2.2 The site is predominantly green field in nature with frontages onto Hookstone Road to the

north, Hornbeam Park Avenue to the west and the Crimple Valley to the east. It was previously

used for playing fields but has been out of use since circa 2006. The site slopes from west to

east and hence the topography of the land and its poor drainage makes it unsuitable for

more formal use for organised sport. In recent years, the site has been maintained by the

College, including mowing, hedge trimming and security, at an annual cost despite the site

offering no private or public use.

2.3 The South West boundary of the site has a line of trees which are protected by Tree Protection

Orders (TPO). There is also a tree line on the South East side which separates it from the

college. The north east and north west boundaries are formed by high hedging and sporadic

trees.

Proposed Sports Pitch Site

2.4 The land is largely green field, albeit there are some small pre-fabricated structures on the

northern part of the site used for the storage of materials. These are to be demolished as part

of the proposed development. In addition, the site includes a small area of harstanding used

for vehicular parking.

2.5 The north-eastern and south-eastern boundaries of the site are made up of low-hedging and

sporadic trees whilst the north-eastern boundary is formed by larger trees. The south-western

boundary is largely formed by the college campus, in particular the new Technology Centre

(which is currently under construction).

Surrounding Context

2.6 The site is located circa 1.5km to the south east of Harrogate town centre. Surrounding the site

to the north is a residential area characterised by large detached and semi-detached

dwellings with spacious gardens; to the west is Hornbeam Business Park comprising numerous

office and warehousing units as well as a pub and hotel; to the south is the Harrogate College



campus beyond which is further employment land and a hospice; and to the east is the

Crimple Valley comprising generally open fields, woods and the Hookstone Beck. Further to

the south east is agricultural land. At the western and northern points of the site are two

detached residential dwellings, built of Yorkshire stone and set in gardens. Both dwellings are

outside the site.

2.7 The site benefits from excellent public transport accessibility with Hornbeam Park Train Station

being less than 200m from the site. It also has strong road links being within close proximity to

major ‘A’ roads including the A61, A661, A658 and A59 as well as being within 10km of the

A1(M). Bus stops are located directly adjacent to the northern boundary of the site. It also

benefits from substantial road frontage onto Hookstone Road and Hornbeam Park Avenue,

providing opportunities for new access points off these roads.

2.8 This site is located close to a number of shops, services and open space including retail units

along Leeds Road (circa 500m), a number of educational facilities within close walking

distance (including St John Fisher Catholic High School, St Aidan’s Church of England High

School and Oatlands Junior School) and various GP surgeries, dentists and other necessary

community services. It is also in the vicinity of other important open spaces including the Stray,

the Great Yorkshire Showground and the Crimple Valley. The site is therefore very sustainably

located.

Relevant Planning History

2.9 A search of the full planning history of the site has been undertaken using the Council’s online

planning portal. This confirms that no applications have been submitted in relation to the site.

2.10 The College has previously submitted this site for consideration in the Strategic Housing and

Employment Land Availability Assessment, albeit the Council’s assessment of the site is not yet

available for review.

2.11 Planning permission was granted in June 2015 for an extension to the college campus, south

of the site (ref: 15/01103/FULMAJ). The application comprised the erection of a two storey

extension to the main building, alterations to the south west elevation of the college building

and the erection of a detached 'Vocational Centre' workshop building. The enhanced

College facilities allow for the relocation of existing space within Hornbeam Business Park to be

reprovided on the main campus, resulting in better course interaction and improved student

experience.

2.12 Within and around Harrogate, there are a number of applications for residential development

at various stages of determination. However, having conducted a desk-based search no



applications for major development are within such close proximity to the site as to require

consideration of cumulative impact.



3. The Proposed Development

Background to the Proposal

3.1 In 2014, Harrogate College secured £3m of funding from the York, North Yorkshire and East

Riding Local Enterprise Partnership to help deliver a refurbishment of its current facilities and a

new Technology Centre for which planning permission was secured in June 2015 (ref:

15/01103/FULMAJ). This LEP funding provided half of the overall cost of the project, the rest

provided directly by Hull College Group (the owner of Harrogate College) and the project is

scheduled to be operational by September 2016. It will enable the College to expand its

curriculum areas and improve its ability to provide learners with sought after vocational skills

and training. The first phase of its investment programme also means it can create a more

dynamic and modern learning environment.

3.2 The College is seeking to continue to deliver on this success with further development of its

campus infrastructure. This includes plans to bring forward its long-term investment

programme, which includes an all-weather sports pitch for student and community use, an

expanded curriculum, and new IT infrastructure to improve the learning experience of current

students and allow the College to offer state-of-the art distance learning courses.

3.3 With reductions and changes in public funding for the Further Education sector, the College

has sought alternative opportunities to raise the necessary investment funds. This includes

releasing the value of unused assets including surplus land such as the application site, which

has been unused for a number of years and requires on-going maintenance to avoid it

becoming overgrown and untidy.

3.4 On this basis, the College is seeking to sell the land in order to reinvest the funds generated

back into the College through improvements to its facilities and infrastructure. This ensures the

funds raised will contribute to long-term improvements rather than day-to-day costs.

3.5 As a public sector body, it is necessary for the College to secure best value for the land, which

is generated by securing the planning permission for the highest value land use in

accordance with the statutory development plan and relevant material considerations. It is in

this context that an outline application for residential development has been submitted. This

strategy is fully in accordance with the central Government’s objective to build more housing

on surplus public sector land and for public sector bodies to raise additional funds through

alternative means.



The Proposed Development

3.6 The proposed development subject of this application is for:

“Hybrid planning application seeking outline permission for up to 89 dwellings (with all matters

reserved except for access) and detailed permission for an all-weather sports pitch with

associated access, car parking, open space, landscaping, drainage infrastructure and

demolition of buildings”

3.7 The proposal is brought together as a single application for the purposes of delivering a clear

and defined scheme that accords with the relevant planning policies. It is likely however that

the housing and sports pitch will be delivered separately, with the sports pitch delivered

directly by the College and the housing delivered separately following the sale of the land.

The sports pitch will be paid for directly from the proceeds of the sale of the land to the north

of the College and therefore will not be deliverable without the approval of the wider outline

application.

3.8 The two elements of the application are set out below.

The Outline Application

3.9 The application is for outline planning permission for residential development on the surplus

land to the north of the existing College building. The application includes details of the

principal access arrangements into the site but reserve the following matters – layout, scale,

appearance and landscaping. However the application does set out development

parameters within which future reserved matters applications should come forward. These are

as follows:

• The proposal is for up to 89 dwellings. In accordance with pre-application discussions with

the Council’s Planning and Housing officers, the mix of dwellings is not proposed by this

application but will be defined at the reserved matters stage. In addition, the affordable

housing provision will be 40% subject to a viability assessment on submission of the reserved

matters application;

• The principal point of vehicular access is to be taken off Hookstone Road (a full justification

for this is provided in the Transport Assessment submitted with the application) with an

additional pedestrian/cycle access point off Hornbeam Park Avenue, the position of

which is broadly shown on the submitted plans but is subject to movement in line with the

proposed development at reserved matters stage;

• The layout and scale of development is limited to the details shown on the parameter plan

in order to ensure the impact on the landscape character of the surrounding area is

acceptable. The parameters retain a buffer to the eastern boundary, to be used for public



open space, limit the scale of buildings within the central part of the site and adjacent to

Hookstone Road to 2 storeys with roof and the Hornbeam Park Avenue frontage to 3

storeys with roof; and

• The development proposes to retain all protected trees and other flora of significance

around the site. It also identifies existing drainage easements along the southern

boundary.

3.10 An indicative site layout plan is provided to demonstrate that the site can comfortably take

the quantum of development proposed. This illustrates a potential road layout, housing type

and scale, landscaping, open space and drainage and sewerage infrastructure. For clarity

the indicative plan does not constitute a formal development proposal against which a

decision or conditions can be based.

The Sports Pitch

3.11 The all-weather pitch that is proposed is a 3rd Generation Artificial Grass Pitch with floodlights.

The playing surface will be 73m by 46m, which is suitable for matches for the 9 v 9 format of

football and for training small sided games.

3.12 Surrounding the pitch will be a run-off area circa 3m in width and surrounded by a high fence

up to 4.5m in height. 4 No. floodlights of 15m in height will be located at the corners of the

pitch to allow for winter and evening games, maximising its use throughout the day.

3.13 The pitch will be supported by the future delivery of a changing pavilion, the details of which

are proposed to be conditioned subject to approval of the application. The proposed

location of the changing pavilion is shown on the submitted plans, adjacent to the new

Technology Centre, and the precise design is to be submitted prior to the commencement of

the development of the sports pitch.

3.14 The sports facility proposals have been developed as result of consultation with a range of

stakeholders and potential users and are considered to offer a positive sporting impact for the

College and for the local community. The community use of the sports pitch can be secured

by a Community Use Agreement.



4. Planning Policy Review

4.1 The Town and Country Planning Act 1990 (the 1990 Act) and the Planning and Compulsory

Purchase Act 2004 (the 2004 Act) establish the legislative basis for town planning in England

and Wales. Together the Acts establish a ‘plan-led’ system which requires Local Planning

Authorities to determine planning applications in accordance with the statutory development

plan (SDP) unless material considerations indicate otherwise.

4.2 The SDP for Harrogate comprises the Core Strategy (adopted 2009) and the saved policies of

the Local Plan (adopted 2001).

4.3 A key material consideration is the National Planning Policy Framework (NPPF), published 2012.

The overarching objective of the NPPF is the delivery of sustainable development supported

by the planning system and the Framework includes a presumption in favour of sustainable

development, which means:

“For decision-taking, approving development proposals that accord with the development

plan without delay and granting permission where the development plan is absent, silent or

out-of-date (unless it conflicts with specific policies of the NPPF or there are recognised

adverse impacts which would outweigh the benefits of approval)” (para 14)

4.4 To better determine when policies are out-of-date, paragraph 215 states that, where adopted

Local Plans pre-date the NPPF, due weight should be given to relevant Local Plan policies

according to their degree of consistency with the NPPF.

4.5 The following planning policy framework can be identified as relevant in relation to the

proposed development.

National Policy Context

National Planning Policy Framework (2012) and Planning Policy Guidance (2014)

4.6 The NPPF states that pursuing sustainable development involves seeking positive

improvements in the quality of the built, natural and historic environment, as well as in

people’s quality of life, including (but not limited to):

• Making it easier for jobs to be created in cities, towns and villages;

• Moving from a net loss of bio-diversity to achieving net gains for nature;

• Replacing poor design with better design;

• Improving the conditions in which people live, work, travel and take leisure; and



• Widening the choice of high quality homes.

4.7 The following sections of the NPPF are considered of relevance to the planning application

and are summarised below.

Promoting Sustainable Transport

4.8 Section 4 of the NPPF sets out that new development should be located and designed to give

priority to pedestrian and cycle movements, and have access to high quality public transport

facilities; and create safe and secure layouts which minimise conflicts between traffic and

cyclists or pedestrians, avoiding street clutter and where appropriate establishing home zones.

4.9 It also states that where practical, key facilities such as primary schools and local shops should

be located within walking distance of most properties.

4.10 Paragraph 32 of the NPPF establishes the nature of development proposals that should be

supported by a Transport Statement or Transport Assessment. It describes that plans or

decisions should take account of the opportunities for sustainable transport, and provide safe

and suitable access to the site for all people. It further states that development should only be

prevented or refused where the residual cumulative impacts of the development are severe.

Delivering a Wide Choice of High Quality Homes

4.11 Section 6 of the NPPF sets out the Government’s vision for the delivery of housing. It states that

LPAs should deliver both market and affordable housing in a way which is reflective of local

need, identifying a five year supply of deliverable housing sites as part of this. In order to

ensure choice and competition, this supply is to include an additional 5% housing requirement

buffer, or, for LPAs with a record of persistent housing under-delivery, an additional 20%. LPAs

are also required to identify broad locations for housing for 6-10 years and, where possible, 11-

15 years.

4.12 The NPPF goes on to state that housing applications should be considered in the context of

the presumption in favour of sustainable development, and that relevant statutory

development plan policies for the supply of housing should not be considered up to date if

the local authority cannot demonstrate a five-year supply of deliverable housing sites.

4.13 Harrogate Borough Council produced an Annual Monitoring Report in March 2016 which

confirms that it currently has a 7.2 year deliverable land supply, including a 20% buffer.

Promoting Healthy Communities

4.14 The NPPF states that access to high quality open spaces and opportunities for sport and

recreation can make an important contribution to the health and well-being of communities.



To facilitate this, it requires that existing open space, sports and recreational buildings and

land should not be built on unless:

• An assessment has been undertaken which has clearly shown the open space, buildings or

land to be surplus to requirements; or

• The loss resulting from the proposed development would be replaced by equivalent or

better provision in terms of quantity and quality in a suitable location; or

• The development is for alternative sports and recreational provision, the needs for which

clearly outweigh the loss.

4.15 The proposal is supported by a Sports Needs Assessment which clearly demonstrates that the

loss of the former playing fields is suitably compensated by the provision of a new sports pitch

to be used by the College and the local community.

Requiring Good Design

4.16 The NPPF attaches great importance to the design of the built environment and states that

good design should contribute positively to making places better for people.

4.17 Section 7 sets out that planning policies and decisions should aim to ensure that

developments, amongst other factors, function well and add to the overall quality of the area

and respond to local character and history and reflect the identity of local surroundings and

materials, while not preventing or discouraging appropriate innovation.

4.18 Beyond aesthetic considerations, the NPPF states that planning policies and decisions should

address the connections between people and places and the integration of new

development into the natural, built and historic environment. With the application site

bordered on three sides by existing development including housing, a business park and the

college campus, the development of the site would integrate well with the surrounding urban

form. Special consideration will be needed for the treatment of the north-eastern boundary

with the Crimple Valley.

4.19 This is further encouraged by the PPG which indicates that for new residential development,

well-designed housing should be functional, attractive and sustainable. It also states that

affordable housing should be indistinguishable from private housing and not banished to the

least attractive part of individual sites. Furthermore, it describes how contextual consideration

should be given to the provision of suitable servicing and parking areas.

Conserving and Enhancing the Natural Environment

4.20 Section 11 of the NPPF sets out that the planning system should contribute to and enhance

the natural and local environment by:



• Protecting and enhancing valued landscapes, geological conservation interests and soils;

• Recognising the wider benefits of ecosystem services; and

• Minimising impacts on biodiversity and providing net gains in biodiversity where possible,

contributing to the Government’s commitment to halt the overall decline in biodiversity,

including by establishing coherent ecological networks that are more resilient to current

and future pressures.

4.21 The NPPF also states that when determining planning applications, LPAs should aim to

conserve and enhance biodiversity by applying the following principles:

• If significant harm resulting from a development cannot be avoided (through locating on

an alternative site with less harmful impacts), adequately mitigated, or, as a last resort,

compensated for, then planning permission should be refused;

• Development proposals where the primary objective is to conserve or enhance

biodiversity should be permitted;

• Opportunities to incorporate biodiversity in and around developments should be

encouraged; and

• Planning permission should be refused for development resulting in the loss or deterioration

of irreplaceable habitats, including ancient woodland and the loss of aged or veteran

trees found outside ancient woodland, unless the need for, and benefits of, the

development in that location clearly outweigh the loss.

4.22 The application is supported by a Preliminary Ecological Appraisal and an Arboricultural

Survey, which both demonstrate that the proposed development will not have a significant

impact on the ecological value of the site. Existing boundary treatments will be retained and

enhanced and protected tress will be preserved. In addition, open space will be retained and

enhanced on site to provide, which can include measures to boost habitat for particular

species.

Conserving and Enhancing the Historic Environment

4.23 Section 12 of the NPPF states that local planning authorities should set out in their Local Plan a

positive strategy for the conservation and enjoyment of the historic environment. In

developing this strategy, local planning authorities should take into account amongst other

factors, the desirability of new development making a positive contribution to local character

and distinctiveness.

4.24 Whilst the site is not located within the Harrogate Conservation Area, it sits within the setting of

the southern boundary and hence the Landscape and Visual Impact Assessment prepared as

part of the application demonstrates that the proposed development preserve and enhance



its historic character through proposed measures to be incorporated into detailed design

proposals.

Decision-taking

4.25 Paragraph 186 encourages local authorities to show a positive approach to sustainable

growth and development, looking for solutions rather than problems and seeking to approve

applications that meet the economic, physical and social needs of an area.

Local Planning Policy

The Statutory Development Plan

4.26 The statutory development plan consists of the Core Strategy (2009) and the saved policies of

the Harrogate Local Plan (2001). To determine planning applications, supplementary planning

guidance and the NPPF are used alongside the aforementioned documents.

4.27 The above plans continue to provide the planning policy context for the site given the recent

decision by the Council to withdraw the Local Development Framework Sites and Policies

Development Plan Document (DPD) from examination, and to proceed with the preparation

of a new Local Plan.

4.28 Limited weight can be given to the Local Plan as it is dated. Its policies can only be applied

with weight according to their degree of consistency with the NPPF. Where they are not

consistent with the NPPF they can be given no weight.

4.29 Although the Core Strategy (2009) carries some weight, some of the housing policies within the

Core Strategy were deleted in 2014 following the report on the Examination into the Harrogate

District Sites and Policies DPD. In particular, the examination noted that the annual

requirement for net additional dwellings was insufficient to meet housing demand and

therefore should not apply for the determination of planning applications.

4.30 In addition to this limited weight can be given to the emerging Local Plan as it is only in the first

stages of production, at an Issues and Options stage, which means it contains no firm policies.

Allocations and Designations

4.31 The Local Plan Proposals Map locates the site within the development limits of Harrogate. It is

also designated as existing recreation open space, adjacent to a green wedge and special

landscape area (Crimple Valley). It lies south of the Harrogate Conservation Area. The

relevant policies relating to each allocation/designation will be discussed later in this section.



Core Strategy (2009)

4.32 The Core Strategy sets out the Council’s strategic policies for the district up to 2021. It

incorporates a set of 8 objectives that the Core Strategy aims to fulfil. Objective 3 states

“Subject to the provision of appropriate traffic management and new infrastructure, to focus

the District’s growth in the town of Harrogate”.

4.33 Policy SG1 - Settlement Growth: Housing Distribution establishes that Harrogate will make

provision for 390 new homes per annum during the period 2004-2012. In doing so it will seek to

ensure that about 160 of this annual provision will be homes for local people at affordable

prices. It also establishes that over the plan period, 48% of the provision of new homes will be

broadly distributed in Harrogate.

4.34 This figure was subsequently shown to be insufficient to deliver housing needed for the district

and was one of the main reasons the Sites and Policies DPD was withdrawn. During the Sites

and Policies DPD Examination, the Inspector considered that the objectively assessed need

was likely to be between 860 and 1090 dwellings per annum and as such he concluded that

with the figures used within the Sites and Policies DPD there was only 2.7 to 3.3 years supply of

housing.

4.35 More recently, the Council’s Strategic Market Housing Assessment (SHMA) published in 2015

and more recent updates has estimated that the objectively assessed housing need for the

district is circa 570 homes per year. The recently published Annual Monitoring Report (AMR)

states that the housing supply in Harrogate is circa 7.2 years including a 20% buffer.

Nevertheless, the Council recognises in its assessment that this this figure is a starting point and

that there are a number of factors that might impact on this and could result in a lower or

higher figure. Of these factors land supply and viability and deliverability are included. The

SHMA also makes clear that there are affordability pressures in the Harrogate district.

4.36 Recent officer recommendations for residential development within Harrogate have

recognised that the 5 year supply figure is marginal and dependent on housing need

assessment that continues to change. Therefore, to maintain a continuous supply of housing,

and thereby avoid speculative development that fails to meet the sustainability and

development aims of the Council, new housing sites will need to be permitted. This site, being

located within the settlement limits of Harrogate in an area well-served by public transport

and community services, can support this requirement with the site very likely to be deliverable

within a 5 year period.

4.37 Policy SG2 - Settlement Growth: Hierarchy and Limits indicates that development or infill limits

will be drawn around the settlements listed within the policy to allow the sustainable growth

and development of those settlements within the District that have the best access to jobs,



shops and services. This policy designates Harrogate as a Group A Settlement and states that

Group A settlements will be retained as the District’s main urban areas and be the focus of

growth in the District.

4.38 The site is located within the development limits of Harrogate. Paragraph 3.25 of the Core

Strategy states that “development within these limits which is compliant with Policy SG4 of the

Core Strategy and other relevant DPD policies will normally be permitted”.

4.39 Policy SG4 – Settlement Growth: Design and Impact states that the scale, density, layout and

design should make the most efficient use of land and a) be well integrated with, and

complementary to, neighbouring buildings and the spatial qualities of the local area; and b)

be appropriate to the form and character of the settlement and/or landscape character. It

also seeks to protect visual, residential and general amenity in new schemes, limit

environmental impact and avoid addition to pre-existing transport issues.

4.40 The application is supported by a number of documents that together address the above

issues, including a Transport Assessment, Landscape and Visual Impact Assessment, a

Preliminary Ecological Appraisal and a Noise Impact Assessment.

4.41 Policy TRA1 - Accessibility states that ensuring that the majority of all future development is

well related to the existing or extended Key Bus & Rail Network. The site is located within 200m

of Hornbeam Park rail station which provides excellent and quick access to Harrogate, Leeds

and other surroundings towns and villages. Bus routes serving Hookstone Road also provide

access to Harrogate and surrounding areas.

4.42 Policy EQ2 - The Natural and Built Environment and Green Belt seeks the protection of the

landscape character of the district including that which is important for the setting of the main

towns, its green wedges and its green space generally. However, this should be considered on

balance with the need to deliver new development on green field land. In addition, new

development should seek to protect the ecological and heritage value of the district,

including designated conservation areas and sites of international, national and local nature

conservation.

4.43 The application is supported by a Landscape and Visual Impact Assessment, which considers

the proposed development and the indicative layout plan in the context of the landscape

and heritage constraints surrounding the site.

4.44 Policy C1 - Inclusive Communities states that proposals should consider community needs

within the district. With regard to the site, this includes for young people, especially in terms of

sport and leisure. The site is a former playing field used solely by the College. It has not

previously been in community use and there is no intention for it to be brought into community



use in the future as it suffers from a sloping topography making it difficult for it to perform a

more formal sports function. This will be discussed in more detail later in this section.

Local Plan (2001)

4.45 The Harrogate District Local Plan was adopted in 2001 and covered the period up to 2006.

The majority of the housing policies set out in the Local Plan were not ‘saved’ beyond 2007.

The following policies, as detailed in the Local Plan, are considered relevant to the

development proposal.

4.46 Policy R1 - Existing Recreation Open Space states that development proposals which involve

the loss of existing public and private recreational open space will not be permitted unless it

meets one of 4 criteria. These are set out below:

a) There is a surplus of recreation open space in the area and its loss would not adversely

affect the existing and potential recreational needs of the local population – response:

there is a recognised need for better quality sports provision within the district and

Harrogate in particular, albeit the most recent evidence base does not identify a shortfall in

quantity;

b) A satisfactory replacement facility is provided in the catchment area which it serves –

response: this is proposed on land to the east of the College building and the proposed

replacement is significantly better, offering year round use for both the College and the

community;

c) The land by virtue of its size, location and physical condition, is incapable of appropriate

recreational use – response: it has already been stated in this document that the site is not

capable of accommodating high quality pitches without significant investment to correct

the topographical and drainage challenges;

d) In the case of playing fields, where sports and recreation facilities can best be retained and

enhanced through the development of a small part of the site – response: given the

response to criteria A, B and C, this is not considered necessary to demonstrate.

4.47 In light of the above, we consider that the development of the site would be in accordance

with Policy R1.

4.48 Policy R5 – New Sports and Recreational Facilities supports the development of new sports

and recreational facilities provided that:

a) The facility is located in or adjacent to built-up areas wherever possible and is well served

by public transport;



b) The proposal would not give rise to significant traffic congestion and road safety problems;

c) New buildings or structures are well designed and appropriately landscaped; and

d) The proposal conforms to policies R2 and R3 of the county structure plan.

4.49 The proposed new sports pitch will meet the above criteria in that it is sustainably located and

is supported by transport and landscape assessments.

4.50 Policy C2 - Landscape Character seeks to protect existing landscape character and

opportunities should be taken for the design and landscaping of development proposals to

repair or reintroduce landscape features.

4.51 Policies C9 - Special Landscape Areas and C10 - Green Wedge states that long term

protection will be given to these areas, which include Hookstone Valley (a Green Wedge)

and Crimple Valley (a Special Landscape Area) to the north-east of the site. The policies

relate to development within these areas but it is assumed that development within the setting

of such areas will also be considered against the policies, which require development to avoid

or mitigate any impact on the landscape and its setting and to maintain its character and

openness.

4.52 Whilst the majority of the proposal is in outline form only, the proposed housing element

includes measures to significantly minimise its impact both through site layout, scale

parameters and future landscaping measures. The sports pitch element has also been

designed to minimise its landscape impact. A Landscape and Visual Impact assessment has

been submitted to support the planning application.

4.53 Policy HD3 - Control of Development in Conservation Areas indicates that development which

has an adverse effect on the character or appearance of a conservation area will not be

permitted and this includes (amongst others not relevant to residential development):

• The erection of buildings out of scale with their surroundings; and

• Proposals involving the loss of open space, which contributes to the character of the

Conservation Area.

4.54 The policy also indicates that applications for development in or visually affecting

Conservation Areas will be expected to contain sufficient information to allow a proper

assessment of their impact on the character and appearance of the Conservation Area to be

made. The policy also sets out details relating to the loss of a non-listed building.

4.55 That part of the proposed development closest to the Conservation Area is the housing, which

is proposed in outline form only. Nevertheless, the development of this application site could

provide an opportunity for new development within the setting of the neighbouring



conservation area to enhance or better reveal its significance, as is in line with the NPPF. In

addition, the proposed development includes sufficient design parameters and

supplementary information to guide future development at the site and ensure it preserves or

enhances the neighbouring conservation area.

4.56 Policy HD20 - Design of New Development and Redevelopment sets out design criteria to be

considered when preparing development schemes. Whilst most parts of this policy relate to

detailed design issues, it also deals with broader issues relevant to an outline application

including amenity and layout. This policy has therefore been referred to during the

development of the outline scheme.

4.57 Policy H5 - Affordable Housing states that the Council will negotiate for the provision of an

element of affordable housing on suitable new housing developments. It states this will be the

case in Harrogate, Knaresborough and Ripon, on housing development of 15 or more

dwellings or sites of 0.5ha or more.

4.58 The Affordable Housing Planning Guidance document was adopted in November 2015. This

supports part A of existing Policy H5 in the Local Plan and seeks 40% affordable housing in new

developments.

4.59 The proposed development includes a provision for 40% affordable housing to be delivered

on site, subject to a viability appraisal to be undertaken at reserved matters stage.

Emerging Local Plan (2015)

4.60 Following the withdrawal of the Sites and Policies Development Plan Document (DPD), the

Council is currently writing a new Local Plan for the borough. The new Local Plan is at an Issues

and Options stage and has been consulted on during July and August 2015.

4.61 The emerging plan considers objectives relating to sustainable development patterns and

housing, in particular with objectives focusing housing and employment in locations which are

or can be made sustainable, and allocating land of a lesser environmental value for

development.

Planning Guidance Documents

4.62 The Council has adopted a variety of Supplementary Planning Documents and Guidance

that will need to be considered in preparing the application for development of this site.

These include:

• Provision of Open Space in Connection with New Housing Development SPD (revised

2015)



• Affordable Housing Planning Guidance (2015)

• Heritage Management Guidance SPD (2014)

• Green Infrastructure SPD (2014)

• Landscape Character Assessment SPG (2004)

• Landscape Design Guide SPG (1999)

• Residential Design Guide SPG (1999)



5. Assessment of Proposed Development

5.1 This section will consider in detail how the proposed development accords with the planning

policy relevant to the site which is set out in detail in Section 4 and is appropriate to relevant

material considerations including planning guidance, the context of the site and surrounding

area and planning history.

5.2 It will consider the following issues:

• Principle of the proposed uses;

• Impact on surrounding uses;

• Amount, mix and tenure of the proposed housing;

• Highways impact;

• Open space, trees and landscaping

• Ecology; and

• Flood risk, drainage and ground conditions.

The Principle of the Proposed Uses

5.3 The consideration of the proposed land uses can be split into three distinct elements – the loss

of the existing recreation open space for an alternative use; the proposed housing use; and

the proposed sports pitch.

The Loss of the Existing Recreation Open Space

5.4 The application site is designated as existing recreation open space. Alternative use of such

land is allowable subject to certain criteria being met, these being set out in Policy R1 of the

Local Plan and summarised earlier in this statement.

5.5 In addition, the site’s historic recreation use and that it has been laid out as sports pitches

means it falls within Sport England’s definition of a playing field. Sport England’s policy allows

for re-use of playing fields where exception tests are passed. The relevant exceptions are

where an assessment demonstrates that the playing field is surplus to requirements or where

replacement provision is provided (subject to that provision being suitably sized, located and

of a suitable quality).

5.6 The Sports Needs Assessment submitted as part of the planning application sets out the case

for the loss of the former playing fields. It notes (as does this Statement) that there is a very

limited chance of the playing fields being re-used owing to the investment needed to bring



the pitches up to a suitable standard. This results from the topography and drainage issues

associated with the site.

5.7 It also recognises that the most recent evidence base relating to sports pitches for Harrogate

identifies that there is a surplus of adult and mini soccer pitches and an undersupply of junior

pitches. The application site was not considered as part of that evidence base as the site did

not offer any community use. The assessment concludes therefore that the land is surplus to

requirements. However, it is acknowledged that whilst there is potentially sufficient pitch space

across the District to cater for demand, the type and quality of the pitch stock is not

necessarily suited to the actual demand.

5.8 The proposed sports pitch will greatly increase the quality of the facilities in the local area, as

the facility will be usable throughout the year and in all weather conditions. The proposal

includes ancillary infrastructure including changing facilities and flood lights and the

community use can be secured through a formal agreement.

5.9 As a consequence, the existing recreation open space will be replaced by a facility of

superior quality and with greater sports development outcome, secured for the community to

use. This is considered to comply with the relevant local and national planning policy and

meet the requirements of Sport England.

5.10 Therefore, the proposed development accords with Policy C1 of the Core Strategy, Policy R1

of the Local Plan and the aims and objectives of the NPPF.

The Proposed Housing Use

5.11 The application site is located within Harrogate’s development limits, a Group A settlement in

the Core Strategy and the main focus for new housing development in the district. In addition,

it is a highly sustainable location within walking and cycling distances to nearby shops, schools

and other services.

5.12 The proposed housing use is acceptable in principle and accords with Policies SG1, SG2 and

TRA1 of the Core Strategy and the aims and objectives of the NPPF. In addition, it proposes

new housing on surplus public sector land in accordance with one of the Government’s key

proposals for delivering more housing across the UK.

5.13 Whilst it is recognised that the Council currently has a 5 year supply of land for housing,

sufficient for it to meet its needs in the short term, it should continue to approve development

that accords with the development plan as required by the relevant legislation. In addition, by

approving and delivering new housing in the most sustainable locations, it reduces the

pressure to allow housing development in unsustainable locations.



The Proposed Sports Pitch

5.14 The sports pitch is proposed on green land within the grounds of the College campus, defined

as existing recreation open space. It is proposed to mitigate the loss of the existing recreation

open space land to the north and provide a new college and community facility.

5.15 The proposal is therefore fully in accordance with Policy R5 and the NPPF and will formalise the

use of the land as existing recreation open space.

Amenity of Existing and Future Uses

5.16 The character of the area immediately adjacent to the site is mixed with existing housing to

the north, a college to the south and a mix of commercial, retail and leisure across the

remainder of Hornbeam Business Park.

5.17 The proposed housing use will complement the existing residential area to the north of the site

and will not impact on the residential amenity of the existing residents. In addition, the College

and hotel uses (directly to the south and west of the proposed housing) are uses that do not

conflict with residential development. Similarly, the other uses within the business park, being

typically commercial or light industrial are not typically noisy uses that would impact on the

residential amenity of the occupiers of the proposed housing.

5.18 A Noise Impact Assessment has been undertaken to determine the level of exposure to noise

of the future residents and this demonstrates that the major noise generator in the surrounding

area is road traffic, which can be suitably mitigated through boundary treatment and setting

back development away from the road edge. The recommendations in the assessment

should be taken into account at the detailed design stage.

5.19 The sports pitch has the potential to generate some localised and temporary noise associated

with its use and this has been assessed in the Noise Impact Assessment. This demonstrates that

the sports pitch and housing can co-exist without harm to the residential amenity of the future

occupiers.

5.20 Accordingly, the proposed development accords with Policy SG4 of the Core Strategy, Policy

HD20 of the Local Plan and the aims and objectives of the NPPF.

Amount, Mix and Tenure of the Proposed Housing

5.21 The proposed development comprises up to 89 dwellings on a site measuring 2.66ha,

equating to a 33 dwellings per hectare. This is considered an appropriate density for an urban

site which is sustainably located and accords with the NPPF aim to optimise the development

of sites.



5.22 The indicative layout demonstrates that this can be delivered through a mix of detached and

semi-detached dwellings and apartments and includes the required amount of open space in

accordance with Harrogate Council’s identified need (circa 0.55ha). In addition, the

illustrative scheme retains all protected trees and the majority of the boundary landscaping

and incorporates a landscape buffer to minimise the wider impact on landscape views. The

level of transport impact is also considered to be acceptable with limited impact on the wider

highway network.

5.23 The application does not set out a defined mix of units, in accordance with the advice

received from the Council during pre-application discussions. Nevertheless, the illustrative

layout allows for a mix broadly in line with the requirements of the Council’s SHMA, albeit the

houses do not specifically define the size of the property and therefore could adequately

accommodate units of 2 to 5 bedrooms (depending on the unit).

5.24 Similarly, as per the advice received by the Council’s Housing Officer, the application

proposes 40% of all the dwellings on site to be affordable, subject to a viability assessment to

be undertake at the time of submission of a reserved matters application.

5.25 Therefore, the proposed development accords with Policy SG4 of the Core Strategy, Policy H5

of the Local Plan and the aims and objectives of the NPPF.

Impact on the Highway Network

5.26 The traffic impact of the proposed development has been fully assessed through a Transport

Assessment, the methodology of which was agreed as part of the pre-application discussions

with North Yorkshire County Council.

5.27 The assessment concludes that the proposed development will have a limited impact upon

the highway network in the vicinity of the site. Junction analysis of the highway network with

and without the development shows that the construction of the proposed dwellings would

not alter the normal operation of these junctions, as estimated Degree of Saturation and

queue length values for all scenarios (2016 Base, 2021 Base and 2021 with Development)

would be very similar.

5.28 In addition, the indicative layout shows that the quantity of housing proposed can adequately

provide the required amount of parking necessary to ensure no impact of the wider highway

network.

5.29 As a consequence, the proposed development accords with aims and objectives of the

NPPF.



Open Space, Trees and Landscaping

5.30 The proposal retains all existing protected trees on the boundary of the site. These are

principally located on its western boundary with Hornbeam Park Avenue and the indicative

layout demonstrates that the propose development can be comfortably accommodated

whilst maintaining appropriate stand-off distances to allow for the protection of these tress. In

addition, other important trees (Groups A and B), as identified within the Tree Survey submitted

as part of the planning application, are proposed to be retained also with new planting to

complement and enhance the existing vegetation.

5.31 The proposed development retains a landscaping buffer to its eastern edge which should be

preserved as open space in any future development of the site. This buffer has a dual purpose

as it both limits the impact of the development on the surrounding landscape, in particular the

designated Special Landscape Area and Green Wedge to the east of the site, and provide

sufficient on-site open space in accordance with Policy C1 of the Core Strategy and the

Council’s Provision of Open Space in Connection with New Housing Development SPD.

5.32 The application is supported by a Landscape and Visual Impact Assessment, which sets out a

series of recommendations to be taken forward into any detailed applications for the site.

These include:

• Strong tree-lined and spacious frontage to Hookstone Road;

• Retention of existing vegetation to the east of the site and reinforcement with new

planting in the open space area;

• Tree planting within and around the new development; and

• Retention of existing protected trees on western boundary with Hornbeam Park Avenue.

5.33 The Assessment concludes that the proposed development has explored all opportunities to

integrate a high level of design including landscape infrastructure. The opportunities include

the enhancement and introduction of landscape features to accord with the aims and

objectives set out within the Harrogate District Landscape Character Assessment used in

support of Local Plan Policy C2 and also take into account the guidelines set out the

Harrogate Green Infrastructure SPD. The development identifies specific measures of

landscape mitigation that build upon the existing landscape character and the prevailing

features within the adjoining Harrogate Conservation Area protected under Policy HD3.

5.34 The resulting development has adopted the highest levels of design taking into strict account

the context of the site’s settlement edge location. The proposed measures are specifically

designed to significantly minimise any impacts on the adjoining Special Landscape Area and

‘Green Wedge’ land, which are protected under Local Plan Policy C9 and C10 respectively.



5.35 The development has therefore ensured that the landscape character and appearance of

the Site and surrounding area will not be compromised in that it will continue in its function to

provide an attractive setting to the settlement and maintain a landscape of exceptional

quality around the town.

Ecology

5.36 A Preliminary Ecological Appraisal has been undertaken to assess the habitat value of the site.

This identifies that the site is not a designated site for nature protection. Whilst 2 local statutory

designated sites (LNR) occur within 2km of the site – Hookstone Wood LNR and Rossett Nature

Reserve LNR – the development would be unlikely to affect these sites. As a result, the

proposed development is considered to be compliant with the relevant legislation and policy

with respect to statutory designated sites.

5.37 Regarding the site’s suitability for providing habitat to either protected species or species of

importance, the appraisal identified the presence of birds and bats which require protection

under various regulations. As a consequence, the appraisal recommended the following

mitigations:

5.38 Where possible trees should be retained and protected following BS5837:2012 ‘Trees in

Relation to Design, Demolition and Construction – Recommendations’ guidelines. Where

retention is not possible, then replacement is recommended on a like for like basis;

• All new tree planting should be planned and implemented in accordance with

BS8545:2014 ‘Trees: from nursery to independence in the landscape – recommendations.’

• Trees and dense scrub to be fenced off to preserve their suitability as habitat for house

sparrow and song thrush;

• Removal of the invasive introduced butterfly-bush on site, and its replacement with native

trees and shrubs of local provenance; and

• Provision of bird boxes specifically designed for SPI and L BAP species, such as house

sparrow, in suitable locations, if possible.

5.39 Subject to the above recommendations, some of which will be further developed at the

detailed design stage, it is considered that the proposed development accords fully with the

aims and objectives of the NPPF.

Flood Risk, Drainage and Ground Conditions

5.40 A Flood Risk Assessment has been conducted in accordance with the requirements of the

NPPF and Local Lead Flood Authority SUDS design guidance to support the planning



application. It notes that the Environment Agency Planning Flood Map shows the

development site in Flood Zone 1 thus primary flood risk to the site can be considered low from

all sources. Secondary flood risks including surface water flooding have also been assessed

and the site is considered to be at low risk from all sources. The Council’s SFRA flood maps

concur with those of the Environment Agency confirming the site to be at low flood risk.

5.41 As the housing element of the proposed development is in outline form with all matters

reserved (except for access), the drainage strategy provides certain recommendations to be

incorporated in future detailed proposals. These include:

• The finalised surface water drainage scheme will need to meet the requirements of the

LLFA with full consideration of SuDS maintenance for the lifecycle of the development;

• Formal agreement will need to be reached with Yorkshire Water for the adoption of the

sewer networks;

• The finalised drainage design will need to accommodate all events up to 100 year plus

climate change storm events without risk of flooding to the onsite properties or risk of run

off to adjacent land;

• A SuDs O&M manual will be required to support a reserved matters application. Details of

how and who will maintain the SuDs devices within the surface water drainage scheme will

need to be identified; and

• Foul drainage should be detail designed in accordance with Building Regulations and

Sewers for Adoption.

5.42 Site investigations, including a Phase 1 desk-top study and a Phase 2 intrusive ground

investigation, have taken place and the results have been summarised in the relevant reports

submitted with this application. These note that there are no risks to the development of the

site for residential use that would preclude its proposed use. Soil and gas monitoring tests have

been undertaken and show a low or very low risk to human health or controlled waters.

5.43 The presence of deep fill deposits across the southern portion of the development site is

identified as a constraint for which environmental and preliminary geotechnical advice is

given. Future development of the site should take account of this advice when preparing a

detailed proposal.

5.44 Taking the above into account, the proposed development is considered to accord with

Policies SG4 of the Core Strategy and the aims and objectives of the Local Plan.



6. Summary

6.1 Bilfinger GVA is instructed by Harrogate College (hereafter referred to as “the College” or “the

applicant”) to prepare and submit a hybrid application seeking outline planning permission

for residential development on surplus land to the north of its main campus at Hornbeam

Business Park, Harrogate and full planning permission for a new artificial sports pitch to the

east.

6.2 The site is located south east of Harrogate town centre and is approximately 3.63 hectares

(ha) in size, split 2.66ha for the proposed residential development and 0.98ha for the sports

pitch and surrounding facilities (parking and changing pavilion). It is immediately adjacent to

the existing College building and fronts onto Hookstone Road and Hornbeam Park Avenue

and comprises former playing fields primarily associated with the site’s previous occupier, ICI.

The fields have since become surplus to need and have remained unused for many years,

principally owing to the sloping topography and poor drainage in certain elements of the site.

6.3 This Statement has demonstrated that the proposed development accords with the relevant

policies of the statutory development plan and any material considerations. The main

considerations are summarised below:

• The site is designated as existing recreation open space. This Statement and the Sports

Needs Assessment submitted as part of this application demonstrate that the existing

recreation open space will be replaced by a facility of superior quality and with greater

sports development outcome, secured for the community to use. This is considered to

comply with the relevant local and national planning policy and meet the requirements of

Sport England;

• The application site is located within Harrogate’s main urban area which is the principal

focus for new housing development in the district. It is a highly sustainable location within

walking and cycling distances to nearby shops, schools and other services. As a

consequence, the proposed housing use is acceptable in principle and accords with the

aims and objectives of statutory development plan and the NPPF;

• The amount of housing and the resultant density proposed is considered to optimise the

site’s development potential taking into account the known constraints and the local

character. The affordable housing provision will be in accordance with the Council’s

requirements and the indicative layout shows a housing mix that accords with the current

target’s set out in the Strategic Housing Market Assessment;

• The proposed development is not considered to have any detrimental impact on

residential amenity, highways, landscape character, flood risk, drainage and ground

contamination or any other planning matter to be considered.



6.4 Given the above, GVA graciously request that the proposed development subject of this

hybrid planning application is approved without delay in accordance with presumption in

favour of sustainable development, set out in paragraph 14 of the NPPF.

gva.co.uk

Appendix I Site Plan