PTE/13/7 Development Management Committee 23 January 2013

Town and Country Planning General Regulations 1992 - Regulation 3: North Devon District: Two modular classroom units including an external covered play area to each unit finished with a soft crumb type safety surface. Additional car parking provided for increased staff numbers and associated landscaping works at Southmead CP School, Wrafton Road, Braunton Applicant: NPS on behalf of Devon County Council Application No: DCC/3471/2012 Date Application received by County Council: 13 December 2012 Report of the Head of Planning, Transportation and Environment Recommendation: It is recommended that conditional planning permission is granted subject to the conditions set out in Appendix II to this report. 1. Summary 1.1 This report relates to an application for the provision of two new classroom blocks

and an extension to the staff car park at Southmead Primary School in Braunton. 1.2 The key material considerations are drainage and flooding concerns and traffic

management, on-street parking and congestion issues with relation to the school and its neighbour the Braunton Academy.

2. The Proposal/Background 2.1 Southmead School is one of three established primary schools in Braunton and is

located in the south of the settlement on the Wrafton Road and adjacent to the east of the Braunton Academy which provides secondary education for the catchment.

2.2 Southmead School was built in the early 1970s and its geometric design around the

main hall makes it difficult to extend. There are already two additional classrooms on the site and the old caretaker’s house to the north of the access point which is no longer in residential use. There is a small staff car park accessed from Braunton Road which is closed off to public access during pick up and dropping off hours and a large recreation field to the west separating the school from the properties in Curve Acre.

2.3 Due to capacity issues in Braunton and in anticipation of an increase in numbers to

be accommodated in 2014, this application is for the provision of four new 30 place classrooms in two new blocks and to increase in the size of the car park to accommodate the increased teaching staff. This would increase the capacity at Southmead from 300 to 420 places.

2.4 The two classroom blocks although of standard modular “Wernick” construction, have

been designed so that their external appearance accords with the design strategy for the school which is to promote bright and interesting finishes in contrast with the flat roofs and plain external finishes of the original buildings. The school has opted for a

Please note that the following recommendation is subject to consideration and determination by the Committee before taking effect.

curved grey aluminium roof and timber cladding with yellow doors and windows and pale blue roof supports. This choice of colours and materials in the planning application was justified as supporting the school’s theme of “beach” colours reflecting their location close to the coast. Since the application was submitted the Applicant has stated that the school wishes to have the scheme in silvers and pale blues and it is therefore suggested that the final colours be the subject of a condition.

2.5 The educational justification for separate blocks is to make is easier to separate the

different age groups into stand alone units with dedicated playground and access facilities and to minimise disruption to the existing school during construction.

2.6 The classrooms each incorporate 60 square metres of covered play area with a soft

crumb type safety surface. The existing tarmac play area will be partially covered by Classroom 1 and this area is to be extended to link both of the new classrooms to ensure that there is a dry area for pupils to play on and to move between the classroom blocks.

2.7 The proposal extends the existing car parking area by taking part of the garden area

from the caretaker’s house (currently used as an IT suite) and the removal of a small grassed area adjacent to the existing car park and three existing sheds. This will increase the provision from 14 to 24 spaces and is managed for staff only. There is proposed to be surface water attenuation and storage beneath the new car park extension.

2.8 The proposal also includes a new footway from the school site to Wrafton Road to

reduce pedestrian and vehicular conflict at the school entrance which doubles as pedestrian and vehicular access at present (although it is closed during school pick up and drop off times there is considerable picking up and setting down activity in the area).

2.9 Material generated from the construction of the additional car parking and from the

site clearance will be re-used in a low bank on the playing field to provide separation between the two pitches which currently interfere with each other. It is proposed to landscape this bank with grasses and wildflower planting and on the side of the bank facing the grass pitch the bank will be stepped and retained with timber logs to create an informal seating space for spectators and players. The proposal will result in the loss of 6 trees, none of which are very mature and only one of which is a traditional native hardwood likely to become a large tree (oak). The loss of these trees will be mitigated by their replacement by species that are likely to grow to medium size specimens which will not be likely to danger or loss of light on the school site.

3. Consultations 3.1 North Devon District Council – recommends approval. (Response made post

flooding). 3.2 Braunton Town Council – views awaited (Town Council meeting due on 14 January

2013 – comments to be reported verbally at Committee) 3.3 Environment Agency – no objection as the site is in Flood Zone 1. (Following the

recent flood incidents the EA was contacted again to see if it wished to make any additional comment about the surface water issue but it has confirmed that there is no objection).

3.4 South West Water – comments that the existing foul sewer is capable of accommodating the additional flow from the two new classrooms.

3.5 Devon County Council Historic Environment – the scale and situation of the proposal

will have no archaeological impact. 4. Advertisement/Representations 4.1 This application has been advertised in accordance with the statutory publicity

requirements, by site notice and by neighbour letters. 4.2 Some representations have criticised the period for consultation over the Christmas

break, but as the application was submitted just before Christmas this was unavoidable and this Authority does not operate a “cut off” after the 21 day period in any case, choosing to take on board representations up to the date of determination.

4.3 As a result of the consultation, there have been 14 letters of representation at the

date of printing this Agenda. There have been 12 objections based on concerns about the impact on the existing foul and surface water drainage systems (especially in view of the recent flooding in Braunton); impact on traffic and car parking on Wrafton Road and adjacent residential streets due to the increase in pupil numbers; concerns that parking is for staff only and comments that increased numbers will add to noise from the site.

4.4 A letter has been received from the Braunton Access Group who expressed concern

that it was not previously aware of the proposal and the timing of the consultation. It states that Wrafton Road is almost impassable due to the number of cars accessing the schools and that this proposal will exacerbate the existing problems of congestion and road safety. It queries the numbers to be accommodated at the school and whether it will have a “knock on” effect meaning that the academy would need to have additional buildings. It also raises the issue of the recent flooding and the fragile local drainage system and is concerned that the planned connections will exacerbate the problem.

4.5 There has been 1 letter of support. 4.6 Any further representations will be reported verbally at the meeting, and all letters of

representation will be available at the Committee meeting. 5. Planning Policy Considerations 5.1 In considering this application, the County Planning Authority is required to have

regard to the provisions of the Development Plan. Section 38(6) of the Planning and Compulsory Purchase Act 2004 requires that where regard is to be had to the Development Plan, the determination shall be in accordance with the Development Plan unless material considerations, which can include emerging policies, indicate otherwise. In this case, the relevant Development Plan Policies are summarised in Appendix I to this Report.

6. Comments/Issues 6.1 The principal issues raised with relation to this application are the need for additional

pupil places in Braunton; the potential impact on the existing drainage system and surface water runoff in the village; and, the impact on the existing traffic management situation in Wrafton Road and surrounding residential streets.

Educational Need

6.2 The County Council is required to meet the projected educational needs of the local

population. 6.3 The strategic school place planning team has advised that a combination of projected

population increases in the area due to rising birth rates (a 48% increase since 2004), increases in inward migration, and the fluctuation in numbers of military families who use Southmead as the nearest school, has combined to identify a shortfall in this area.

6.4 In the specific case of Braunton there is also a need to retain flexibility in the pupil

places available to accommodate the varying needs of the military camp at Chivenor Military base. Southmead School has a positive record and experience of being able to accommodate new pupils across the age ranges at short notice but the planning for education provision in this area is made more difficult due to the uncertainties caused by the needs of the military base.

6.5 Southmead School cannot physically accommodate any additional pupils at present

but it is one of the few primary schools in this area that has the space for any extension at all. The school strategy team is also investigating the potential at Braunton Caen but this is in addition to the need to be met at Southmead and not instead of it. In terms of the available space, it is clear that the two buildings can be physically accommodated at Southmead without an adverse impact on the existing facilities available at that school.

6.6 The school place planning team has also confirmed that there is sufficient space at

the Braunton Academy to meet the projected expansion in primary places without the need for additional buildings.

Surface water flooding

6.7 The planning application has coincided with the severe flooding in Braunton just prior

to Christmas 2012 and a number of representations and objections have understandably expressed concerns due to the perceived impact on the existing drainage system with concerns about any new development leading to additional runoff or loss of land for soakaways.

6.8 The application site is in Flood Zone 1 which is not liable to surface water, fluvial or

tidal flooding and the school site itself was not flooded in December. 6.9 The Applicant has incorporated a cellular system of attenuation under the new car

parking area which will manage the surface water runoff into the existing system that discharges into the Knowl Brook to the south. The rest of the hard surfacing has been assessed as acceptable with reference to the capacity of the surface water system.

6.10 This system was assessed at preapplication stage by the Environment Agency who

advised the Applicant that as the proposal is to discharge to a tidal watercourse, it does not have to restrict attenuation to Greenfield rates.

6.11 The Environment Agency responded to this application with a comment of “no

objection” before Christmas. Therefore contact was made with it again in the New

Year, and following the receipt of a number of objections, asking whether, in view of the recent floods it wished to alter its advice.

6.12 A further response was received on 11 January 2013 stating that it is aware of

concerns regarding sewer flooding in Curve Acre but that the surface water from the proposal will be disposed of via the school’s own surface water system and will not worsen the problems in Curve Acre. The classrooms in Flood Zone 1 will not worsen the flood risk so long as the run off is attenuated by the existing surface water system.

6.13 Given the local concerns and the flood clinics carried out in Braunton by the County

Council’s flood team, it was asked to advise further on this application following the flooding. The response was that from a flood risk point of view it has no objections to the scheme. Following on from the flood surgery South West Water was going to investigate the capacity of the surface water system as well as any mis-connection (i.e. surface water entering the foul system).

Foul drainage

6.14 A number of objectors have raised the existing problems with the foul drainage

system in the vicinity of Curve Acre to the east of the application site where the recent floods (and previous heavy rain events) have caused backing up of the foul drains. The proposed classrooms will connect into the existing foul drainage system which crosses the school site and will be connected to the foul main at Curve Acre. The lower classroom cannot connect to this sewer by gravity and will require to be pumped with an underground pump to the east of Classroom 2. The two new classrooms will have six toilets in total (two girls, two boys and two staff/disabled).

6.15 On receiving the objections the County Council has contacted South West Water

(SWW) to discuss the concerns of local residents. SWW is currently carrying out additional local investigations to ascertain the causes of the flooding and is contemplating carrying out works to the pipes to prevent the system backing up into some houses. It has informally advised that the sewer has adequate capacity to accommodate the connection from this proposal and that it has no objection. The issues with the drain seem to be preventing unauthorised or accidental ingress of surface water into the foul drain system which is what is causing the problem and this would be an issue whether or not the school was connecting into the sewer. It has advised that it will provide additional comments before the meeting as a result of its investigations, but that it will not be raising any objection.

Highways and parking

6.16 It is acknowledged that the close proximity of two schools, sharing an access road

and in a busy holiday village is likely to lead to road congestion at peak times. Southmead School currently has a Gold standard School Travel Plan (dating from 2010) which covers walking bus arrangements, shared car parking with Braunton Academy and indicates that in the region of 80% of pupils either walked or cycled to the school. The Chivenor Camp is only one mile away and so does not qualify for school transport but there is a path all the way along the road as well as a public bus service. It would be a condition of any permission that the School Travel Plan was updated and the school has advised that there will be a school crossing patrol reinstated to deal with safety issues arising from the road crossing.

6.17 There is no encouragement for parents to park or drop their children off by car at this

school and the car park is closed off during dropping off and pick up times and the

Highways Officer has commented that the parking layout and drainage arrangements appear acceptable. There are short periods of congestion on Wrafton Road at school drop off and pick up times. The school carried out a mail drop along Wrafton Road and an open evening on 17 December 2012 to try to speak to local residents about any concerns they may have.

6.18 Given the relationship of the two schools to each other and the work carried out by

the school for its Travel Plan it is unlikely that much more can be done to prevent the congestion that is a feature of many schools in Devon during certain times of the day. The Highways Officer has commented that many if not all schools experience congestion problems at peak time and that similar issues would be likely to arise should the needed capacity be provided at any other school.

6.19 As the School is currently reviewing existing gold School Travel Plan to try and

achieve platinum award status, it appears that the school is doing as much as it can to manage these issues and the provision of additional spaces for teaching staff will ensure that they do not need to park on nearby streets if the car park is full. The school is currently working up their School Travel Plan.

6.20 The Highways Officer raises no objections subject to conditions requiring details of

the safety barrier for the new pedestrian access, and the submission for approval of any new or altered sign arrangements.

7. Reasons for Recommendation/Alternative Options Considered 7.1 It is clear that in terms of educational need, these spaces are required in Braunton

and of the three primaries the need can only be reasonably accommodated at Southmead School which requires more flexible accommodation in any case due to its proximity to Chivenor. The proposals can be provided without detriment to the existing facilities at Southmead and will result in a rearrangement of the accommodation and hard play space to the school’s benefit and the proposal will lead to the creation of an additional 9 whole time equivalent posts at the school, four of which are new teachers.

7.2 The existing issues with traffic on Wrafton Road are being dealt with to the best of

the school’s ability and the updating of the travel plan will assist the school to focus on non car methods of coming to the site. However, the percentage of pupils walking and cycling is already high and therefore a significant proportion of the congestion locally may lie with the academy rather than the primary school.

7.3 It is understandable that following the flooding just before Christmas that the

community focus is on flooding matters and concerns about any development that may exacerbate the problems in Braunton, however these concerns are not borne out by the Environment Agency, the County Council’s flood team or South West Water who have not raised objections to this proposal.

7.4 It is therefore recommended that permission be granted subject to the conditions set

out in Appendix II to this Report.

Dave Black Head of Planning, Transportation and Environment

Electoral Division: Braunton Rural

Local Government Act 1972 List of Background Papers Contact for enquiries: Sue Penaluna Tel No: 01392 382880 Room No: ABG Lucombe House Background Paper Date File Ref Application File 17.12.12 DCC/3471/2012 sp110113dma sc/cr/2 modular classrooms covered play area southmead school 04 hq 150113

Appendix I To PTE/13/7

Planning Policy Considerations The National Planning Policy Framework (2012) Devon Structure Plan 2001 – 2016 (Adopted October 2004): Policies ST1 (Sustainable Development); ST3 (Self Sufficiency of Devon’s Communities); ST9 (Barnstaple Sub Regional Centre); CO6 (Quality of New Development); CO11 (Conserving Energy Resources); and CO13 (Protecting Water Resources and Flood Defence). North Devon Local Plan 1995 – 2011 (Adopted July 2006): Policies DVS1A (Sustainable Development); DVS1 (Design); DVS3 (Amenity Considerations); DVS4 (Public Health and Safety); DVS6 (Flooding and Water Quality); DVS7 (Sustainable Urban Drainage Systems); and COM 4 (Community Facilities). North Devon and Torridge Joint Core Strategy: Pre Publication (January 2010): Policies COR1 (Reducing the Impact on Climate Change); COR2 (Adapting to Climate Change); COR7 (Renewable and Low Carbon Energy and Heat); COR8 (Improving the Quality of New Development) and COR16 (Community Services and Facilities).

Appendix II To PTE/13/7

List of suggested planning conditions: 1. The development shall commence within three years of the date of this permission. REASON: To comply with Section 91 of the Town and Country Planning Act 1990. 2. The development shall be carried out in strict accordance with the details shown on

the approved drawings numbered AL(90)01, QT 8256-1-004C, QT 8256-1-003C, QT 8256-1-002C, QT 8256-1-001B, LL(94)01, AL(0-)01, AL(0-)02, AL(0-)03, AL(0-)04, AL(90)02, AL(90)03, 131178-600-02 Rev B, and 131178-600-01 RevB .

REASON: To ensure that the development is carried out in accordance with the

approved details. 3. The external materials, colours and finishes for this development shall be submitted

to and approved in writing by the County planning Authority prior to the commencement of the development.

REASON: To ensure the development is in keeping with the character and

appearance of the existing building and the local landscape.. 4. Within six months of the date of this permission or before occupation of the new

classrooms (whichever is the later), an updated School Travel Plan including a programme of implementation shall be submitted to and approved in writing by the County Planning Authority. The travel plan shall be implemented in accordance with the approved implementation programme for the life of the permission unless it is superseded by an updated plan approved by the County Planning Authority.

REASON: To ensure that the existing School Travel Plan is properly updated to

manage the additional school population in the interests of highway and pedestrian safety and the amenity of local residents.

5. All surface water run-off shall be kept separate from foul drainage, and foul drainage

shall be appropriately connected to the public sewerage system. REASON: To protect water quality and minimise flood risk. 6. The development shall be carried out in accordance with the submitted scheme for

surface water management and there shall be no further hard surfacing carried out on this site without the further written consent of the County Planning Authority.

REASON: To protect water quality and minimise flood risk. 7. The approved landscaping details on drawing LL(94)01 shall be implemented in the

first planting season after completion of the development. The approved scheme shall be maintained for a period of five years. Any tree or shrub, or any replacement of it, that is removed, uprooted, destroyed or dies within five years of the date of planting shall be replaced with the same or similar species in the same location.

REASON: To protect the character and appearance of the school site and to ensure that replacement planting is carried out and maintained in the interests of the local landscape and habitats.

8. A barrier shall be provided at the pedestrian access onto Wrafton Road hereby

approved. Such barrier design to be agreed by Devon County Council and provided prior to the classrooms becoming operational.

REASON: In the interest of pedestrian safety.

9. New or altered sign arrangements within the immediate vicinity of the school shall be submitted to Devon County Council for approval, and implemented, prior to the classrooms becoming operational.

REASON: In the interest of highway safety.