Application Report 1800517

8.1 Ecologist

No objection subject to condition to secure additional measures for biodiversity compensation and enhancement for the overall scheme, to include lighting details and standard charges for habitat mitigation.

8.2 Building Design & Conservation Area Officer

Proposals are broadly in line with the pre-application advice. Further refinements are suggested, as well as conditions relating to materials and the external finishes.

8.3 Tree Officer

No objection subject to conditions to protect retained trees on the site and secure new planting. The proposals do not require the removal of any important amenity trees and the seven trees of moderate or low quality to be removed can be replaced. No detrimental effect on the Conservation Area.

Proposal

11.2 This application seeks planning permission for the erection of a pair of semi-detached affordable houses and a local heritage centre, detailed as follows:

• The proposed pair of semi-detached houses would be located within the western half of the site, with their rear boundaries adjoining that of Burley Stores. The front elevations would face west, and the houses would measure approximately 6.1 metres in width, 9.7 metres in depth, 5 metres in height to the eaves and 8 metres to the ridge. Internally, the dwellings would have a floorspace of 100m2. Materials used would comprise brick, clay tiles and timber sash windows. There would be a pair of semi-detached outbuildings, within the rear section of the respective private garden areas, providing cycle and garden storage (floor area of approximately 7m2.) All materials used in the construction of these outbuildings would match those upon the main houses. The properties would be accessed via the car park (which will need to be the subject of separate agreement with New Forest District Council), and there would be a turning area and 2 parking spaces per dwelling to the front of the properties.
• The proposed two storey heritage centre would be located on the eastern part of the site, and its design has been modelled on a traditional timber barn, and would therefore be constructed with a brink plinth and timber cladding. Internally, the heritage centre would comprise a floor area of approximately 310m2. There would be a separate access from that serving the proposed dwellings, and parking would be within the existing car park.
• The application is accompanied by an arboricultural impact assessment and an ecological appraisal and the proposal includes provision of bat boxes, swift nest boxes and hedgehog houses for the two proposed houses.

Background

11.3 This application is made by the New Forest National Park Authority following an agreement with the landowner to secure a 999 year lease of the land as an 'exception site' for the purposes of providing affordable housing and a heritage centre. It is proposed that the two proposed affordable units would be funded through development contributions, as per the two affordable houses recently built at Bransgore (planning permission ref. 14/00664).

Policy Considerations

11.4 Policy CP11 of the Core Strategy supports small-scale affordable housing developments on sites in or adjoining villages to the meet the needs of local people. Such housing must be capable of management by an appropriate body, which includes the National Park Authority. At this stage, it is envisaged that the proposed houses would be managed by the Authority (as is the case with the Bransgore scheme). Were the Authority to involve another body to manage the units on its behalf, they would remain available as affordable units. Should circumstances or ownership change in the long term future, then it would be appropriate at that stage to secure a legal agreement to ensure the units would continue to be made available as affordable homes to meet local housing need in perpetuity. New Forest District Council (NFDC), as the Local Housing Authority, have identified that there is a recognised need, with 20 persons currently listed on the NFDC Home search housing waiting list who have a connection to the parish of Burley.

11.5 The location of the proposed affordable units are in close proximity to all facilities and amenities within the village of Burley, and are in fact closer than most other residential properties in the village. The pedestrian entrance to The Mall is located approximately 35 metres to the south, with the nearest bus stop being located opposite its Ringwood Road entrance, being the main road which links Burley with the surrounding area. Ringwood Road can be accessed without having to cross any other highway. The proposed units would therefore clearly be sited in a sustainable location, which whilst 2 car parking spaces per unit have been provided, would reduce dependency on travel by private car. The proposed development is therefore considered to be in accordance with Policy CP11 of the Core Strategy.

11.6 Concern has been raised that other sites have not been adequately explored. However, no other suitable sites have been put forward for consideration as an 'exception site'. A need for affordable housing within the village has been identified, and as such it is not considered that this site is inappropriate for its proposed use for the reasons set out above.

11.7 Policy CP10 states that new local community facilities will be supported where there would be a clear and direct benefit to the local village or rural community within which they would be located. Concern has been raised within a letter of representation that the heritage centre would be more akin to a tourist facility, given that the majority of the floor area would be used as a display area/shop. The submitted Supporting Statement sets out that the concept of the heritage centre was initiated by the Parish Council, and cites potential uses as being for the display of artefacts collected by the Burley Living History Project. The proposed floor plans also show the provision of a staff area, and two meeting rooms. The Parish Council have considered the proposed building to be of a sufficient size to accommodate additional or ancillary Parish Council and local community facilities, to allow the other currently unsatisfied village needs to be met, such as through the provision of an accessible Parish office. As such, the proposal is considered to be compliant with Policy CP10 of the Core Strategy. Whilst the heritage centre would complement the tourism offer in Burley, it is not considered to be the type of tourism development envisaged by Policy CP16 (Tourism Development) which directs new facilities to the defined villages.

Character and Design

11.8 The proposed houses would not be read in the context of an established street scene, or against any other existing property. The houses have been designed so as to have the appearance of traditional forest cottages, with external chimneys, timber sash windows and small porch overhangs. The design of the dwellings have been informed through pre-application discussions with the Authority's Building Design and Conservation Officer. Whilst further minor refinements to the proposed houses have been suggested these are not considered feasible as they would result in the properties having a higher ridge height, larger window openings and a resultant floorspace in excess of 100m2.

11.9 The proposed heritage centre would be a stand-alone development in that it would not be viewed in the context of any other building, with the exception of the proposed nearby houses which would be of a different character. The appearance of the building would be one of a barn conversion by virtue of the use of materials, and proportions of the elevations and roof. Windows and glazing is considered to be minimal, yet still adequately serving the internal layout. Again, the exact materials can be conditioned to ensure they are appropriate to the conservation area. Overall, it is not considered that the proposed development would result in any adverse impact upon the character or appearance of the conservation area. In the event that the heritage centre does not proceed for any reason, then the lease makes provision for two further affordable housing units, subject to planning permission.

Amenity Considerations

11.10 The rear gardens of the proposed dwellings would back onto the rearmost garden area of Burley Stores. At the closest point, there would be a distance of 23 metres between the proposed houses and Burley Stores. The rear gardens of the dwellings would measure approximately 15 metres. As such, it is considered that there is sufficient separation between the properties so as not to result in any significantly adverse impact upon neighbouring amenity with regard to overlooking, overshadowing or by appearing overbearing. For the same reasons, it is not considered that the future occupiers of the proposed dwellings would be adversely impacted by Burley Stores.

11.11 The access into both sites would be via the NFDC public car park, for which there is an existing access onto Chapel Lane. The car park has a capacity for the parking of approximately 75 vehicles. The proposed development would not result in the loss of any parking spaces, and therefore there would not be any displacement of vehicles upon the highway or elsewhere as a result. There would be a total of 4 parking spaces across the 2 residential units, which are private; there is not dedicated parking for the proposed heritage centre, however it is envisaged that this could be accommodated within the existing provision. NFDC have indicated an in-principle support for scheme, subject to a formal access agreement which would need to be completed separately. Whilst Chapel Lane is a classified road, there would be no change to the existing access to and from the car park. It is not considered that the additional 4 parking spaces for the residential development would have any material impact upon highway safety. Overall, it is not considered that the proposed development would result in any adverse impact upon either the car park capacity of safety of the highway at Chapel Lane.

11.12 There are a number of trees along the current southern site boundary, and trees on the site are protected by virtue of the conservation area status, as there are no Tree Preservation Orders on the site. An Arboricultural Impact Assessment has been submitted as part of the application, which shows the removal of some trees in order to allow the access into the site from the car park. However, the Tree Officer did not consider that this would involve the removal of any important amenity trees, and that those to be removed are of moderate or low quality, and could be replaced; this is proposed along the southern boundary of the site, within the garden area of the left hand facing house. Overall, subject to condition, it is not considered that the proposed development would result in any significant effect on the overall tree cover within the area, or have any detrimental impact upon the conservation area.

Ecology and Biodiversity

11.13 In accordance with the Conservation of Habitats and Species Regulations 2017 (‘the Habitat Regulations’) an Appropriate Assessment has been carried out as to whether granting planning permission would adversely affect the integrity of the New Forest and Solent Coast European sites, in view of that sites conservation objectives. The Assessment concludes that the proposed development would, in combination with other developments, have an adverse effect due to the recreational impacts on the European sites, but that the adverse impacts would be avoided if the planning permission were to be conditional upon the approval of proposals for the mitigation of that impact in accordance with the Authority's Mitigation Strategy or mitigation to at least an equivalent effect.

11.14 As such, as the application site is located within 400 metres of the New Forest SPA, policy CP1 of the Core Strategy states that any new housing that is proposed to be located within 400m of the boundary of the New Forest SPA will be required to demonstrate that adequate measures are put in place to avoid or mitigate any potential adverse effects on the ecological integrity of the SPA. The protection of this area is provided by the EU Conservation of Habitats and Species Regulations 2010. As a method of demonstrating that adequate measures have been put in place to avoid or mitigate significant adverse effects on the New Forest NPA, the Authority has identified a package of appropriate mitigation measures through seeking financial contributions. A Unilateral Undertaking has been submitted alongside the application, and the required mitigation contribution will be paid prior to the commencement of development. This is considered to satisfy Policy CP1.

11.15 More recently, a joint statement from the Environment Agency and Natural England advises that any new development within the catchment of the Hampshire Avon needs to be “phosphate neutral”. In response to this statement, the Authority, together with New Forest District Council and Wiltshire Council, has adopted an Interim Strategy on Phosphate Neutral Development which requires the imposition of a pre-commencement condition.

11.16 It is therefore recommended that the application be approved.