Reason for Committee Consideration: Departure from the Local Plan

Transcription

1 Site Address: BAE System, Elettra Avenue, Waterlooville, PO7 7XS Proposal: Outline application for mixed-use employment, leisure and retail development to comprise demolition of Main Building and erection of Class C1 hotel, Class D2 cinema, 3No. Class A3 restaurants, Class A4 public house, Class A3/A5 drive-thru restaurant, Class A1 food store and retention of E Block for use as Class B1 offices or conversion to Sui Generis bowling complex, Class D2 health and fitness centre, and Class A3 restaurant. Application No: APP/13/00893 Expiry Date: 09/12/2013 Applicant: Bridgehouse (Bradford IoM) Ward: Waterloo Limited Agent: Mr Holmes Harris Lamb Property Consultancy Case Officer: Aaron Wright Reason for Committee Consideration: Departure from the Local Plan Density: N/A HDS Recommendation: GRANT OUTLINE CONSENT Introduction i) Members will recall that this application was due to be considered at the Committee of 21 st November, but was deferred due to the recent receipt of an objection from planning agents representing Lidl UK. The deferral was in order to enable officers to consider this objection. This report has been updated by the inclusion of additional comments from the Planning Policy team in section 5. Consideration is also included in section 7 under the heading Principle of Development. 1 Site Description 1.1 The BAE Systems Technology Park site forms an island of some 5.7hectares bounded by Elettra Avenue, Hambledon Road and Silverthorne Way. It sits within the Brambles Farm Industrial Estate, 1km west of Waterlooville Town Centre. In 1982 planning permission was granted to Marconi for 28,300sqm of light industrial and research and development uses with ancillary buildings. Marconi was subsequently purchased in 2000 by BAE Systems. 1.2 The site currently contains the following buildings: Main Building - 19,498sqm of research and development (B1(b) land use; Restaurant - 973sqm of ancillary use that is not currently occupied but historically catered for employees on site; E Block - 6,726sqm of light industry (B1(c) land use Beam Plot - 927sqm of B1(c) space which remains in BAE operational use and is excluded from this application. 1.3 The main building is 3 storey in height and approximately 160m in length, running parallel with Hambledon Road. Other buildings on site are a mix of single and 2 storey in height on the eastern half of the site.

2 1.4 Over recent years a significant portion of the site has become surplus to operational requirements leaving much of the building space virtually unoccupied. There is an extensive parking area comprising 863 parking spaces largely located to the south western side of the site. The site has main access via the Elettra Avenue roundabout junction with a dedicated arm to the site. There are secondary accesses to the south of the site off of Silverthorne Way. 1.5 Grass embankments and bunding form much of the perimeter to the North, East and South of the site with dense tree planting. The western perimeter of the site also has tree planting along its edge. There are industrial units to the south and west with offices and industry to the north. A mix of residential and industrial units lies to the east of Hambledon Road opposite the site. 1.6 In June 2012, an outline application was submitted to the Council for the demolition of "main building" and ancillary restaurant and redevelopment to provide business units (Class B1, B2 and B8), car showroom, drive thru restaurant, hotel and restaurant and associated parking with access from Elettra Avenue. 1.7 As part of the above application, a substantial body of marketing evidence was submitted to demonstrate that there was a lack of demand for the existing quantum of Class B use floorspace on the site and that accordingly, it should be reduced with alternative uses brought forward to ensure a viable redevelopment of the site. 1.8 The Council resolved to grant planning permission for the proposals in October 2012, which was subject to a S106 legal agreement. This was signed and the planning permission issued on 31st July The applicant carried out a significant marketing campaign following the granting of outline consent. The Council has been advised that there has been no occupier demand for the revised quantum of Class B1, B2 and B8 floorspace identified in the consented scheme. Therefore, it became necessary for the applicant to consider an alternative mix of development for the site to ensure that it could be brought back into use and its longer term viability was not jeopardised. 2 Planning History APP/13/00940 Application to determine whether prior approval is required for the method of demolition of the buildings within the BAE Systems Technology Park (with the exception of E Block and Beam Plot buildings) and any proposed restoration of the site. Approval 16/10/13 APP/12/00652 Outline application for demolition of "main building" and ancillary restaurant and redevelopment to provide business units (Class B1, B2 and B8), car showroom, drive thru restaurant, hotel and restaurant and associated parking with access from Elettra Avenue. Outline consent 31/07/13 08/67977/007 New HAVC chiller units and louvres to existing office building. Permission 14/05/08 07/67977/006 Display of 2No. externally illuminated notice signs and 3No. non-illuminated notice signs to perimeter of site and buildings. Permission 23/05/07

3 06/67977/005 Removal of existing external metal spiral fire escape and replace with a new metal staircase with straight runs and half landing. Installation of new external air handling unit. Permission 17/04/07 98/51340/009 Outline application for construction of replacement staff restaurant and social club on part of existing car park and erection of 2 storey office building in place of existing staff restaurant and social club (re-advertisement). Permission 05/05/00 3 Proposal 3.1 This application seeks outline application for demolition of the existing main building and a mixed-use employment, leisure and retail development comprising of Class C1 hotel, Class D2 cinema, 3No. Class A3 restaurants, Class A4 public house, Class A3/A5 drive-thru restaurant, Class A1 food store and retention of E Block for use as Class B1 offices or conversion to Sui Generis bowling complex, Class D2 health and fitness centre, and Class A3 restaurant. 3.2 The only matters to be considered at this stage are access into the site and the layout of the uses proposed. The appearance, landscaping and scale of the buildings would be agreed at the reserved matters stage. A detailed breakdown of the scheme s components is provided below: Development Use Floorspace (Gross Internal Area) Discount Food store Class A1 1,532sqm Cinema (8 screens / 1,300 seats) Class D2 3,250sqm Bowling Complex (20 lanes) Sui Generis 2,320sqm (Conversion of E Block) Fitness Centre / Gymnasia Class D2 1,720sqm (Conversion of E Block) Budget Hotel (60 bedrooms) Class C1 2,790sqm Restaurant Class A3 370sqm Restaurant Class A3 370sqm Restaurant Class A3 370sqm Restaurant Class A3 555sqm Restaurant (Drive-Thru) Class A3/A5 335sqm Total 13,612sqm GIA 3.3 The proposals are submitted in outline for a phased development of the site, with the cinema, hotel and food store, together with ancillary restaurant uses being developed first, with the conversion of E Block to provide the proposed bowling complex and health and fitness facility and restaurant upon being vacated by BAE in However, it must be noted that BAE could extend the lease beyond 2017 and as such the building could remain as offices. 3.4 The discount food store will comprise a net sales area of 1,125 m2, of which 80% (900 m2) will be for the sale of convenience goods (i.e. food and non alcoholic beverages) and the remaining 20% (225 m2) for comparison goods (i.e. any other goods including household appliances, books, stationary, tools). 3.5 It is anticipated that the operator of the food store will be Aldi. The applicant is

4 currently undertaking active discussions with Cineworld as the prospective operator of the cinema. Similarly, discussions are underway with McDonalds to operate the drivethru facility; Frankie and Benny s to operate one of the restaurants, and Marston s to operate the public house. Whilst an operator for the bowling complex will be confirmed shortly, the applicant has confirmed that the hotel will likely be operated by Premier Inn. However, Members are reminded that planning can only control use and not specific operators. 3.6 The primary access into the site via Elettra Avenue is served via a dedicated arm of the roundabout junction. Additional points of access into the site also exist from Silverthorne Way. A dedicated pedestrian and cycleway access is proposed to link the site with Hambledon Road. This will be situated close to the crossing facility on Hambledon Road which exists to the north-east of the site. A new pedestrian/cycle route is to be provided to link with the MDA. The existing access arrangement serving the Beamplot building to the south of the site from Silverthorne Way will be retained, to ensure its operations remain unhindered by the proposed development. 4 Policy Considerations National Policies National Planning Policy Framework Core Strategies 2011 forming part of the HBLDF CS13 (Green Infrastructure) CS14 (Efficient Use of Resources) CS15 (Flood and Coastal Erosion) CS16 (High Quality Design) CS17 (Concentration and Distribution of Development within the Urban Areas) CS19 (Effective Provision of Infrastructure) CS2 (Employment) CS20 (Transport and Access Strategy) CS21 (Developer Requirements) CS3 (Skills and Employability) CS4 (Town, District and Local Centres) CS5 (Tourism) CS6 (Regeneration of the Borough) DM10 (Pollution) DM11 (Planning for More Sustainable Travel) DM14 (Car and Cycle Parking on Development (excluding residential)) DM8 (Conservation, Protection and Enhancement of Existing Natural Features) Saved Policies of HBDWLP forming part of HBLDF TC1 (Hierarchy of Centres) Havant Borough Local Plan (Allocations) 2013 WA2 Waterlooville Mixed Use Allocations AL3 Town, District and Local Centres Listed Building Grade: Not applicable. Conservation Area: Not applicable.

5 5 Statutory and Non Statutory Consultations Arboriculturalist I note that no arboricultural method statement of tree protection has been submitted with this outline application. The Masterplan appears to indicate tree removal from the Hulbert Road boundary. Any subsequent reserved matters application must contain greater detail on the loss of trees along this boundary. A Tree Protection Plan and Arboricultural Method statement must be submitted with the reserved matters application. Building Control Officer No comment. Department of Transport No objection. Regeneration & Development I fully support the proposal apart from the food store element which could impact upon Waterlooville Town Centre. Highway Agency No adverse comments. Environmental Health Manager I have looked over the submitted Masterplan, the proposals for redevelopment, and the submitted Transport Assessment Report from Peter Brett Associates; and would like to provide some comments with regard to both ground condition & air quality. Ground Conditions It is understood that these amended proposals include provision for the retention of the E Block and Beam Plot buildings, the former to be converted to leisure / retail use. The recent use of the buildings included within the scope of this application has been for an industrial purpose Apparently a B1b & B1c use, but it is noted that the transport assessment refers to the Beam Plot as having a Sui-Generis (industrial) use. I am not aware of the specific business activities carried out at the site since it s construction [between 1982 & 1991], however I am aware that it was marked on mapping as being research & development for Marconi. Submitted reports suggest that the Main Building was used solely for office accommodation, with industrial uses restricted to the units to be retained. This accords with the positions of the mapped above ground storage tanks. The description 'R&D' [activities] may refer to entirely innocuous activities not involving the handling or use of potentially contaminating substances; laboratory activities (whether electronics/materials science, or other) may indeed involve the use of chemicals that could potentially be extremely hazardous to both human health, and the wider environment. It is considered possible therefore that activities on this site have the potential to have resulted in a degree of ground contamination. Whilst this is likely to relate more specifically to the industrial type units (E Block & beam Plot), there is little available information to confirm this assumption. The demolition statement submitted with the prior notification for demolition (APP/13/00940), referring only to the main building & minor single storey structures, makes reference to beneath ground features [being filled in], implying that there might be below ground operational areas present within the buildings forming part of this development, which given the consented B1b use classification (R&D activities) could refer to test tanks / pits that are typically associated with contamination hot-spots. In terms of human health, the proposed site uses (leisure, food & hotel accommodation) are not considered particularly sensitive, however there are commercial land use

6 standards, and there may still be a degree of risk to future employees from exposure to any contamination that might be present at the site. With respect to the wider environment, the site is not within a groundwater protection area, and indeed is classified as a non-aquifer. However, the local geology is [clay] head deposits (superficial) and London Clay (bedrock), and both of these geological units are locally heterogeneous and may contain significant sand or gravel deposits which may permit migration of contamination. These units may also make an important contribution to the base flow of the nearby watercourses, one of which bisects the site within a culvert oriented NNE/SSW. This channel may be considered by the Environment Agency as a controlled water, as it feeds into a wider channel, feeding into the Wallington River, and passing through a number of sites important for local nature conservation (SINC s) further downstream. Both general industrial and laboratory/research facilities could reasonably be considered potentially contaminating, and whilst the nature of the proposed development is not particularly sensitive; it is considered both prudent & reasonable to establish the ground conditions and any the degree of associated risk to both local surface waters and human health are considered as an integral part of the site re-development. It is envisaged that an assessment would be iterative, and proportionate to the risks; and it may not need to proceed further than a desk study or phase 1a preliminary investigation to prove the absence of gross contamination screening levels appropriate to the subject receptors would apply. Whilst I would have no objection to these proposals as they stand, if development control were minded to recommend that consent is granted for the scheme, I would request conditions be applied in regards to contamination. Air Quality Under the rationale outlined above, and in the context of the EPUK guidance document ( planning for air quality ), it is not necessary to undertake an Air Quality assessment for this development. Development Engineer No objection. Landscape Team Comments as follows: Existing soft landscape: The site is currently well vegetated with dense hedges and tree mix around most of it s perimeter, some in gentle grassed mounds which create a soft boundary - this is not shown accurately on the existing plan-only the trees are shown. It appears to show a loss of trees and vegetation overall which is undesirable given that the development, especially the cinema will have a large height/mass impact on land that was previously car parking. The LCA notes that trees and grassland are characteristic of this business park therefore significant loss is not appropriate. Retention of hedges and trees, and additional planting will also address points relating to the possible visual impacts of development. Boundary to site: Is the extensive fencing around most of the site perimeter to be removed to create a more open and inviting site? It would be disappointing if it remained, it creates a physical and visual barrier and would not be in keeping or in the style of the type of development proposed. Internal landscape: Whilst it is a predominantly industrial landscape the proposal does appear to show the potential creation of a high quality series of spaces of a retail character with a positive landscape dialogue, using trees and sound pedestrian links to

7 encourage locals to walk or cycle to the site as well as those arriving by vehicle. It is a requirement to create a cycle link to the south through to the MDA (where there is currently a turning head). No details are shown on this Masterplan and will be required. The proposed trees shown within the site are welcomed to break up the impact of large areas of car parking and will also contribute to a pleasant site for users. Details required of their species and proposed sizes and also below ground details to ensure their establishment and longevity. Details of proposed materials for all hard and soft landscaping will be required but the Masterplan appears to show a suitable internal layout, which if completed in suitable high quality materials and finishes will create an agreeable site. Comment: The landscaping of the site is not to be considered at this stage and would be subject to the reserved matters application. Crime Prevention Officer The proposal shows two new pedestrian and cycle accesses from Elettra Avenue (one adjacent to the cinema and the other between restaurants three and four). Both of these accesses give access into the industrial estate. These accesses will allow the development to be used as a short cut, will make policing the car parks more difficult and will compromise the security of the car parks. It is difficult to see the value of this connectivity and therefore I recommend that these two accesses are removed from the scheme. The plans show a public house (number 6). To prevent those using the public highway having to pass through people smoking outside the public house an external smoking area should be provided within curtilage of the public house and away from the public highway. Large car parks offer a number of opportunities for crime and anti-social behaviour to reduce these opportunities I recommend: 1. Planting within the car parks does not prevent natural surveillance across the car park 2. The car park has an appropriate level of lighting. The lighting should be designed to provide an even level of lighting across the car park. 3. Closed Circuit Television (CCTV) cameras should be deployed within the car park. 4. The car park achieves Parkmark accreditation. Planning Policy [Updates in this section are in response to the recent objection by agents on behalf of Lidl at Cowplain. These updates are in square brackets and italics. The full text of the Policy officer s comments, including technical details are attached as Appendix D which comprises two segments, dated 22 nd and 25 th November respectively the later one in light of the applicants most recent information, answers points raised in the first] Principle of development: The site which forms the subject of this application is allocated by draft policy WA2 of the Publication version of the Allocations Plan. This mixed use allocation is for employment (no net gain), hotel and commercial uses. The site specific development requirements set out in the policy are as follows: All buildings should be constructed in Flood Zone 1 Investigation of ground quality conditions, as part of a planning application

8 On-site SUDS A transport assessment to support planning application Employment and Skills Plan to support planning application A pedestrian/cycle route to be provided linking the site to the MDA [Update: In response to the recent objection the proposed uses are employment (no net gain), hotel and commercial uses reflecting the extant permission for the site. This current application is therefore broadly in line with the allocation although there will be a net loss of traditional B class employment floorspace rather than no net gain. There will, however, be over 200 FTE jobs created through this scheme.] Health and Wellbeing: The proposal to build an eight screen cinema and bowling alley in Havant Borough will greatly benefit the residents and visitors of Havant Borough. The last cinema in Waterlooville closed in 1959 (The Curzon) and the last cinema in the Borough (Cannon) closed in It will be the only multi-screen cinema between Portsmouth, Chichester and Guildford and will therefore draw visitors from a large catchment area including the new residents of the MDA. The restaurants and public house will enhance the leisure offer and will greatly increase the leisure spend within the Borough. The proposal will promote the Borough as an attractive destination for recreation, leisure and culture in line with the Sustainable Community Strategy and the Local Plan (Core Strategy). Promoting Havant Borough s Economy: The proposal will contribute to promoting the economy of Havant Borough in line with the Corporate Strategy, the Sustainable Community Strategy and the Local Plan (Core Strategy). The planning statement says that the development will create a total of 223 full time equivalent jobs on a largely vacant brownfield site within an existing business area. The proposed re-development will involve the demolition of most of the existing employment buildings on the site. The uses proposed under this scheme do not involve the replacement of any of the traditional B uses defined as employment. However, all the new uses are a form of economic development, which do provide jobs and services. The previously permitted scheme did involve the re-provision of some B uses along with a hotel and drive-through restaurants. Local Plan (Core Strategy) policy CS2 safeguards all existing employment sites that are fit for purpose. Policy DM3 sets out the requirements for robust and credible evidence on viability and marketing to demonstrate that the site is no longer fit for purpose as an employment site. The planning statement provides sufficient evidence of marketing to meet the requirements of DM3 in regard to the existing premises. The letter dated 30 th October provides the necessary marketing evidence for the previously permitted scheme. Once it has been established that an existing employment site is not fit for purpose policy CS2.6 states that other forms of economic development should be considered. This proposal complies with this stepped approach. It is also sensible to consider which uses complement the business offer at Brambles Business Park. The hotel, restaurants and gym would all enhance the business offer for both workers and visitors. The budget supermarket does not offer the same advantages. Proposals for land uses that are both forms of economic development and town centre uses also have to comply with adopted Core Strategy policy CS4, saved Local Plan policy TC1, emerging policy AL3 and all the relevant policies in the NPPF.

9 Town Centre Uses: All the uses proposed in this application are main town centre uses as defined in the NPPF. Therefore they should be located in town centres according to both national and local planning policies. Adopted Local Plan policies CS1 and TC1 seek to promote the vitality and viability of identified centres in Havant Borough. They also establish the town centre boundaries and the primary shopping areas. Emerging policy AL3 of the Local Plan (Allocations) updates these boundaries and primary shopping areas. In regard to Waterlooville Town Centre the principle changes are to expand the town centre to include Wellington Retail Park, the site of the permitted Sainsbury s supermarket and the Blue Star site located across the road from the Asda supermarket and next to the fire station. The BAE site is not included within the revised boundary. The BAE site is located 430 metres from the adopted town centre boundary and 577 metres from the adopted primary shopping area. It is therefore defined as an out of centre site under adopted Local Plan policies in line with the NPPF. Using the emerging Local Plan policy it is 182 metres from the draft town centre boundary and 353 metres from the draft primary shopping area. It is therefore defined as out of centre in regard to retail and edge of centre in regard to the other proposed town centre uses under emerging Local Plan policies. It is also necessary to consider barriers to accessibility. A walk from the established town centre to the BAE site involves crossing two major roads namely Maurepas Way and Hambledon Road. Improvements to the former are proposed as part of the Sainsbury s application. No such improvements are proposed for Hambledon Road. It is necessary to consider whether people would make linked trips between the new premises at BAE and the traditional town centre or whether BAE would become a stand alone attraction. Paragraph 24 of the NPPF requires local planning authorities to apply a sequential test to planning applications for main town centre uses that are not in an existing centre and not in accordance with an up-to-date Local Plan. Applications for main town centre uses are required to be firstly in town centres, then in edge of centre locations and only if suitable sites are not available should out of centre sites be considered. The sequential assessment is set out in the applicant s Retail and Leisure Assessment and Planning Statement Addendum. This has demonstrated flexibility in line with the NPPF by disaggregating the business model. [Update: The recent objection states that the application does not fully disaggregate the business model. The NPPF only requires applications to demonstrate flexibility on issues such as format and scale. The applicant has shown flexibility by disaggregating the supermarket from the rest of the scheme.] The sequential assessment looked at vacant sites within Waterlooville Town Centre, sites allocated under saved Local Plan policies and emerging sites in the Local Plan (Allocations). These sites were all too small or not available. The only exception to this is the Blue Star site, which is allocated as part of the MDA and Waterlooville Town Centre Integration policy CS18.4 of the adopted Local Plan (Core Strategy). It is also allocated under emerging policy WA2 for housing (50 units) and main town centre uses. It is included within the revised town centre boundary under emerging policy AL3. The Blue Star site is sequentially preferable to the BAE site both under adopted and emerging policies. In fact the accessibility of the Blue Star site has been recently improved with a new footpath linking the MDA to the town centre with a new signalised pedestrian crossing over Maurepas Way. The site could accommodate the proposed supermarket, but it could not accommodate the full quantum of development proposed under the current scheme. It should be noted that the owner of the Blue Star site has

10 objected to this application. Paragraph 26 of the NPPF requires local planning authorities to apply an impact assessment to planning applications for retail and leisure uses that are not in an existing centre and not in accordance with an up-to-date Local Plan. This includes the impact on existing, committed and planned public and private investment. The assessment therefore includes the permitted schemes for Sainsbury s (former Cataeno site) and Marks & Spencer s (unit 6 of Wellington Retail Park). The impact assessment is set out in the applicant s Retail and Leisure Assessment and Planning Statement Addendum. The most important impact arising from this scheme is that of the proposed budget supermarket particularly its offer of convenience goods such as food. This will impact on the main existing supermarkets in Waterlooville Town Centre namely Asda and Waitrose and the smaller stores such as Iceland. It will also impact on the newly permitted Sainsbury s and Marks and Spencer s. It is essential to look at the single impact of the proposed Aldi along with the cumulative impact of the proposed Aldi, Sainsbury s and Mark s and Spencer s. In other words could the development of a third food store albeit of a different scale and offer be the straw that broke the camel s back and result in the closure of one of the town centre stores? Both Asda and Waitrose are anchor stores for the town centre and the loss of either store could be considered as having a significant adverse impact on Waterlooville Town Centre. This would provide a reason for refusal for this application in line with paragraph 27 of the NPPF. The single and cumulative impacts of the proposed budget supermarket are set out in a table on page 5 of the Planning Statement Addendum. This states that the single impact on Asda would be -7.1% and the cumulative impact would be -26.1%. The high level of impact reflects the proximity of the store and the similar budget offer. The report states, however, that Asda is currently over-trading and so should be able to continue to trade viably. The single impact on Waitrose is less at -1.7%. This because Waitrose is a premium food retailer and does not complete with discount supermarket operators. The cumulative impact on Waitrose is similarly high at -22.9%. In regard to the smaller stores currently trading in the town centre the report does not envisage any major impact as Aldi does not include ancillary counters such as a pharmacy or bakery that would overlap with independent retailers and small national multiples. The new Aldi would also have a market impact on the Lidl store located in Cowplain District Centre. The single and cumulative impacts of -20.5% and -20.8% respectively reflects the like-for-like retail offer of these two budget discount stores. [Update: It is agreed that Lidl and the Co op are the anchor stores for Cowplain District Centre. This is a very healthy centre with no current vacant units. The Retail and Leisure Assessment looked at the single and cumulative impact of the development on Lidl, the Co-op, other local shops in the district centre and the total impact on Cowplain District Centre. The new Aldi store will have a significant impact on the existing Lidl store [-20.8%] and to a lesser extent on the wider District Centre [- 11.8%]. However, the Lidl store is trading so successfully, 46% above typical trading levels. As such it is expected to retain a sufficient number of customers to go on trading successfully albeit at a lower level. Trade diversion from the anchor [Lidl] store will impact on the other stores in the district centre, but again not to such an extent that it would have a significant adverse impact.

11 The Borough Council s Town Centres, Retail and Leisure Study states that there is limited potential for further convenience goods floorspace within the Borough, allowing for existing commitments. The objector concludes that the application is contrary to the Local Plan evidence base. However, it is no longer necessary for a retail application to demonstrate need, as this is robustly addressed through the impact assessment. The Allocations Plan also sets out a requirement of 13,000 square metres of new comparison floorspace. The proposal includes some comparison goods floorspace, which is addressed by the applicant in an addendum. The net sales floorspace for comparison goods in the proposal is very small at 225 square metres and is therefore unlikely to impact on other town centre stores.] As there is no cinema in the Borough the proposed cinema will have no impact on existing provision. There is currently one bowling alley, which is the subject of a planning application for residential redevelopment. An analysis has been done of the existing offer of town centre restaurants and public houses. This qualitative assessment points to the different offer of the proposed eateries and public house that would serve visitors to the cinema and bowling alley along with the workers and visitors to the business park. The report therefore argues that there would be a negligible impact on town centre restaurants and pubs. Finally, the principle of a budget hotel was established in the previously permitted scheme. There is no existing budget hotel in Waterlooville. The main evidence based study on hotel provision in the Borough identifies the need for two new budget hotels in the Borough. An Employment and Skills Plan will be required for the construction and occupancy phases of this development under policy CS3 on Skills and Employability and CS21 on Developer Contributions. Further guidance on Employment and Skills Plans is provided in a Guidance Note published by the Borough Council. The Employment and Skills Plan will deal with on-site recruitment and training. There will be no financial contribution applicable. The requirement for an Employment and Skills Plan will be set out in a Section 106 legal agreement. Further information should be sought at the earliest opportunity from the Economic Development team. It is noted that the applicant has already made a commitment to entering into an Employment and Skills Plan with the Council. Caring for our Borough: The new buildings will need to meet BREEAM standard very good in line with policy CS14 on the efficient use of resources. Policy Principle of Development: It is not possible to make a simple recommendation on this application and a balanced decision is needed by Members. The scheme will bring undoubted benefits to the Borough with the creation of a new leisure park with a cinema, hotel and bowling alley. However, the impact assessment has shown that the proposed discount supermarket along with the other permitted food stores will have a significant cumulative impact on the existing town centre supermarkets namely Asda and Waitrose. [Update: It will also have a significant impact at the Lidl store and Cowplain District Centre. However, in neither case is the impact considered to be a severe adverse one and it would not justify refusal of the application.] However, it should be recognised that impact assessments are not an exact science and it is impossible to predict what will happen when the new store opens. If Members

12 agree that the scheme would not result in a significant adverse impact on Waterlooville Town Centre or Cowplain District Centre, (and the assessment points to this conclusion), then the application may be approved in line with the NPPF. If the proposal is fully disaggregated then the supermarket could theoretically be built on the sequentially preferable Blue Star site. However, the scheme has been presented as a leisure package. The cinema generates footfall but not revenue. Visitors to the cinema generate revenue by eating and drinking at the new restaurants and public house. The whole development is made viable and enabled with the new supermarket. An application for just a supermarket would have been recommended for refusal for failing the sequential test in line with the NPPF. The proposed application for a mixture of leisure uses and a cinema is only recommended for approval due to the benefits of the wider leisure offer to the Borough. It is, however, imperative that a robust mechanism is agreed through a phasing plan so that the site is brought forward as a comprehensive development with the cinema developed first. Partial implementation of the scheme with only the supermarket opening is not acceptable in planning terms. Southern Water A public surface water sewer crosses the site. The exact position of the public sewers must be determined on site by the applicant before the layout of the proposed development is finalised. Please note: - No development or new tree planting should be located within 5 metres either side of the centreline of the public sewer and all existing infrastructure should be protected during the course of construction worlds. - No new soakaways should be located within 5 metres of a public sewer Hampshire Highways Comments as follows: Trip Generation In determining the baseline against which this development should be considered reference is made to the existing uses and permissions already granted for the site. In this regard it is considered that the potential traffic generated by existing and approved BAE uses would be around 332 arrivals and 42 departures in the morning peak hour and 32 arrivals and 253 departures in the evening peak hour. The redevelopment of the site for a similar mixed development scheme approved in 2012 proposed a range of uses as the development was speculative and there was some variation in the likely occupiers of the various units was likely to generate 107 arrivals and 59 departures in the AM Peak and 94 arrivals and 120 departures in the PM Peak for Scenario 1 and 164 arrivals and 68 departures in the AM Peak and 93 arrivals and 158 departures in the PM Peak for Scenario 2. The current proposal suggests that it will generate around 55 Arrivals and 51 departures in the AM Peak hour and 252 arrivals and 221 departures in the PM Peak. This would result in a notional reduction of around 268 movements in the AM Peak and an increase of around 187 in the PM Peak when compared to the potential from the existing BAE site. Traffic Impact Modelling has been carried out on the Elettra Avenue/Winterberry Drive/Site Access Roundabout and the B2150 Hambledon Road/Milton Road/ Elettra Avenue Roundabout.

13 In assessing the operation of the Elettra Avenue/Winterberry Drive/Site Access Roundabout the modelling has indicated that the junction operates well within it s theoretical capacity in all scenarios considered both with and without the development traffic. In assessing the operation of the B2150 Hambledon Road/Milton Road/Elettra Avenue Roundabout, the 2015 baseline (with committed development but without the proposed development) demonstrates that this junction is already operating at theoretical capacity on certain arms, specifically the Elettra Avenue arm. When the proposed development traffic is modelled, certain arms of the roundabout marginally improve in terms of capacity, in particular the Elettra Avenue Arm which will operate within theoretical capacity. It should be noted that other arms do experience a small increase in delay but that all arms remain within theoretical capacity. Whilst the proposals do result in an overall increase in traffic flow through this junction, the balance of flows through the roundabout is improved releasing some capacity as described above. Travel Plan The application is supported by a Framework Travel Plan the details of which will be further developed and monitored to ensure it will have the required impact on improving the levels of sustainable travel to and from the site which is likely to result in a reduction in the anticipated traffic generation over time thereby further reducing the development s impact on the adjoining roads. The Travel Plan will be bonded in such a way so that should the development not deliver the modal shift targets as detailed in the Travel Plan the County Council will be able to use those funds to implement measures that will deliver a shift away from single occupancy car trips. Car Parking Car parking for the proposed development has been provided broadly in accordance with Hampshire Parking Strategy and Standards, 2002 with an allowance made for the anticipated levels of cross visitation as one trip will include visits to more than one of the units proposed. Recommendation The development proposals are acceptable in transport and highway terms, although it should be noted that the proposals do result in an increase in trips to and from the site and this will have some impact on the capacity of the B2150 Hambledon Road/Milton Road/Elettra Avenue Roundabout. It is recommended that a portion of the Community Infrastructure Levy raised from these proposals is identified for improvements to this junction as identified in the Havant District Transport Statement. I am therefore able to recommend that the application be approved, subject to the following planning obligations being secured: - Implementation of a Travel Plan, payment of the Travel Plan approval and monitoring fees, and provision of a surety mechanism to ensure implementation of the Travel Plans - The transfer of land for the pedestrian and cycle link. Together with the a Construction Traffic Management Plan condition. Environment Agency No objection in principle to the proposed development as submitted, however, we request that planning conditions are attached to any planning permission granted in

14 order to make the development acceptable. The conditions relate to a Sustainable Urban Drainage System. 6 Community Involvement This application was publicised in accordance with the Council's Code of Practice for Publicity of Planning Applications approved at minute 207/6/92 (as amended), as a result of which the following publicity was undertaken: Number of neighbour notification letters sent: 60 Number of site notices: 1 Statutory advertisement: Not applicable. Number of representations received: 7 letters of representation have been received raising the following comments: a) Planning permission should be granted. b) Waterlooville need much improvement to appeal to young families. c) The BAE site has been under used for many years. d) Living in Denmead it will be great for teenagers and young people to have somewhere local that appeals to them. e) It s time that Waterlooville had some investment. f) The development of the site is a positive one and will increase facilities. g) I have owned a health club for 13 years and have lost members over the years due to new clubs opening. h) The new health club would be detrimental to my business. i) The increase in traffic by the new Sainsbury s and the gradual increase of vehicles from the MDA, coupled with the extra traffic that the proposed development will bring, will put pressure on the road system in the area. j) The quality of landscaping should remain to maintain a certain level of screening. k) Trading hours should be seriously considered in light of proximity of residential homes. l) Grainger have agreed to the wording of policy WA3 Waterlooville Mixed Use Allocations (W135), which allocates the Bluestar site for a mixed use development comprising main town centre uses and residential development. m) the National Planning Policy Framework (NPPF), the definition of main town centre uses includes leisure and entertainment including cinemas, restaurants, drive-thru restaurants, health and fitness centres and indoor bowling centres. n) The report submitted with the application concludes that in terms of accessibility and distance that the Bluestar site is not a sequentially preferable site when compared to the BAE site. o) The BAE site is of a greater distance from the primary shopping area than the Bluestar site. p) The Bluestar site is suitably located for the development of main town centre uses, given its location within the identified town centre boundary, it s sustainable proximity to Waterlooville Town Centre and the opportunities for improved linkages between the town centre and the West of Waterlooville MDA. The land is currently available and development proposals are being considered for the site.

15 q) If the proposed uses are permitted, market conditions are unlikely to require similar uses in such close proximity to one another. May preclude development at the Bluestar site. r) Will result in the loss of a significant opportunity to successfully link the town centre with the West of Waterlooville MDA. s) To ensure the Bluestar site does not remain vacant in perpetuity, and in the interests of securing viable redevelopment opportunities for the site, the wording of emerging policy WA3 of the Allocations Plan (Publications Version) needs to be flexible to allow residential development on the Bluestar site, if development were to come forward on the application site. The seventh letter is the objection is by agents on behalf of Lidl at Cowplain. It includes the following: A) The emerging policy states that the site is not suitable for retail uses. The proposal is in conflict. B) The sequential assessment has disregarded the requirement to disaggregate the components of the use [for separate assessment]. Some of the uses, e.g. food and drink, could be accommodated in the town centre. C) The proposed discount foodstore will have a serious impact on the Lidl store in the Cowplain District Centre. D) Lidl is the recognised anchor store for Cowplain District Centre, a significant negative impact of -20% will affect other shops via reduced linked-trips. There is no assessment of this indirect effect. E) The applicant has over-estimated trading levels at Lidl, Cowplain, therefore the impact has been under-estimated. F) Approval would run contrary to the evidence base for the Local Plan; there is expected to be a deficit in expenditure on convenience goods in the west of the Borough until at least 2026, i.e. reduced turn-over. 7 Planning Considerations 7.1 Having regard to the relevant policies of the development plan it is considered that the main issues arising from this application are: (i) (ii) (iii) (iv) (v) (vi) (vii) (viii) (i) Principle of development Skills and Employment Design and Effect on the Streetscene Effect on neighbouring properties Sustainability Flood Risk Access and Parking Arrangements Highway Implications Principle of development 7.2 The Government published the Planning for Growth ministerial statement in March This states that when deciding whether to grant planning permission, Local Planning Authorities should support enterprise and facilitate economic development. 7.3 The redevelopment of this site would be a form of economic development that would provide a significant number of new jobs. The Government s clear expectation is that the answer to development and growth should wherever possible be yes, except where this would compromise the key sustainable development principles set out in national policy. This theme has been reinforced in the National Planning Policy

16 Framework (NPPF). 7.4 The key consideration is whether the proposed redevelopment of the BAE site would achieve the Local Plan (Core Strategy) objective of promoting Havant Borough s economy and the NPPF objective to build a strong, competitive economy. The NPPF places increased emphasis on the delivery of sustainable development in order to promote a strong and competitive economy (Paragraphs 18-22), and outlines the Government s commitment to securing economic growth through the planning system. 7.5 The proposed development consists of a Class B1 employment discount food store, an 8-screen cinema complex, a 20-lane bowling complex, a 60-bedroom budget hotel, a health and fitness centre, and a range of ancillary restaurants a and public house. In the draft policy WA2 of the Publication version of the Allocations Plan. It is proposed for allocation for employment uses, hotel and commercial uses. The emerging plan has some weight and supports many of the elements of the current proposal. The acceptability of the retail element of the proposal relies on assessments which are considered in the following paragraphs, especially A Retail and Leisure Assessment and a Planning Statement Addendum has been submitted in support of the planning application. The Council s Planning Policy Officer has been consulted and comments are given in Section 5, which includes summarised updates, the full detail of which is in Appendix D. 7.7 The proposed re-development will involve the demolition of most of the existing employment buildings on the site. The uses proposed under this scheme do not involve the replacement of any of the traditional B uses defined as employment. However, all the new uses are a form of economic development, that do provide jobs and services. 7.8 The proposal presents the only viable form of development for the former BAE site, following extensive marketing for retained Class B employment uses which have proven unsuccessful. The proposal responds to operator demand to create a high quality leisure-based destination in Waterlooville. 7.9 The proposed development has been presented as a comprehensive leisure package that can not be delivered anywhere else in the immediate area (including the Blue Star Site). The leisure element of the proposal will deliver a much needed cinema, bowling and hotel facilities to the area, whose current deficiencies mean that expenditure and related investment is being lost to competing facilities outside of Waterlooville. The development of these facilities, as part of an enhanced eating and drinking offer, will create a new leisure destination in Waterlooville which will be capable to drawing back expenditure which is currently leaking from the area. It would also complement the business offer at Brambles Business Park with additional facilities for the staff A recent article has been published that confirms that 500 new cinema screens are to hit the UK market within the next five years across 60 developments. The article states that: 7.11 Cinema has become an increasingly popular anchor for smaller, mixed-use developments as retail demand has stalled according to Thomas Rose, Cushman & Wakefield s head of leisure and restaurants Cinemas are anchoring an increasing number of schemes in the UK and property owners have finally realised that a leisure hub is essential customers want a scheme with atmosphere and vibrancy,