Birmingham Science Park Aston, Woodcock Street, Birmingham, B7 4BB

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1 Committee Date: 11/06/2015 Application Number: 2015/02024/PA Accepted: 23/03/2015 Application Type: Full Planning Target Date: 22/06/2015 Ward: Nechells Birmingham Science Park Aston, Woodcock Street, Birmingham, B7 4BB Demolition of existing buildings and erection of a mixed use scheme comprising a hotel of up to 170 beds (C1), conferencing centre (D1 / D2 uses), offices (B1a) with associated carpark and ancillary works Applicant: Agent: Unite The Union c/o Agent NJL Consulting Unit 8 Ashbrook Office Park, Longstone Road, Heald Green, Lancashire, M22 5LB Recommendation Approve Subject To A Section 106 Legal Agreement 1. Proposal Use 1.1. Planning consent is sought for the demolition of an existing office building and the erection of a new building to provide Unite the union with regional education and conference centre, regional offices and a hotel. The proposed hotel would total 170 bedrooms, the conference centre would comprise 4,524sqm of floor space and the regional offices would comprise 5,866sqm of proposed floor space. Consent is also sought for an associated car park area of up to 93 spaces and a new access road. Design 1.2. One large building complex is proposed serving all three uses. The building would have frontages onto both Woodcock Street and Jennens Road. The design of the proposed building has been influenced by the split of the three separate but interrelated uses. The mix of uses and associated design is intended to create activity and variety of occupation at various times of the day The hotel element of the proposal would face onto Woodcock Street and follows a contemporary formula. The hotel would have its own dedicated entrance at street level designed with two storey glazed and framed entrances. Significant glazed elements are proposed along the Woodcock Street frontage making a visual connection to the street The proposed conference space is to be located centrally within the overall building complex with an independent access from the hotel also comprising a prominent two storey framed entrance facing onto Woodcock Street. Page 1 of 14

2 1.5. The proposed office space would be accessed from Jennens Road with its own central reception and security control access point. There is a change in levels across the site which has provided an opportunity to locate storage, staff facilities, car parking and service access in less visible locations to the rear of the site The massing of the proposed building complex is staggered with the building being stepped down to 2 ½ storeys where it would be adjacent to the Black Horse Public House at the corner of Jennens Road and Woodcock Street. On Jennens Road the proposed office block steps up to 3 ½ storeys and then to 5 ½ storeys as the building approaches Ashtead Circus. The upper floors of the office block have been designed in a contemporary style set back from the building frontage and fully glazed behind a colonnade of closely spaced columns which add depth to the character of the building. The roof of the upper part of office block has been designed with an inverted roof slope adding interest to the character of the building Along the proposed Woodcock Street elevation the proposed hotel steps up from the 2 ½ storey conference element of the building to 3 ½ storeys and then to 6 ½ storeys. The floor heights of the hotel are however lower than that of the office block so the overall height of the proposed hotel is lower than the proposed office block Roof terraced areas are proposed where there are graduated changes in roof heights adjacent to the Black Horse public house The proposed building would be constructed in sculpted and modulated precast concrete panels. It is proposed that window panels would be fully integrated into the precast panel modules being slightly recessed in some areas and set back in others to enhance articulation across the building. Transportation The proposed principal vehicular access to the site would be via an existing access from the left turn lane off Jennens Road. A new access road would be created through the site creating access to proposed car parking and delivery areas. This access would be one way and controlled by an electronic barrier gate with the exit route through to the remaining science park and onto the corner of Holt Court and Heneage Street West It is proposed that coach parking and short stay drop off points would be created to the Woodcock Street frontage for hotel guests and conference delegates. The detail of which are sought to be secured through a S278 Agreement. Landscaping The application boundary includes the existing landscape strip forming part of the public highway of Jennens Road. This proposal seeks to upgrade this landscape strip with new grass verge and tree planting and refurbish the pavement long this section of Jennens Road with concrete pavers to be agreed through a S278 Agreement A landscaped pedestrian corridor is also proposed adjacent to the northwest facing side elevation of the proposed hotel with additional tree planting proposed to the Woodcock Street frontage and to the rear of the site adjacent to the canal. Employment Based on the floor space proposed the applicant estimates that this proposal would create 400 office jobs; 85 jobs associated with the hotel use and 125 jobs associated with the proposed conference centre. Page 2 of 14

3 Other Documents submitted in support of this application include Design and Access Statement; Sustainability Statement; Heritage Statement; Utilities Plan; Phase 1 Habitat Survey and Bat inspection; Flood Risk Assessment and Sustainable Drainage Strategy and Transport Assessment and Travel Plan. An indicative master plan for the wider development of this area has also been submitted as part of this proposal The applicant has proposed a S106 sum of 50,000 for Wayfinding between Aston Street, Woodcock Street and Jennens Road The site area is 1.04 Ha. A screening opinion has been undertaken and no Environmental Impact Assessment is required for this proposal Link to Documents 2. Site & Surroundings 2.1. The application site comprises of offices and associated parking within the Aston Science Park on the corner of Woodcock Street and Jennens Road, within the Eastside of the City Centre The application site sits at a lower land level to the street level at Woodcock Street. There is a retaining wall running along the back of the highway with a car park below, offset by a second retaining wall stepping down to the front of the office building. There is an existing ramped vehicle access and stepped pedestrian access from Woodcock Street. On Jennens Road there is a less step land level difference with direct vehicular access from Jennens Road to the site The redline boundary to the site includes a strip of landscaping and footpath fronting Jennens Road and public highway including the bus stop and controlled parking area on Woodcock Street. The existing footpath on Jennens Road and landscaping strip are in need of maintenance and repair. The site lies within close proximity of the Ashted Circus traffic junction The site is adjacent to further office development on the Science Park to the northeast and northwest. These offices consist of three two/three storey office buildings which grouped together with the existing office building in this application surround a landscaped courtyard and parking area known collectively as Holt Court To the southeast corner of the site is the Black Horse public house. This is a nondesignated heritage asset. There are designated heritage assets within close proximity of this site including the locally listed Co-op building on the opposite side of Jennens Road, the Digbeth branch canal and Ashted Locks within the Warwick Bar Conservation Area to the northeast of the site and the grade II listed Doug Ellis Sports Centre to the southwest of the site on the opposite side of Woodcock Street. Location plan Street view 3. Planning History Page 3 of 14

4 3.1. There have been several recent consents granted in the wider Eastside area relevant to the place making of this proposal. These include outline consent for mixed use development of land at East Side Locks for up to 143,350 sqm of new floor space comprising offices, residential hotel fitness suite and conferencing facilities (Reference 2008/02942/PA) approved in December 2008 and followed by a number of approved reserved matters applications. Works have progressed significantly on site in relation to this approved scheme A recent demolition application has been submitted for the prior notification of the proposed demolition of the offices at the application site. This application has been submitted under reference number 2015/03360/PA. No determination has been made on this application at the time of writing; however a determination is due by 8 th June Members will be verbally updated on the outcome on this application Full Planning Consent was also granted for a building to house the Birmingham Conservatoire adjacent to Millennium Point on Jennens Road under reference 2014/08615/PA and approved on the 5 th February Consultation/PP Responses 4.1. Transportation Development No objection subject to conditions. A Transport Assessment and Framework Travel Plan have been produced following preapplication discussions and in line with guidance. The level of use has been tested based on existing data for hotel and conference facility drop-off and pick-up movements which informs the requirement for an on-street facility on Woodcock Street to accommodate this. A S278 Highway Agreement is required for the necessary alterations to provide these on-street amendments to the parking restrictions and minor kerb line alterations. Plans show removal of the existing free on-street bays that allow 2 hours waiting, with space for up to one coach and two cars in a 27 metre long section. This will need a new Traffic Regulation Order to limit waiting to a short period i.e minutes. This may have to be extended in length as for the larger conference events more taxi demand is possible at the start and end of the event, but this detail will come forward in the S278 process. The site provides a cycle parking store which the TA notes is suitable for 36 cycles but this could be increased with double height parking and monitoring through the Travel Plan. The development provides 78 basement spaces and 15 spaces to be shared with the office and wider site. The total of 93 spaces is noted below the maximum guideline figure but is balanced against the wider area being subject to parking controls and regular enforcement. The roads to the north east of the Middleway are also subject to controls. The nearest free parking is over 600 metres away. There are public car parks nearby at Eastside, and the site is close to the City centre and public transport connections Regulatory Services No objection in principle however conditions recommended with regard to glazing and noise ventilation; parking spaces to be provided for electric vehicle charging points and sustainable travel plan to be submitted City Ecologist There are some species that could use the site for some limited foraging and as part of a commuting route via the adjacent canal these include bat species and Black Redstarts. Submitted reports do not take opportunities to improve the ecological value of the site in comparison to the existing situation. It is Page 4 of 14

5 recommended that conditions are imposed to seek an ecological enhancement strategy and for the incorporation of a brown/ green roof as part of the proposal Natural England No objection the proposal is unlikely to affect any statutorily protected sites or landscapes Environment Agency No objection in principle, it is recommended that best practice advice for surface water drainage management is followed Lead Local Flood Authority The submitted Flood Risk Assessment and Sustainable Drainage Strategy does not provide sufficient information or account for a sufficient betterment in storm water storage. Whilst the use of SuDS is referenced in the submitted document this does not appear to be implemented in the proposed drainage strategy. While infiltration may not be possible, there are many other SuDS features that could be incorporated. The proposed drainage network is not adequately represented in any drawing and the proposed storage, while calculated, it is not indicated as to what form this storage will be in (oversized piped, attenuation tank, geocellular storage). There is no supporting information/evidence of the decision to not implement any SuDS on this site. As such further Sustainable Drainage Assessment and Sustainable Drainage Operation and Maintenance Plan should be required by planning condition Canal and River Trust - As the site lies within the zone of influence of the canal tunnel design calculations are required to prove the development does not load the canal tunnel or rely on the tunnel for support. A series of joint inspections between CRT and the developer should be arranged to confirm the condition of the tunnel before, during and after the works. The developer should install a means of live vibration level recording to monitor the tunnel during the construction phase. The method of construction should include vibration cut-off parameters and clearly defined procedures in the event of the cut-off parameters being exceeded Highways England No objection 4.9. Severn Trent No objection however a condition is recommended for drainage plans for the disposal of foul and surface water to be submitted and agreed prior to occupation of the building West Midlands Police No objection in principle, access control between the proposed uses of the site should be installed and CCTV coverage of the site considered. The car park is well considered and over looked Local occupiers, Ward Councillors and Local MP notified. Site and Press notice displayed. No comments received. 5. Policy Context 5.1. UDP 2005; Emerging Birmingham Development Plan 2031, Places for All SPG; Lighting Places SPD; Car Parking Guidelines SPD; Access for People with Disabilities SPD; Birmingham Curzon HS2 Draft Masterplan and National Planning Policy Framework. 6. Planning Considerations Page 5 of 14

6 Principle 6.1. The NPPF outlines a presumption in favour of sustainable development and underlines the Government s commitment to securing economic growth and job creation together with high quality design This site falls within the Eastside of the City centre designated as a strategic area for growth in the Draft Birmingham Plan. Policy GA1.2 of the Draft Birmingham Plan states that the ongoing regeneration of this area will enable the City Centre core to expand eastwards and will require well designed mixed use developments including offices, technology, residential, learning and leisure. Policies 4.33 and 4.38 of the UDP support the principal of the growth of the office sector in the City Centre. This proposal seeks to bring a mixed use scheme comprising of hotel, office and conferencing space to the Aston Science Park within Eastside This proposed scheme would result in substantial investment within this key regeneration area of the City. The applicant has secured funding for this proposal and operators are in place to occupy a completed scheme. This proposal would contribute to the building of a strong, responsive and competitive economy supporting growth which is a key factor ensuring economically sustainable development in accordance with the Paragraph 7 of the NPPF. I consider that the broad principle of these proposed uses in this location are acceptable considering the policy context. Employment 6.4. This proposal seeks to provide a range of employment opportunities including skilled, semi-skilled and unskilled jobs in the hospitability industry and professional opportunities within the office space and as such would accord with the policy context. Design and impact on nearby Heritage Assets 6.5. Policies 3.8 and 3.14 of the UDP require high quality design which is appropriate to its context. Policy 3.28 of the UDP states that proposals near to Conservation Areas should respect the character and appearance of the Conservation Area. Policy PG3 of the Draft Birmingham Plan states that all new development will be expected to be designed to the highest possible standards, contributing to the a strong sense of place including by reinforcing or creating a positive sense of place and local distinctiveness, with design that responses to site conditions and the local area context, including heritage assets and appropriate use of innovative design. The proposed scheme has been carefully designed taking into account the site s context as well as constraints and opportunities The proposed design would result in a significant landmark building on a prominent corner clearly visible for the major road junction at Ashted Circus. The design incorporates a strong and active response to Woodcock Street and Jennens Road frontages reflecting the emerging local urban character. The main entrances of the building are well spaced along Woodcock Street and on Jennens Road so that each function of the building can be read from street level. The layout of the building also opens up Holt Court to encourage public access Paragraph 56 of the NPPF notes that good design is a key aspect of sustainable development, is indivisible from good planning, and should contribute positively to making places better for people. I consider that this proposal would result in a building that has been designed to high standard and responds to its siting. The building will add to the overall quality of the area establishing a strong sense of place and create an attractive street frontage to both Woodcock Street and Jennens Page 6 of 14

7 Road. As such I consider that this proposal would adhere to the principles and policies set out in the draft Birmingham plan, the UDP and the NPPF with regards to design Where roof terrace areas are proposed within the building design I am concerned that the architectural integrity of the building could be compromised if items of clutter are added including umbrellas or large scale furniture. Whilst not wishing to prohibit the use of these spaces I consider it necessary to ensure that no visual interference is caused to the character of the building and have recommended a condition to ensure that terraced areas are kept clear Local and national planning policies require Local Planning Authorities to conserve heritage assets in a manner appropriate to their significance. The proposed building has been designed to respect the Black Horse public house at the corner of Woodcock Street and Jennens Road. This public house is of noticeable architectural merit although not locally listed. The proposed building follows a massing strategy which steps up and away from this non-designated heritage asset. I consider that this proposal would conserve this historic asset in manner that is appropriate to its significance and would as such met with the objectives of the NPPF The setting of the Digbeth Canal would be preserved by this proposal with improved access links to and permeability through the site. Transportation A Transport Assessment has been submitted in support of this application. The site is located in a highly accessible location in close proximity to key destinations within the City Centre. The site is located adjacent to an existing bus stop and is accessible to New Street and Moor Street railway stations. Consideration has been given both to the drop off and pick up activities and trip generation associated with the development proposal. A drop off zone is proposed on Woodcock Street which is considered acceptable in principal. The details of this can be secured through a S278 Agreement. I have recommended an appropriate planning condition accordingly Car parking is proposed to the rear of the site with access via the existing access road from Jennens Road being retained. A proposed service road serving the proposed car park would be constructed and continue through the site giving access to the remainder of Holt Court and opening up the wider area for any future redevelopment. The proposed level of parking is below maximum guidelines however I concur with the views of Transportation Development that there is adequate alternative parking available within the vicinity of the site and that this site is located in a sustainable location. I do not consider that this proposal would result in harm to the free of safe flow of traffic within this area In addition to necessary highway improvements (secured via a Section 278 Highways Agreement), I am of the view that it is necessary for the proposed development to contribute to the City Council s Wayfinding initiative, given the significant number of staff and visitors to the new venue. The applicants have agreed a contribution of 50,000 which I consider is acceptable, served via a Section 111 and Section 106 Agreement as the site is currently owned by the City. Flood Risk and Sustainable Drainage The site is over 1ha and as such a Flood Risk Assessment (FRA) has been submitted in support of this application. The Environment Agency have considered Page 7 of 14

8 the FRA and raise no objection to this proposal. I concur with this view Following a recent change in legislation the Lead Local Flood Authority has been consulted on this proposal and a Sustainable Drainage Strategy has been submitted in support of this proposal. The information submitted has been insufficient in adequately demonstrating a betterment to sustainable urban drainage in this location. I have recommended an appropriate condition to ensure that a full Sustainable Drainage Assessment and Sustainable Drainage Operation and Maintenance Plan can be put in place Severn Trent Water have raised no objection to this proposal. The developer would be required to gain the relevant consents from Severn Trent Water in ensuring that the new development is properly connected foul and surface water drainage systems. I do not consider it necessary to replicate this process by requiring this information to be submitted by planning condition. Ecology A Phase 1 Habitat Survey and Bat Building inspection have been carried out. As part of the Eastside Sustainability Biodiversity Strategy and associated documents there is an expectation that new developments in this area should include green or brown roofs. This has also been recommended by the City Ecologist. The potential for a green / brown roof is limited at this site due to the architectural sculpting of the proposed building but there is some scope for a green/ brown roof to one of the roof terrace area. I have therefore recommended a condition accordingly. Other Regulatory Services have raised no objection to this proposal. Glazing and ventilation to the internal noise levels of the building would be controlled through Building Regulations. I consider it necessary to condition details of any proposed extraction flue to the proposed restaurant of the hotel and have recommended a condition accordingly. The noise level from plant and machinery associated with these proposed uses should also be controlled to ensure nearby amenity and again I have recommended a condition in relation to this matter Regulatory Services have recommended that 10% of the proposed parking provision is provided with electronic vehicle charging points. This proposal falls within a medium category air quality impact area and measures such as this along with encouraging sustainable modes of transport seek to improve air quality. I consider that requiring 10% of the parking provision to be allocated with electronic charging points would harm the overall availability of parking at this site but consider it reasonable to impose a condition for 1 car charging point and associated parking bay. I have recommended a condition accordingly West Midlands Police have recommended a number of security measures to the building including CCTV, internal access control, limiters being fitted to windows and a lighting scheme within the site. I have forwarded these comments to the applicant for their consideration to incorporate into the internal design of the proposal for their own security Canal and River Trust have commented that the site lies within the zone of influence of the canal tunnel and that design calculations are required to prove the development does not load the canal tunnel or rely on the tunnel for support. Some structural calculations have been submitted by the applicant to Canals and Rivers Trust, I consider that this matter can be pursued between Canals and Rivers Trust Page 8 of 14

9 and the applicant outside of the remit of planning legislation. 7. Conclusion 7.1. The principle of mixed used building comprising office space, conference facilities and a hotel to Eastside is consistent with land use planning policy and is welcomed as another significant investment for the city. The design is to a high standard and responds to its siting and the building is in a highly accessible location. I therefore consider that the application is acceptable subject to safeguarding conditions and completion of a planning agreement to secure a financial contribution to public realm improvements and Wayfinding. 8. Recommendation 8.1. That consideration of application 2015/02024/PA be deferred pending the completion of a suitable legal agreement under Section 111 requiring the applicant to complete a Section 106 Agreement planning obligation to secure the following: i) A financial contribution of 50,000 toward Wayfinding between Aston Street, Woodcock Street and Jennens Road to be index linked from the date of this committee resolution and paid upon commencement of development; and ii) A financial contribution of 1,250 for administration and monitoring to be paid upon completion of the legal agreement In the absence of the planning obligation being completed to the satisfaction of the Local Planning Authority by the 19 th June 2015, planning permission be refused for the following reason: i) In the absence of a legal agreement to secure financial contributions to Wayfinding signage between Aston Street, Woodcock Street and Jennens Road the proposal conflicts with Policies of the adopted Unitary Development Plan That the Director of Legal and Democratic Services be authorised to prepare, complete and seal the appropriate planning obligation via a unilateral undertaking or an agreement under section 106 of the Town and Country Planning Act That in the event of the planning obligation being completed to the satisfaction of the Local Planning Authority by the 19 th June 2015, favourable consideration be given to this application, subject to the conditions listed below: 1 Requires the prior submission of materials 2 Requires the prior submission of a lighting scheme 3 No development shall take place until a package of highway measures have been agreed with the Local Planning Authority and all necessary consents, licenses, permits or agreements have been completed or obtained in respect of such measures. The package of measures shall include reinstatement of redundant bellmouth vehicular access, alterations to Traffic Regulation Orders to remove free on-street car Page 9 of 14

10 parking, provision of new TRO for short stay drop-off and pick-up area, modifications to central reserve to enable larger vehicles to park and any associated footway, lighting and carriageway marking provision, pavement up grade to Jennens Road and landscaping to Jennens Road and are to be carried out at the applicants expense to Birmingham City Council specification. The development shall not be occupied until all such measures have been substantially completed in accordance with the approved details. 4 No occupation until Service Road constructed 5 Prevents occupation until the turning and parking area has been constructed 6 Requires the prior submission of a parking management strategy 7 Requires the prior submission of a commercial travel plan 8 Requires the provision of cycle parking prior to occupation 9 Requires the prior submission of details of a delivery vehicle management scheme 10 Requires the applicants to join Travelwise 11 Electric car charging point and associated parking space 12 Construction Travel Management Plan 13 Limits the noise levels for Plant and Machinery 14 Requires the prior submission of extraction and odour control details 15 Requires the prior submission of a Sustainable Drainage Assessment and Sustainable Drainage Operation and Maintenance Plan 16 Provision of Green/Brown Roofs 17 Roof terrace areas to remain clear of clutter 18 Requires the scheme to be in accordance with the listed approved plans 19 Limits the approval to 3 years (Full) Case Officer: Victoria Chadaway Page 10 of 14

11 Photo(s) Fig 1 Existing Offices at site as viewed from Woodcock Street Page 11 of 14

12 Fig 2. Corner view of site from Jennens Road Page 12 of 14

13 Fig 3. Jennens Road view of site including existing access road. Page 13 of 14

14 Location Plan This map is reproduced from the Ordnance Survey Material with the permission of Ordnance Survey on behalf of the Controller of Her Majesty's Stationery Office Crown Copyright. Unauthorised reproduction infringes Crown Copyright and may lead to prosecution or civil proceedings. Birmingham City Council. Licence No , 2010 Page 14 of 14