Ref : Address: Ward: Proposal: P/2012/5103 53 DRAYTON GREEN WEST EALING W13 0JE Cleveland Provision of new church building, ancillary floorspace to the church use and two replacement residential units, incorporating the retention of the existing Listed Chapel building, with associated car parking and landscaping, following demolition of existing buildings (with the exception of the Listed Chapel) Drawing numbers: 13421-A-E-005, 13421-A-E-006 (received 18.12.2012) 13421- A-P-010 Rev A, 13421-A-P-020 Rev A, 13421-A-P-001 Rev A, 13421-A-P-002 Rev A, 13421-A-P-102 Rev A. 13421-A-P-103 Rev A, 13421-A-P-104 Rev A, 13421-A-P-105 Rev A, 13421-A- S-200 Rev A, 13421-A-S-201 Rev A, 13421-A-S-202 Rev A, 13421-A-E-300 Rev A, 14321-A-E-301 Rev A, 13421-A-E-302 and 13432-A-P-101 Rev B (received 06.11.2013) Type of Application: Full applications - Majors Application Received: 18/12/2012 Revised: 06/11/2013 Ref : Address: Ward: Proposal: P/2012/5104 53 DRAYTON GREEN WEST EALING W13 0JE Cleveland Demolition of existing buildings adjacent to the Listed Chapel to the former St Helena's Home, the carrying out of external and internal alterations to the Chapel, including the provision of a new entrance door in the eastern elevation and the provision of glazed links, and the redevelopment of the surrounding site to provide new church buildings (Listed Building Consent) Drawing numbers: 13421-A-E-005, 13421-A-E-006 (received 18.12.2012) 13421- A-P-010 Rev A, 13421-A-P-020 Rev A, 13421-A-P-001 Rev A, 13421-A-P-002 Rev A, 13421-A-P-102 Rev A. 13421-A-P-103 Rev A, 13421-A-P-104 Rev A, 13421-A-P-105 Rev A, 13421-A- S-200 Rev A, 13421-A-S-201 Rev A, 13421-A-S-202 Rev A, 1
13421-A-E-300 Rev A, 14321-A-E-301 Rev A, 13421-A-E-302 and 13432-A-P-101 Rev B (received 06.11.2013) Type of Application: Listed Building Consent Application Application Received: 18/12/2012 Revised: 06/11/2013 Report by: Peter Lee Executive Summary: Recommendation: Grant planning permission subject to Legal Agreement and Listed Building Consent The application site is located to the east of Drayton Green, West Ealing in an area of predominantly residential development, although there is a school to the south of the application site. The site has an area of 0.18 hectares and is occupied by the International Presbyterian Church and ancillary developments, including two residential units. The chapel building on the site is a Grade II statutory listed building and the site is subject to a Tree Preservation Order. To the north, the site abuts residential developments and ancillary garage courts, to the east lie further residential properties and to the south is a new Notting Hill Housing Trust residential development which is now nearing completion. On the opposite, western side of Drayton Green are further twostorey dwellings and to the southwest of the application site is the Drayton Green public open space. The applications propose the demolition of the existing buildings on the site, with the exception of the listed chapel building, and the provision of a new church and community use facility together with the provision of two replacement residential units. The new church building would be able to accommodate congregations of up to 200 people and ancillary facilities, including meeting rooms, a crèche, offices and kitchen would also be provided. The church redevelopment would be single and two-storey and would have a floor area of 802 square metres, a 60% increase over the existing provision (of 500 square metres). The residential element would comprise one single storey 1-bed dwelling and a twostorey 3-bed unit and these dwellings would have a total floor area of 183 square metres, a reduction of 4% compared to the existing provision (of 191 square metres). The church element would have a varied roof profile which would be created from a TECU bronze coloured roofing material with a maximum height of 11 metres to step up from the two-storey scale of houses to the north to the four/five-storey height of the NHHT block of flats to the south. The main issues are in relation to the scale of the replacement community facility, the impact of the proposal on the setting and appearance of the Grade II statutory listed chapel building, the effect of the development on neighbouring residential amenity, including noise issues and traffic generation, the implications of the loss of trees within the site (which are subject to Tree Preservation Order protection) and lastly design issues, given the modern, contemporary design approach being put forward. The main objections are about the appearance of the development and its impact on the character and appearance of the area and the implication of the development on neighbouring residential amenity, particularly in respect of overlooking, loss of privacy and loss of daylight/sunlight. Since the original submission the proposal has been amended in an attempt to address the implications of the proposal on neighbouring residential amenity. The applications are recommended for approval as the scheme is considered to represent an appropriate expansion of an established community facility that would provide facilities for the local 2
community to replace the existing, somewhat limited, provision on the site. At present the main Sunday church service is held at the Drayton Manor High School as the chapel is now considered to be too small to accommodate the congregation. The new development would provide larger facilities and would allow existing community activities to be expanded. The level of development is significant and would occupy a significantly greater proportion of the site than the existing situation and this would result in the loss of some trees, including a Category B Holm Oak. However, it is considered that the development would not have significant implications for neighbouring amenity, in its amended form, and would secure the retention and continued use of the listed chapel structure. Replacement tree planting and soft landscaping works would also be undertaken. The design approach adopted clearly marks out the proposal as a church building and is considered acceptable in this area that is not subject to any specific protection. On balance, therefore, the application is recommended for approval, subject to a legal; agreement to secure replacement tree planting, and appropriate conditions. Recommendation 1: P/2012/5103 - Grant subject to the prior completion of an appropriate Legal Agreement to secure the provision of a financial contribution of 6,000 for the provision of replacement tree planting within the Drayton Green public open space to compensate for the loss of the Holm Oak within the site as a result of the development, and the imposition of appropriate conditions. Conditions/Reasons: 1. Time Limit 3 years - Full Permission The development permitted shall be begun before the expiration of three years from the date of this permission. REASON: amended). In order to comply with the provisions of the Town and Country Planning Act 1990 (as 2. Approved Plans The development hereby approved shall be carried out in accordance with drawing title number(s) 13421-A-E-005, 13421-A-E-006, 13421-A-P-010 Rev A, 13421-A-P-020 Rev A, 13421-A-P-001 Rev A, 13421-A-P-002 Rev A, 13421-A-P-102 Rev A. 13421-A-P-103 Rev A, 13421-A-P-104 Rev A, 13421-A- P-105 Rev A, 13421-A-S-200 Rev A, 13421-A-S-201 Rev A, 13421-A-S-202 Rev A, 13421-A-E-300 Rev A, 14321-A-E-301 Rev A, 13421-A-E-302 and 13432-A-P-101 Rev B unless otherwise agreed in writing by the Local Planning Authority. REASON: For the avoidance of doubt, and in the interests of proper planning. 3. Samples of Materials Samples of the materials to be used for the external surfaces of the development shall be submitted to and approved in writing by the Local Planning Authority before any part of the development is commenced, and this condition shall apply notwithstanding any indications as to these matters which have been given in this application. Development shall be carried out in accordance with these approved details. 3
REASON: To ensure that the materials harmonise with the surroundings, in accordance with policies 3.5, 7.4 and 7.8 of the London Plan, policies 1.1(h), 1.2(f) and (g) and 2.10 of the Ealing Development (or Core) Strategy and Ealing Local Variation to London Plan Policy 7.4 Local Character and policies 7B and 7C of the Ealing Development Management Development Plan Document. 4. Details of Refuse Storage Details of refuse storage for the two residential properties, which should be separate from those for the church, in accordance with the standards adopted by the Local Planning Authority shall be submitted to and approved in writing by the Local Planning Authority. Such provision shall be brought into use prior to the first occupation of the residential units permitted and retained permanently. REASON: To protect the living conditions of occupiers of the area, in accordance with policy 3.5 of the London Plan and policy 7B of the Ealing Development Management Development Plan Document. 5. Details of Landscaping No development shall take place until full details of both hard and soft landscape works have been submitted to and approved in writing by the Local Planning Authority and these works shall be carried out as approved prior to the occupation of any part of the development or in accordance with the programme agreed by the Local Planning Authority. Any trees or other plants which die or are removed within the first five years following the implementation of the landscaping scheme shall be replaced during the next planting season. REASON: To ensure that the development is landscaped in the interests of the visual character and appearance of the area, in accordance with policies 5.10, 7.4, 7.19 and 7.21 of the London Plan, policies 1.1(h) and 2.10 of the Ealing Development (or Core) Strategy and Ealing Local Variation to London Plan Policy 7.4 Local Character and policies 7B and 7C of the Ealing Development Management Development Plan Document. 6. Details of Walls and Fences No development shall take place until there has been submitted to and approved in writing by the Local Planning Authority a plan indicating the positions, design, materials and type of boundary treatment to be erected. The boundary treatment shall be completed prior to the first use of any part of the development hereby permitted. Development shall be carried out in accordance with the approved details. REASON: To protect the visual appearance of the area and the living conditions of neighbouring occupiers, in accordance with policies 3.5, 7.4, 7.6 and 7.8 of the London Plan, policies 1.1(h) and 2.10 of the Ealing Development (or Core) Strategy and Ealing Local Variation to London Plan Policy 7.4 Local Character and policies 7B and 7C of the Ealing Development Management Development Plan Document. 7. Windows fixed and obscure glazed The proposed windows in the north elevation of the dwelling identified as Mews A and the first floor window in the west elevation of the dwelling identified as Mews B hereby approved shall contain only obscure glass, and shall be non-opening. A sample of the obscured glass, no smaller than 300 mm square shall be submitted to and approved by the Local Planning Authority before any work is commenced on the relevant part of the development, and the development shall not be carried out 4
otherwise than in accordance with the sample thus approved. retained permanently. The details so approved shall be REASON: To protect the living conditions of neighbouring properties, in accordance with policies 3.5, 7.4 and 7.6 of the London Plan, policies 1.1(h) and 2.10 of the Ealing Development (or Core) Strategy and Ealing Local Variation to London Plan Policy 7.4 Local Character and policy 7B of the Ealing Development Management Development Plan Document. 8. No other new windows or openings Notwithstanding the provisions of Article 3 of the Town and Country Planning (General Permitted Development) Order 1995, as amended, no windows or other openings (other than those shown on the submitted plans) shall be formed in the walls or roof of the two residential dwellings permitted. REASON: To protect the living conditions of neighbouring properties and the visual appearance of the area, in accordance with policies 3.5, 7.4 and 7.6 of the London Plan, policies 1.1(h) and 2.10 of the Ealing Development (or Core) Strategy and Ealing Local Variation to London Plan Policy 7.4 Local Character and policy 7B of the Ealing Development Management Development Plan Document. 9. Break out of congregational noise and amplified music and speech through the building envelope of church and community facilities Details shall be submitted for the approval of the Local Planning Authority before any development is commenced, to demonstrate that the composite sound reduction index, Rw, of the building envelope of the church buildings and the creche will achieve the following criteria with windows shut and other means of ventilation provided: The background L90,15min linear noise level in any one third octave band from 50Hz to 160 Hz, and also the overall Linear L90 level, as previously measured at 1 m from the nearest façade of the nearest affected premises, shall not be increased when the amplified music or speech is played and the measurement is repeated in the same position, using L90 linear over any 5 minute period with the background and source operating together. Details shall be submitted for the approval of the Local Planning Authority before the development is commenced, for a suitable mechanical ventilation system, to ensure doors and windows are kept closed during hot weather. Once approved, the development shall be carried out fully in accordance with the approved details before the first use of the church. The community facilities shall not be let out for functions involving amplified music. REASON: To protect the living conditions of neighbouring properties, in accordance with policy 7.15 of the London Plan, policy 1.1(j) of the Ealing Development (Core) Strategy and policy 7A of the Ealing Development Management Development Plan Document. 10. Attenuation of external plant and machinery The rating noise level emitted from external plant and machinery, including kitchen extract equipment and mechanical ventilation plant, at the proposed development, as assessed under BS4142: 1997, shall be lower than the existing background noise level by at least 5 dba as measured at 3.5 m from the nearest ground floor sensitive facade and 1m from upper floor noise sensitive facades, during the relevant periods of operation. 5
REASON; To protect the living conditions of neighbouring properties, in accordance with policy 7.15 of the London Plan, policy 1.1 (j) of the Ealing Development (Core) Strategy and policy 7A of the Ealing Development Management Development Plan Document. 11. Kitchen Extract System details The extract fan, odour control filtration equipment, and discharge height shall satisfy the advice at DEFRA, 2005: Guidance on the Control of Odour and Noise from Commercial Kitchen Exhaust Systems. The system, as approved, shall be completed before occupation and thereafter permanently retained and maintained. REASON: To protect the living conditions of neighbouring properties, in accordance with policy 7A of the Ealing Development Plan Development Management Document. 12. Break in of external noise to proposed dwellings and amenity areas within the development from surrounding traffic, aircraft and commercial noise Prior to the commencement of the development, details shall be submitted to and approved by the Local Planning Authority, for the sound insulation of the building envelope around the dwellings, against external transportation and commercial noise and also for the protection of amenity areas. The details shall include ventilation measures to include the control of building services noise. Such details as approved shall be implemented prior to the first occupation and thereafter permanently retained. REASON: To protect the living conditions of occupiers of the new residential properties, in accordance with policy 7.15 of the London Plan and policy 7A of the Ealing Development Management Development Plan Document. 13. Tree Protection Details of the measures to protect retained trees and their root zones within the site and on neighbouring sites shall be submitted to and approved by the local planning authority prior to the commencement of the development and these approved works shall be in place prior to any demolition or other works and retained until the development is complete and the areas so enclosed shall not be used for any storage or any other purpose and the ground within these areas shall not be disturbed including for any works to services except with the prior written permission of the local planning authority. REASON : To safeguard these trees in the interests of the visual amenity and character of the locality and setting of the development, in accordance with policies 7.4, 7.19 and 7.21 of the London Plan and policy 2.10 of the Ealing Development (Core) Strategy Informatives 1. Policies Text The decision to grant planning permission has been taken having regard to the National Planning Policy Framework, the policies and proposals in the London Plan (2011), its Revised Early Minor Alterations (2013), the Ealing Development (or Core) Strategy (2012), the Ealing Development 6
Management Development Plan Document (2013) and to all relevant material considerations including Supplementary Planning Documents/Guidance: London Plan (2011) and Revised Early Minor Alterations (2013) 3.1 Ensuring equal life chances for all 3.4 Optimising housing potential 3.5 Quality and design of housing developments 3.8 Housing Choice 3.14 - Existing Housing 3.16 Protection and enhancement of social infrastructure 5.2 Minimising carbon dioxide emissions 5.3 Sustainable design and construction 5.10 Urban greening 5.13 Sustainable drainage 6.3 Assessing effects of development on transport capacity 6.9 Cycling 6.10 Walking 6.13 Parking 7.1 Building London s neighbourhoods and communities 7.2 An inclusive environment 7.3 Designing out crime 7.4 Local character 7.6 Architecture 7.8 Heritage assets and archaeology 7.9 - Heritage led regeneration 7.14 Air quality 7.15 Reducing noise and enhancing soundscapes 7.19 Biodiversity and access to nature 7.21 Trees and woodlands 8.2 - Planning obligations 8.3 - Community Infrastructure Levy Ealing Development (or Core) Strategy (2012) 1.1 (a), (e), (f), (g), (h), (j), (k) Spatial Vision for Ealing 2026 1.2 (d), (f), (g),(m) Delivery of the Vision for Ealing 2026 2.1 Realising the potential of the Uxbridge Road/Crossrail Corridor 2.10 Residential Neighbourhoods 6.2 Social Infrastructure 6.4 Planning Obligations and Legal Agreements Ealing Development Management Development Plan Document (2013) Ealing Local Variation to London Plan Policy 3.4 Optimising Housing Potential Ealing Local Variation to London Plan Policy 3.5 Quality and Design of Housing Developments Ealing Local Variation to London Plan Policy 5.2 Minimising Carbon Dioxide Emissions Ealing Local Variation to London Plan Policy 5.10 Urban Greening 7A Operational Amenity Ealing Local Variation to London Plan Policy 7.3 Designing Out Crime Ealing Local Variation to London Plan Policy 7.4 Local Character 7B Design Amenity 7C Heritage 7
In reaching the decision to grant permission, specific consideration was given to the impact of the proposed development on the amenities of occupiers of neighbouring residential properties, the local highway network, on the setting and appearance of the Grade II statutory listed chapel building and on the character and appearance of the area as a whole. It is considered that the development is acceptable on these grounds and that there are no other material considerations that would warrant refusal of the application. 2. Article 31 - Approval To assist applicants in a positive manner, the Local Planning Authority has produced policies and written guidance, and offers and encourages a comprehensive pre-application advice service, all of which is available on the Council's website and outlined in a 24 hours automated telephone system. The scheme complied with policy and guidance. The Local Planning Authority delivered the decision proactively in accordance with requirements of the National Planning Policy Framework. 3. Hours of Work Demolition and construction works, audible beyond the boundary of the site shall only be carried on between the hours of 0800-1800hrs Mondays to Fridays and 0800-1300hrs on Saturdays and at no other times, including Sundays and Bank Holidays. 4. Vibration from Works Vibration from demolition, breaking of concrete and piling etc., as measured in the vertical direction on any floor in surrounding noise sensitive buildings, shall not exceed an overall peak particle velocity level of 1mm/s. 5. Asbestos Mitigation Prior to commencement of demolition and construction works, involving materials containing asbestos, details of mitigation measures to control the release of asbestos fibres shall be submitted to this section for approval. 6. Dust Mitigation and Control Dust mitigation and control of exhaust emissions from construction vehicles should comply with the Mayor s (GLA and London Councils) Best Practice Guidance to control dust and emissions from construction and demolition. 7. Bonfires No bonfires shall be lit on site. Recomendation 2: P/2012/5104 Grant Listed Building Consent Conditions/Reasons 8
1. Time Limit 3 years - Full Permission The development permitted shall be begun before the expiration of three years from the date of this permission. REASON: amended). In order to comply with the provisions of the Town and Country Planning Act 1990 (as 2. Approved Plans The development hereby approved shall be carried out in accordance with drawing title number(s) 13421-A-E-005, 13421-A-E-006, 13421-A-P-010 Rev A, 13421-A-P-020 Rev A, 13421-A-P-001 Rev A, 13421-A-P-002 Rev A, 13421-A-P-102 Rev A. 13421-A-P-103 Rev A, 13421-A-P-104 Rev A, 13421-A- P-105 Rev A, 13421-A-S-200 Rev A, 13421-A-S-201 Rev A, 13421-A-S-202 Rev A, 13421-A-E-300 Rev A, 14321-A-E-301 Rev A, 13421-A-E-302 and 13432-A-P-101 Rev B unless otherwise agreed in writing by the Local Planning Authority. REASON: For the avoidance of doubt, and in the interests of proper planning. 3. Damage Made Good Any damage to the listed chapel building caused by or during the course of the carrying out of the works permitted shall be made good within 3 months of the completion of the development in accordance with a specification agreed in writing with the Local Planning Authority. REASON: To safeguard the architectural and/or historic interest of the building, in accordance with policy 7.8 of the London Plan, policies 1.1(h) and 1.2(g) of the Ealing Development (or Core) Strategy and policy 7C of the Ealing Development Management Development Plan Document. 4. Details of New Door to Chapel Full details of the proposed new doorway opening, door and frame, including details of how the doorway will be formed and plans showing full details of the opening and frame, including how the frame would be affixed to the existing wall and how the revealed brickwork would be treated, shall be submitted to and approved, in writing, by the Local Planning Authority before any works to the fabric of the listed building are undertaken. Once approved, the development shall be carried out fully in accordance with the approved details. REASON: To safeguard the architectural and/or historic interest of the building, in accordance with policy 7.8 of the London Plan, policies 1.1(h) and 1.2(g) of the Ealing Development (or Core) Strategy and policy 7C of the Ealing Development Management Development Plan Document. Informative : 1. Policies Text The decision to grant Listed Building Consent has been taken having regard to the National Planning Policy Framework, the policies and proposals in the London Plan (2011), its Revised Early Minor Amendments (2013)the Ealing Development (or Core) Strategy (2012), the Ealing Development Management Development Plan Document (2013) and to all relevant material considerations including Supplementary Planning Documents/Guidance: 9
London Plan (2011) and Revised Early Minor Amendments (2013) 7.8 Heritage assets and archaeology Ealing Development (or Core) Strategy (2012) 1.1(h) Spatial Vision for Ealing 2026 1.2(g) Delivery of the Vision for Ealing 2026 Ealing Development Management Development Plan Document (2013) 7C Heritage In reaching the decision to grant consent, specific consideration was given to the impact of the proposed development on the setting and appearance of the Grade II statutory listed chapel building. It is considered that the development is acceptable on these grounds and that there are no other material considerations that would warrant refusal of the application. Site Description: The application site is located to the east of Drayton Green, West Ealing. The site is currently occupied by single and two-storey development comprising a chapel and laundry room joined to one another with a main residential block and ancillary space linked by an enclosed walkway. The chapel dates from 1912-13 and is a Grade II listed building, designed by the architect Sir John Ninian Comper. The site has an area of 0.18 hectares and is located within a predominantly residential area. The site is within an un-designated area on the Proposals Map and is located opposite a designated Public Open Space (Drayton Green). To the north the site abuts 57 Drayton Green, a detached two-storey dwelling, and the parking court for Apex Court, a three-storey block of 18 flats fronting Sutherland Road. Further to the north-east the site abuts the garage/parking court for Sutherland House, Sutherland Road, a three-storey block of 6 flats. To the east the site adjoins the rear communal garden area of Tourney House, another three-storey block of 9 flats fronting onto Sutherland Road, with detached residential dwellings beyond. To the south the application site adjoins the site of the former St. Helena s Home, which has recently been redeveloped to provide a residential development of dwellings by the Notting Hill Housing Association. To the south of this development is the Drayton Green Primary School with further two-storey primarily terraced dwellings in Drayton Green and Drayton Gardens beyond. To the east of the school, and to the south-east of the application site, are further two-storey terraced dwellings in Drayton Grove. To the west the site abuts the carriageway of Drayton Green and beyond that is located the Drayton Green public open space. To the north-west of the site are located a number of two-storey semi-detached dwellings along Drayton Green. The site is generally level and is accessed from Drayton Green via a shared pedestrian access. There is some shrub planting and soft landscaping along the site frontage behind a 1.5 metre high boundary wall. To the rear of the site there is currently a lawned area that also has a number of trees located within it, principally along the rear (eastern) boundary of the site. The site lies within the area of Tree Preservation Order (TPO) 663A, an area order covering all trees within the site which was confirmed in August 2006. 10
The Proposal: Planning permission is sought for: A new church building comprising a new meeting hall, meeting/congregation area, crèche and ancillary office and administrative areas with a total area of 802 square metres; Two residential mews units Mews A, a single storey one bedroom dwelling of 51 square metres; and Mews B, a two-storey, three-bedroom dwelling of 132 square metres; Internal and external alterations to the Grade II statutory listed chapel building including the provision of a new entrance door in the eastern elevation. The proposal would involve the demolition of the majority of the existing built development on the site, with the exception of the Grade II listed chapel building. The new building would be constructed around the listed chapel incorporating that structure as the centrepiece of the new development. The new structure would comprise a mix of single and twostorey elements and would form a single building, wrapped around a central courtyard. The design has been amended to respond to concerns about the potential impact of the development as initially proposed on neighbouring residential amenity, through overlooking/loss of privacy, loss of outlook, loss of daylight and sunlight and overbearing effect and also to lessen the potential impact of the scheme on the character and setting of the Grade II listed chapel building on the site. The main changes comprised in the amended proposals are: 1/. The width of the front element of the new church building has been reduced to provide separation from the chapel; 2/. The element of the new church development to the front of the chapel has been reduced to the height of the existing building; and 3/. The height of the front mews house has been reduced to single storey. The proposed form of the church adopts a contemporary approach. The layout and form of the building would be angular with defined, straight, hard lines. The church element of the proposal would be located adjacent to the southern boundary of the site adjoining the site of the new residential development at 51 Drayton Green. The southern element of the building would address Drayton Green and would be set between 1.8 and 4.9 metres from the back edge of the footway with the main entrance located close to the southern corner of the building. At ground floor level the structure would provide a roughly triangular shaped hall area that would extend up to 19.5 metres back into the site and would have a maximum width of around 9.5 metres, narrowing down to about 3.6 metres. Adjacent to the main and alternative front entrances to the church building would be located a store and an office area and to the south and east of these would be the WC s, kitchen and further storage areas for the church operation. A cycle store and bin storage area would be located along the southern elevation of the building accessed from the pedestrian walkway that would run along the boundary of the site with the new development at 51 Drayton Green. The existing listed chapel would sit to the east of this area with a 3.6 metre wide access separating the kitchen from the chapel. A new enclosed access route, some 3 metres in width, would be provided along the northern flank wall of the chapel to facilitate access to the new main meeting space that would be attached to the eastern flank wall of the listed chapel and would accommodate up to 200 people. 11
The residential element of the proposal would abut the northern boundary of the site adjacent to 57 Drayton Green and the garage court serving Apex Court. Mews A would be located toward the front of the site, set some 11 metres back from the back edge of the footway with two car parking spaces provided in front of the dwelling. Mews A would be a single storey one bedroom property of 51 square metres of an open-plan design with the living/dining/kitchen area at the front of the property and the bedroom to the rear, with a separate bathroom/wc area in the southeast corner of the unit. The dwelling would be provided with a 10 square metre external amenity area. Mews B would be located to the east of Mews A and would be a two-storey three-bed unit of 132 square metres with the bedrooms, including one en-suite and a bathroom at ground floor level and the living room/dining/kitchen area at first floor level. Mews B would be provided with an external amenity area of 15 square metres. Beyond Mews B to the east would be a further two-storey element, adjacent to the garage courts serving Apex Court to the north and Sutherland House to the east, containing a crèche, kitchen, WC, storage and plant areas at ground floor level and a meeting room and multipurpose area at first floor level which would have doorways opening out onto a first floor roof terrace of 40 square metres. The church and residential elements would be linked together by a covered walkway area, of 2 metres in width, and a store and overflow seating area, also of around 2 metres in width. The walkway would provide access from the front courtyard area to the retained rear garden area, with an area of 285 square metres. The proposal would have a maximum height of 11 metres, toward the southern corner of the site, and this peak would relate to the recently constructed development at 51 Drayton Green which has a maximum ridge height of 15.7 metres. The apex would highlight the main entrance to the church building and is intended to reflect its civic nature. The development would have a faceted and dynamic roofline to create a series of high and low points which would range from 6.25 metres up to 11 metres in height. The building façade would incorporate brick with a variety of grey and buff tones. The bricks are stated to have been chosen to respond to the variation in brickwork in the surrounding residential units and to complement the proposed roofing material. It is proposed to clad the roof in a brass sheet metal (TECU) and this material is designed to weather-down to have a bronze appearance. Relevant Planning History Ref: Date: Proposal: Decision: P/2003/0064 26.02.2003 Single storey extension to residential building Refused Consultation: Public Consultation - Summary Neighbour Notification: Initiated on the 21/12/2012 (expired on 11/01/2013). 236 surrounding residential and commercial occupiers notified. Receipt of amended plans notified to 245 surrounding residential and commercial occupiers. Letters 12
sent 12/11/2013 (expired on 03/12/2013). Advertised Local Press: In the local press and by a site notice on the 28/12/2012 (Expired on the 18/01/2013). 8 responses were received, 3 of objection and 5 of support. The letters of objection raised the following summarised comments/points: The new church and housing will not enhance the environment and would be an eyesore; The back garden of St Helena s Cottage will be overlooked resulting in a loss of privacy; Morning and afternoon sunlight to the rear of St Helena s Cottage will be blocked; Proposal will result in the loss of a Silver Birch tree within the rear garden of St Helena s Cottage; No justification has been provided for the residential units which will be rented out as at present and which are not required by the church itself. Officers Response: The proposed development, whilst of a modern, contemporary design, is considered to be high quality and would create a easily identifiable building representing its community use. The buildings on the site to be replaced are not considered to be of any particular architectural or historic merit, with the exception of the chapel building, which will be retained. The proposed development should complement surrounding development. Since the original submission the scheme has been redesigned to limit overlooking and the loss of daylight/sunlight to the rear garden of St Helena s Cottage (57 Drayton Green)and is now considered to be acceptable in its amended form. The amended proposal would also ensure the retention of the existing Silver Birch tree in the rear garden of no.57. The proposed residential units are to replace the two existing units on the site and would accord with development plan guidance that seeks to optimise the provision of residential accommodation on appropriate sites and to resist the loss of dwellings. The letters of support made the following comments: The proposed development would be beneficial to the entire local community, including disadvantaged groups and the homeless; The enlargement of the church would allow more greater community use and additional activities to be provided; Design is attractive and blends in well with the surrounding area, being no higher than the Notting Hill Housing Trust development next door. Officers Response: Noted. External Consultation List Ealing Civic Society Ealing Community No comments received. No comments received. 13
Network English Heritage Advise that the application should be determined in accordance with national and local policy guidance, and on the basis of the Council s specialist conservation advice. Officers Response: Noted. Environment Agency Have assessed the application and have identified flood risk as the only constraint at this site. The site is in Flood Zone 1 and is under a hectare and therefore the Flood Risk Standing Advice (FRSA) should be used. The main flood risk issue is the management of surface water run-off and ensuring that drainage from the development does not increase flood risk either on-site or elsewhere. The surface water management good practice advice in the FRSA should be used to ensure sustainable surface water management is achieved as part of the development. Officers Response: Noted. Metropolitan Police Designing Out Crime Officer No objection, but has provided information to be passed onto the applicant regarding the courtyard, church roof, office, physical security standards, external residential doorsets, external church doors and ground floor and accessible windows. Officers Response: Noted. The information supplied has been passed onto the applicants. Thames Water Advise that with regard to sewerage infrastructure capacity and water infrastructure capacity they have no objections to the application. Officers Response: Noted. Twentieth Century Society No comments received. Internal Consultation List Environmental Services Refuse Landscape & Tree Officer Object on the basis that no separate refuse storage areas for the residential and church areas are indicated on the submitted plans. Officers Response: Noted. It is considered that adequate space is available to provide separate refuse storage facilities. An appropriate condition is recommended to be imposed to require the submission of details prior to the occupation of the residential units. Initially objected to the proposal on the basis of the loss of TPO d trees and the lack of appropriate soft landscaping and replacement on-site tree planting. Following the submission of amended landscaping details have raised no objection subject to the payment of a financial contribution to pay for the provision of replacement tree 14
planting within the Drayton Green public open space. Officers Response: Noted. The applicants have agreed to make a financial contribution for replacement tree planting on Drayton Green. Planning Policy Regulatory Services Pollution No comments received. Advise that, should the Committee be minded to grant permission, conditions should be imposed in respect of the submission of further details in respect of the break out of congregational noise and amplified music and speech through the building envelope of the church and community facilities; the attenuation of external plant and machinery; details of the kitchen extract system for the café; and break in of external noise to the proposed dwellings and amenity areas from surrounding traffic and commercial noise. Officers Response: Noted. Appropriate conditions are recommended to be Imposed to address the issues raised. Transport Services Stated that, in respect of the initial proposal, more information was required before they could formally raise no objection to the proposal. Further information has been supplied but no further comments have been received. Officers Response: Noted. Any update will be reported to the Committee. Reasoned Justification: Principle of Development The development proposal essentially represents a like-for-like replacement of the existing facilities on the site in land use terms as there is an existing residential element within the wider church development, albeit the floor area of each element would be increased. In terms of the church facility there is considered to be general policy support within the adopted and emerging development plans for the area. Policy 3.16 of the London Plan indicates that London requires additional and enhanced social infrastructure provision to meet the needs of its growing and diverse population and that: Development proposals which provide high quality social infrastructure will be supported in light of local and strategic needs assessments. It is further stated that: Facilities should be accessible to all sections of the community (including disabled and older people) and be located within easy reach by walking, cycling and public transport. Wherever possible, the multiple use of premises should be encouraged. Policy 1.2(d) of the Ealing Development (or Core) Strategy indicates that the Council will: make provision of appropriate physical, social and green infrastructure in the right locations and at the right time to support the levels of housing and employment growth to be delivered in Ealing 15
There is also general policy support for residential developments in sustainable locations and on already developed land. London Plan policy 3.14 also seeks to resist the loss of housing unless it is replaced at existing or higher densities and floorspace. The principle of the provision of a mixed-use development providing a new church/community facility and associated residential development is considered to be acceptable in principle in this location. Design, Scale and Siting The existing buildings at the application site formed part of the wider St. Helena s reform home which was originally built in 1896. The listed chapel was added in 1912 and the remaining buildings, that would be demolished, were later nineteenth and twentieth century additions. The International Presbyterian Church (IPC) has occupied the site since 1979. The surrounding area is predominantly residential in nature although opposite the application site is an area of public open space, Drayton Green, and to the south is a Notting Hill Housing Trust site that is currently under construction and then the Drayton Green Primary School. The IPC buildings sit within a pocket of alternative but complementary uses within the residential area. The prevailing architectural style of the residential streets in the locality is Victorian. The facades of the residential units have a variation in red and brown brick with a significant level of detail in their appearance. The roofscape is defined by strong gable ends to each house, with some end terraces having a turret. The proposed redevelopment comprises residential and church uses. With respect to the latter the applicants indicate that they are seeking five key components: 1. Meeting space; 2. Church hall; 3. Office and meeting rooms; 4. Ancillary facilities including crèche, kitchen, storage and plant; and 5. The listed chapel. The redevelopment of the site has essentially been dictated by the positioning of the listed chapel building. At present this building is located toward the rear of the site and views of it from public viewpoints are restricted by the existing buildings between it and Drayton Green. The chapel however is no longer considered to be suitable to accommodate the IPC s congregation for their main Sunday service. The building is rectangular in shape and has six large Doric columns within it which restrict the functional use of the space. The development proposals would however retain the chapel as an integral part of the scheme and maintain it for its original purpose. However, to incorporate it, it is proposed to create a new opening in the eastern end wall of the building. It is stated by the applicant that this would allow for the chapel to be used in conjunction with the new main church hall and also enable circulation and movement around the building as a whole, thus preserving and enhancing its use. The design approach adopted is to build around the west, north and east sides of the chapel and to lightly touch it. The chapel would then be framed between two key components of the new church development the entrance meeting space, administrative and meeting space fronting onto Drayton Green; and the main church hall to the rear of the site. The submitted information indicates that the proposal has been designed to allow for the key areas of the development to either operate as one or 16
independently. A glazed walkway is proposed along the northern side of the chapel linking the front and rear sections of the new church building. In floor area terms the submitted documentation indicates that there is a total Use Class D1 gross internal floorspace on the site of 500 square metres and the development proposal would increase this to 802 square metres a 60% increase. The proposed residential element would have a total floor area of 183 square metres. The proposed development would result in a site coverage of 1,187.5 square metres or 66% and would represent a plot ratio of 0.8:1. Developments need to be of appropriate scale, physical bulk and intensity of use, so that developments are in character with and do not adversely affect their urban environment. However, it is acknowledged that plot ratio, site coverage and cubic content criteria are secondary requirements of quality design. The ability for plot ratio to be maximised will depend on local context; including built form, character, plot sizes and existing or potential public transport capacity. Previously this Council has indicated that development should normally have a plot ratio of 1:1 and in all cases site coverage should not be more than 75%. The current arrangement of buildings on the site only occupies approximately one third of the total, which the applicants argue is an inefficient use of the land. They contend that the proposed arrangement would maximise use of the site and would open up views into and around it, whilst maintaining a strong visual presence in the street scene and consider that optimising the potential to accommodate development on land is a key part of sustainable development which is a core principle of the NPPF. In design terms the proposed form of the church adopts a contemporary approach. The layout and form of the building would be angular with defined, straight, hard lines. The proposed roof scape would create a strong presence in the streetscene and is intended to clearly identify the site as a Christian place of worship. The design would establish a strong frontage and sense of place that would identify the community facility that the church is intended to offer. The applicants have stated that the proposed roofscape is informed by the vernacular of the surrounding residential dwellings and the proposal is to clad the roof in a brass sheet metal (TECU) that the applicants contend would compliment the dynamic form of the roof. This would create a visually distinctive building in the locality. The height and scale of the building is dictated by the form of the roof which itself is informed by the roofscape of neighbouring residential properties. The height and scale of neighbouring buildings is markedly different, with the majority of existing residential dwellings being two-storeys in height, whilst the adjacent Notting Hill Housing Trust development immediately to the south is 4 to 5-storeys. The proposed church building would therefore sit amongst these variations and could be argued to balance the difference in height and scale within this part of the streetscene. The building façade would be primarily brick with a variety of grey and buff tones to respond to the variation in brickwork in the surrounding residential units and to compliment the brass TECU roof. Turning to the residential element of the proposal, two residential units are proposed that would be intended to replace the two existing dwellings on the site, and these would comprise of one 1-bed unit of 51 square metres (Mews A) and one two-storey three-bed unit of 132 square metres (Mews B). The existing residential units have a floor area of 191 square metres and the replacements units would provide 183 square metres, an decrease of 8 square metres, or 4%. 17
Given the proximity of these proposed units to 57 Drayton Green the impact of the new development on the residential amenities of the occupiers of that property are an important consideration which is discussed in more detail below. During the initial stages of design preparation the original design of the residential element was for a two-storey building located along the full extent of the mutual boundary between the application site and 57 Drayton Green. However, when this design option was tested to establish how this arrangement would impact on daylight and sunlight received to the habitable room windows of 57 Drayton Green it was found that this initial layout would conflict with the guidance contained within the BRE s Site Layout Planning for Daylight and Sunlight A Guide to Good Practice (2011) document and subsequently the proposed development was set back from the mutual boundary to ensure the impact of the proposal accorded with the guidance contained within the document. However, the initial application proposal would still have resulted in a 20% reduction in sunlight received by the rear garden of 57 Drayton Green and would have resulted in nearly 40% of the rear elevation of the dwelling losing sunlight. Further alterations have therefore been sought to reduce the scale of the proposed residential element along the northern boundary of the site with the two-storey element (Mews B) now to be set back at least 16.3 metres from the rear wall of 57 Drayton Green and being located adjacent to the garages serving Apex Court. Overall it is therefore considered that design, siting and scale of the proposed development are acceptable and would accord with relevant development plan policy requirements. Residential Density The residential element of the proposal covers an area of 0.025 hectares and the proposed residential density would therefore equate to 80 units per hectare and 320 habitable rooms per hectare. The guideline figures contained within Table 3.2 (Sustainable residential quality (SRQ) density matrix (habitable rooms and dwellings per hectare)) of the London Plan 2011 indicates that in a Suburban location, with a PTAL of 2, indicate that density levels of between 150 and 250 hr/ha and between 35 and 95 u/ha would be appropriate. Whilst the number of units proposed therefore accords with the guideline figure, the number of habitable rooms proposed significantly exceeds the figure indicated in the London Plan. However, the residential units are essentially replacement units for those already present on site and are not considered to be out of scale or of poor quality. On balance, it is therefore considered that the density proposed is acceptable given the scale and nature of the development. Amenity of Future Occupants Indoor & Outdoor (Amenity Space) Living Standards The layout of the Mews buildings provide for generous living spaces. The guidance contained in Table 3.3 (Minimum space standards for new development) of the London Plan (2011) indicates that the minimum standard for a 3-bedroom/5-person two-storey house is 96 square metres. At 132 square metres the proposed dwelling Mews B comfortably exceeds this minimum standards. The Table does not provide any guideline figure for single storey dwellings, but does indicate a minimum floor space standard of 50 square metres for a 1 bedroom/2-person flat. At 51 square metres Mews A accords with this requirement. 18