Report to: Planning Committee Date of Meeting: 19 October 2016

Subject: DC/2016/01283Norwood Primary School, Norwood Crescent, Southport, PR9 7DU

Proposal: Erection of a two storey extension to the rear of the school and the layout of car parking spaces and a cycle compound (alternative to DC/2016/00016 withdrawn 10.03.16)

Applicant: Mr Mike McSorleySefton Council

Agent: Mr Patrick LaiSefton Council

Report of: Chief Planning Officer Wards Affected: Norwood Ward

Is this a key decision? No Is it included in the Forward Plan? No

Exempt/Confidential No

Summary

The main issues to consider are the impact on the living conditions of neighbouring occupiers and the impact on highway safety.

Recommendation

Approve with Conditions

Implementation Date for the Decision

Immediately following the Committee meeting

Contact Officer: Steve Matthews Tel: 0345 140 0845 (Option 4)

Case Officer: Miss Lynne Poulton Tel: 0345 140 0845 (Option 4)

Email planning.department@sefton.gov.uk

Background PapersThe full planning application including all supporting documents, plans and reports can be viewed at http://pa.sefton.gov.uk/online-applications/

The Site

Norwood Primary School situated on the western side of Norwood Crescent. Holy Family Catholic School lies to the north of the site. The schools are surrounded by dwellinghouses.

Proposal

Erection of a two storey extension to the rear of the school and the layout of car parking spaces and a cycle compound (alternative to DC/2016/00016 withdrawn 10.03.16)

History

Planning Applications

Ref: DC/2016/00016, Proposal: Erection of a two storey extension and an external two storey lift shaft to the rear of the school and the layout of 10 car parking spaces and a cycle compound, Decision: Withdrawn Decision Date: 10-Mar-16

Ref: DC/2016/00696, Proposal: Erection of a two storey external lift shaft to the rear of the school, Decision: Approved with conditions Decision Date: 18-May-16

Consultations

Highways Development DesignTraffic Generation

Norwood Primary School is on a shared site with Holy Family Catholic Primary School and both schools are accessed from Norwood Crescent.

The proposed expansion of Norwood Primary School will increase the staff numbers by 15 and pupil numbers by 210 over the course of the next seven years, results in a pupil increase from approximately 425 pupils to 635 pupils and staff from 68 to 83. This will result in additional vehicle and pedestrian traffic and vehicle movements accessing Norwood Crescent and the school.

In an attempt to reduce any congestion on Norwood Crescent, a voluntary unofficial 'One-Way' system is already being jointly promoted by both schools, which the majority of parents seem to adhere to during the morning and afternoon peaks.

The application includes a number of mitigating traffic measures to help reduce the

impact the school expansion will have on the highway network. One of the measures proposed includes formalising the one-way system and making a Traffic Regulation Order that turns Norwood Crescent to one-way in a clockwise direction. Access

The existing 5.5m wide vehicular access, that serves both Norwood Primary and Holy Family Catholic Primary Schools will continue to be used to access the car parks and for servicing both Schools. This access is not available for vehicular use by parents and the car parking facilities within the sites are for staff only. There are two pedestrian gates adjacent to the vehicular access, that are available for use by both schools and there is a further pedestrian access for Norwood Primary from Norwood Crescent at the south end of the site.

There are no proposals to alter these access arrangements as part of this application. Parking

Currently the parking facilities for both schools are centrally located with a total of 26 car parking spaces for Norwood Primary and approximately 9 spaces for Holy Family. Double parking occurs in both car parks but more predominantly within the Holy Family car park. It is proposed to increase the level of parking on site by 16 no. for Norwood Primary and 7 no. for Holy Family therefore, increasing the facilities to 42 no. and 16 no. respectively, to reduce the level of overspill parking from the schools staff.

Norwood Primary also has three facilities available for use by cycles which can accommodate up to 40 cycles and it is proposed to provide a further cycle facility that will accommodate 20 more cycles.

In accordance with Supplementary Planning Guidance 'Ensuring Choice of Travel' a maximum of 1 car parking space per 2 members of staff is permitted and 1 secure cycle parking space per 10 pupils and 1 secure space per 10 staff must be provided.

The proposed increase in car parking to 42 no. will be the maximum permitted following the increase in staffing numbers and therefore is acceptable. Given that there could be up to 630 pupils and approximately 83 staff, cycle parking to accommodate up to 80 cycles for Norwood Primary should be provided, although a slight reduction in numbers would be acceptable if the number of staff usually on site is significantly below 83, this can be secured by condition.

Norwood Crescent has unlimited parking on both sides for the majority of its length. There are school keep clear markings directly fronting the main vehicle access and the pedestrian access adjacent to no. 10 Norwood Crescent. There also laybys along the western side of Norwood Crescent adjacent to both schools that provide additional on street parking facilities, approximately 30 spaces. These laybys were originally provided to create a 'drop-off' area for parents, however, many of these spaces are taken up by

vehicles parked for most of the school day and primarily by staff of the schools.

Another mitigating measure proposed as part of the application is the introduction of limited waiting restrictions. This would be to introduce a Traffic Regulation Order on both sides of Norwood Crescent, the effect of which would restrict waiting up to 2 hours with no return within 1 hour, Mon-Fri 8am-4pm. This would restrict vehicles from parking on Norwood Crescent for more than two hours and would stop the school staff from parking on the Crescent all day. Accessibility

The school site is in a relatively accessible location, in a large residential area. There are good pedestrian links in the surrounding area with a public footpath to the north of the site running from Norwood Crescent to Grange Road , there are dropped kerbs across the junction of Norwood Crescent and Beech Grove and the northern junction of Norwood Crescent and Norwood Avenue.

Notwithstanding the above, it is proposed to install a pedestrian refuge across the southern junction of Norwood Crescent and Norwood Avenue, including dropped kerbs and tactile paving and a Zebra crossing on Norwood Avenue adjacent to its southern junction with Norwood Crescent. This is to improve pedestrian accessibility due to the high pupil numbers attending the school from the eastern side of Norwood Avenue, which is also expected to increase as part of the school expansion.

Travel Plan

The Document from the DfT and DfeS (Travelling to School - A Good Practice Guide) states that travel plans should be submitted alongside planning applications with a significant transport implication, including those for new or expanded facilities. Norwood Primary School has a school travel plan, however, as a consequence of the proposed expansion to the school an updated version has been submitted as part of this application. The amended submitted School Travel Plan is considered acceptable.

The school is located within a residential area and as a result a construction traffic management plan must be submitted and approved prior to commencement of the works.

Conclusion

In general, the development will result in additional traffic on the network, which across the wider area can be readily accommodated, but the impact in the immediate vicinity will only be acceptable with the mitigation measures identified. These measures will improve access for pedestrians and users of public transport and reduce the impact of the vehicle traffic and parking.

In view of the above I would have no objection to the proposal to expand Norwood

Primary school, subject to the following conditions and informatives being attached to any approval:- H-5 - Off-site Highway Improvements

- The introduction of a scheme of junction improvements at the southern junction of Norwood Crescent and Norwood Avenue including the installation of a pedestrian refuge across the junction and dropped kerbs and tactile paving.

- Construction of a Zebra crossing on Norwood Avenue adjacent to its southern junction with Norwood Crescent

H-6 - Vehicle parking and manoeuvring H-7 - Cycle parking H-8 - Travel Plan submitted H-10 - Mud on carriageway H-11 - Construction Traffic Management Plan I-2 - Highways

'Unless otherwise agreed in writing, no part of the development shall be occupied until a Traffic Regulation Order (TRO) to introduce a One-way clockwise system on Norwood Crescent has been made and a program for the implementation of the Order has been agreed to the satisfaction of the LPA.'

'Unless otherwise agreed in writing, no part of the development shall be occupied until a Traffic Regulation Order (TRO) to introduce waiting restrictions on Norwood Crescent that restricts waiting up to 2 hours with no return within 1 hour, Mon-Fri 8am-4pm has been made and implemented in full.'

Air quality Team - no objections to the proposal on air quality grounds

Environmental Protection Officer - no objections to proposal. Add informative regarding piling.

Merseyside Environmental Advisory Service - the bat survey report is acceptable and will be forwarded to Merseyside BioBank. The Council does not need to consider the proposals against the three tests (Habitats Regulations). It is unlikely that the proposed development will deter sparrow hawks from foraging in areas adjacent to the site and school site is unlikely to be used for sparrow hawk nesting.

The development will have a direct effect on the woodland priority habitat and compensation provision is required. The amended plan shows a new woodland area which is considered to be acceptable.

The site lies within the red squirrel refuge and buffer zone and trees should be species which encourage red squirrels. Assessment has been carried out on the ponds and no evidence of great crested newts were found.

Add standard conditions regarding:- inspection of trees for red squirrels, protection of breeding birds, removal of rhododendron, a waste audit. Add informative regarding bats.

Local Plan Team - the Infrastructure Delivery Plan, which supported the Local Plan during examination, identified a need to increase the capacity of primary schools in the Southport area. This is to enable the growth proposed in the Local Plan to be supported by social infrastructure and facilities in sustainable locations. This accords with the social role of planning that is set out at paragraph 7 of the National Planning Policy Framework.

Sport England - the proposed development results in a minor encroachment onto the playing field. However, having considered the nature of the playing field and its ability to accommodate a range of pitches, it is considered that the development would not reduce the sporting capability of the site. As such, Sport England is satisfied that the proposed development broadly meets the intention of the Sport England policy. Sport England does not wish to raise an objection to this application.

Neighbour Representations

Last date for replies: 3rd October 2016 A petition of over 25 signatures has been received on behalf of Friends of Holy Family Parents Committee

Letters of objection from residents of Norwood Crescent, Grange Road, Sussex Road, Kempton Park Fold, St Luke's Road, Old Park Lane, Meolswood

traffic and highway safety - parking over driveways, charging cannot happen, visitors will not be able to park, increase risk of accidents to children, death trap, chronic parking and congestion, under-estimate of parking required, inconsiderate parking, travel plan not adequate and no real solutions, disagree with one-way system and limited parking, Holy Family do not need extra parking, suggest use cameras to enforce drop off area, use of bollards, move main gate, two islands at corners of the crescent, permits for child minders needed and contractor at houses, police drop off point, one-way system unfair to residents, ice cream van nuisance/fumes, parking should be at end of school plot, suggest TRO's during term times only

effect on Holy Family School - affect emergency access, affect vitamin D intake, loss of view of field, loss of sunlight to classroom and garden, noise and danger during construction, health from car fumes, should not close schools so enough spaces, only a narrow path for 210 pupils in emergency

siting of extension - could be sited in opposite direction, extends towards Grange Road properties, already intrusive night-time lighting, should consider extending schools at Larkfield or Kew Woods, loss of playing field

impact on living conditions of residents - houses here before schools, needs of residents second to that of school, will seek compensation, loss of privacy (to properties in Grange Road), increase in noise from additional pupils

other - no direct communication from school, consultation process flawed, requires public meeting, house prices affected, sparrow hawk in garden, neighbourhood and environment will be irreversibly affected

Holy Family School - object to proximity of car parks cutting into field area, blocks emergency access onto field, extension should be on far side of site, loss of school crossing patrol, building will be higher than existing. Impact of loss of sunlight on school - plan submitted is inaccurate.

Policy

The application site is situated in an area designated as Urban Greenspace on the Council’s Adopted Unitary Development Plan.

The following policies apply:

NPPF National Planning Policy Framework

CS3 Development principlesAD2 Ensuring choice of travel DQ1 DesignDQ3 Trees and development G1 Protection of urban greenspaceEP6 Noise and vibrationNC1 Site protectionNC2 Protection of speciesH10 Residential Development and Development in Residential Areas

Emerging Local Plan – June 2016

The following draft policies were subject to discussion at the recent Local Plan Examination and have been given weight in forming this recommendation.

Whilst changes may subsequently be made to a number of these policies, particularly where there are remaining objections, or where the inspector has indicated he needs to give them further consideration, those with no objection or modifications may be regarded to carry significant weight.

SD2 Principles of sustainable development (significant weight)HC7 Education and care institutions in the urban area (significant weight)NH5 Protection of open space and countryside recreation areas (significant weight)EQ2 Design (significant weight)EQ3 Accessibility (significant weight)EQ4 Pollution and hazards (significant weight) NH2 Protection and enhancement of nature sites, priority habitats and species

(significant weight)HC3 Residential development and development in primarily residential areas

(significant weight)

Assessment of the Proposal The extension measures 33.5m x 18.4m with a maximum height of 10.9m.Extensions to the car parks are also proposed. This would provide an additional 16 extra car parking spaces for Norwood primary school and 7 spaces for Holy Family School.

The proposal extension would provide for 210 additional pupils increasing from 420 to 630 over a 5 year period (up to September 2023). In addition there would be 15 additional staff members (7 teaching, 7 non-teaching and 1 administrative). This would result in 26 teaching and 57 non- teaching staff (24 part-time).

The extension would provide an additional hall, new classrooms and resource rooms and new toilets and store.

Principle

The report to Cabinet Member for Children, School, Families and Leisure (24 July 2015) explains the demand for extra school places in Southport central area and that there has been an increase in capacity in recent years at Birkdale primary school and Linaker primary school. Further capacity is necessary to cater for both current demand and future demand when housing sites identified in the Local Plan are approved.

In 2015 the Council decided to develop schemes to increase the number of places at both Norwood primary school and Kew Woods primary school. These schools were considered suitable because of the quality of their provision, the capacity of the school sites to accommodate these increases and their popularity with parents.

The Cabinet Members Consultation on the proposal to expand Norwood Primary School from an in-take of 60-90 pupils took place in September to October 2015. Funding for this proposal is within the Council’s capital programme. In December 2015 the Cabinet Member approved the proposal to increase the capacity and admission number from 60 to 90 at Norwood Primary School with effect from September 2016.

In addition the Infrastructure Delivery Plan, which supported the Local Plan during the examination, identified a need to increase capacity of primary schools in the Southport area. This is to enable the growth proposed in the Local Plan to be supported by social infrastructure and facilities in sustainable locations. This accords with the social role of planning that is set out at paragraph 7 of the NPPF. The UDP policy G1 allows extensions to schools and other small scale development such as car parks directly related to the current use of the site.

The emerging Local Plan policy HC7, which carries significant weight, allows development for uses directly related to the existing use of the site. The policy also seeks environmental improvements which enhance the sites environmental quality.

As the proposals relate to the existing use of the school the proposal is considered to be acceptable in principle and complies with UDP policy G1 and the emerging Local Plan policy HC7.

Living condition of nearby residents

The extension would be sited to the rear of the school and only a small section would be visible above the existing roof. The extension would not therefore have a harmful effect on the outlook of the occupiers of dwellinghouses to Norwood Crescent.

Dwellinghouses to Grange Road have rear gardens of 21m in length and the extension would be over 40m from the nearest boundary to the dwellinghouses. One window is proposed to the first floor rear elevation and a condition has been attached for this to be obscurely glazed to protect the privacy of neighbouring occupiers. Additional trees are to be planted along the boundary and it is considered that the proposed extension would not significant detract from the outlook of the occupiers of properties to Grange Road.

In terms of the impact of the proposed extension itself it is therefore considered that the proposal complies with UDP policy H10. The impact of the resulting highways implications are addressed later in the report.

Design and impact on the street scene

The extension is considered to be acceptable in terms of design. Given the length of the frontage of the school to Norwood Crescent and due to the siting of the extension at the rear of the school it is considered that there would be no harmful effect on the street scene. The extension would have facing bricks and tiles to match the existing. The proposal therefore complies with UDP policy DQ1 and the emerging Local Plan policy EQ2.

Highway Safety

A petition of over 25 signatures has been received from the parents and carers of the children of Holy Family School. The petition is endorsed by Councillor Daniel Lewis. A large number of objections have also been submitted many of which express concerns regarding the impact of the increase in the numbers of pupils and staff on the highway including access from dwellinghouses.

A travel plan has been submitted together with an assessment of proposals which would help to reduce the impact of the development. These proposals include formalising the existing one-way system, introducing waiting restrictions on Norwood Crescent to two hours. These would both require a Traffic Regulation Order. It is also proposed to install a zebra crossing on Norwood Avenue, a pedestrian refuge across the southern junction of Norwood Crescent and Norwood Avenue, and exemption permits for residents.

The Council’s Highway’s Officer assessment and comments are set out in full earlier in the report. He concludes that the development will result in additional traffic and the impact in the immediate vicinity will only be acceptable if a number of measures are taken, as set out in the paragraph above. These will help to improve access for pedestrians and users of public transport and reduce the impact of the vehicle traffic and parking. The Highways Officer therefore has no objection to the proposal to expand the school subject to conditions and informatives.

Trees and Development

The proposal includes the planting of 30 new trees which complies with the UDP policy DQ3 and the emerging Local Plan policy EQ9. A small section of woodland would be affected, however an amended plan has been submitted which shows a new mixed native woodland area.

Protection of open space /playing fields

Sport England have concluded that the proposed development broadly meets the intention of the Sport England policy and does not raise an objection to the proposal.

Impact on Holy Family School

A petition from Friends of Holy Family Parents Committee has been received and letters from the headmistress and a number of parents have expressed concerns regarding the proposals. The siting of the extension has been considered by the Head of Schools and Families. Whilst concerns are acknowledged it is noted that the extension would be 30m from the closest classroom. The impact of the proposed additional car parking spaces are also acknowledged however the provision of additional spaces are for the staff at Holy Family. An amended plan has been submitted to provide a double gate and 2m wide path to provide for emergency access to the field for the children and staff at Holy Family.

An amended plan has been submitted to demonstrate that there would be no significant impact of the extension on the daylight and sunlight in relation to Holy Family school.

Other issues

The agent has confirmed that any new lighting will be directed downwards avoiding any glare and an informative has been attached accordingly. Conclusion

The proposed extension is considered essential to meet the current and future demand for school places in the central area for Southport. This is part of a planned expansion programme to a number of schools in the area.

The proposed extension to the school is acceptable in terms of the design and appearance, and will have a minimal effect on neighbours. The issue is the impact of increased traffic which the expansion will result in. It is considered that a number of measures can be taken to address these concerns, including waiting restrictions, introduction of a one-way system and residents parking permits. The waiting restrictions and one system will be the subject of Traffic Regulation Orders which is a separate legal process.

The proposed extension is recommended for approval subject to conditions, including the need to make the Traffic Regulation Orders without which the development cannot take place.

Recommendation

Approve with Conditions

Conditions

This application has been recommended for approval, the following conditions and associated reasons apply:

1) The development hereby permitted shall be commenced before the expiration of three years from the date of this permission.

Reason: To comply with Section 91 (as amended) of the Town and Country Planning Act 1990.

2) The external finishes of the development hereby permitted shall match those of the existing building in material, colour, style, bonding and texture.

Reason: To ensure a satisfactory appearance to the development in the interests of visual amenity and to comply with policy DQ1/MD1 of the Sefton Unitary Development Plan.

3) The first floor window on the rear elevation shall not be glazed otherwise than with obscured glass and top hung and thereafter be permanently retained as such.

Reason: To safeguard the amenities of occupiers of adjoining properties and to comply with policies CS3 and H10 of the Sefton Unitary Development Plan.

4) No part of the development shall be brought into use until areas for vehicle parking, turning and manoeuvring have been laid out, demarcated, levelled, surfaced and drained in accordance with the approved plan and these areas shall be retained thereafter for that specific use.

Reason: In the interests of highway safety and to accord with policies CS3 and DQ1 in the Sefton Unitary Development Plan 2006

5) No part of the development shall be brought into use until space and facilities for cycle parking have been provided in accordance with the approved plan and these facilities shall be retained thereafter for that specific use.

Reason: In the interests of highway safety and to accord with policies CS3 and AD2 in the Sefton Unitary Development Plan 2006

6) The approved Travel Plan shall be implemented in full in a timetable to be agreed in writing with the Local Planning Authority / in accordance with the timetable approved in writing by the Local Planning Authority. The approved Travel Plan shall continue to be implemented as long as any part of the development is occupied.

Reason: In the interests of highway safety and to accord with policies CS3 and AD2 of the in the Sefton Unitary Development Plan.

7) a) Prior to the commencement of development, full details of the proposed measures to ensure that mud and other loose materials are not carried on the wheels and chassis of any vehicles leaving the site and measures to minimise dust nuisance shall be submitted to an agreed in writing with the Local Planning Authority.

b) The details approved under (a) above shall be implemented throughout the period of construction unless otherwise agreed in writing with the Local Planning Authority.

Reason: In the interests of highway safety and to accord with policies CS3 and AD2 in the Sefton Unitary Development Plan.

8) a) Prior to the commencement of development a Construction Traffic Management Plan shall be submitted to and approved in writing by the Local Planning Authority.

b) The provisions of the Construction Traffic Management Plan approved under (a) above shall be implemented in full during the period of construction and shall not be varied unless otherwise agreed in writing with the Local Planning Authority.

Reason: In the interests of highway safety and to accord with policies CS3 and AD2 in the Sefton Unitary Development Plan.

9) The proposed development shall not be brought into use until the following works have been completed.

A Traffic Regulation Order (TRO) to introduce a one-way system on Norwood Crescent requiring all vehicles to proceed in a northerly direction has been made, and a program for the implementation of the Order has been agreed to the satisfaction of the Local Planning Authority.

Reason: These works are necessary to ensure that development is acceptable.

10) The proposed development shall not be brought into use until a Traffic Regulation Order (TRO) to introduce waiting restrictions on Norwood Crescent that restricts

waiting up to 2 hours with no return within 1 hour, Monday to Friday 8am to 4pm has been made and implemented in full.

Reason: These works are necessary to ensure that development is acceptable.

11) a) The hard and soft landscaping scheme hereby approved shall be carried out prior to the occupation of any part of the development or in accordance with a timetable to be agreed in writing with the Local Planning Authority.

b) Any trees or plants that within a period of five years after planting, are removed, die or become, in the opinion of the Local Planning Authority, seriously damaged or defective shall be replaced with others of a species, size and number as originally approved in the first available planting season unless the Local Planning Authority gives its written consent to any variation.

Reason: In the interests of visual amenity and to comply with policy DQ3 of the Sefton Unitary Development Plan.

12) Before the development is commenced:-

a) A survey for red squirrels shall be undertaken and results, together with a scheme of protection measures and a timetable for implementation shall be submitted to and approved in writing by the Local Planning Authority. b) This scheme shall then be implemented in accordance with the details approved under (a) above.

Reason: To safeguard the conservation of species/habitats and to accord with policy NC2 of the Sefton Unitary Development Plan.

13) No tree felling, scrub clearance, vegetation management and/or ground clearance is to take place during the period 1st March to 31st August inclusive. If it is necessary to undertake works during the bird breeding season then all trees and vegetation is to be checked first by an appropriately experienced ecologist to ensure no breeding birds are present. If present, details of how they will be protected would be required.

Reason: To protect birds during their breeding season and to comply with Policy NC2 in the Sefton Unitary Development Plan.

14) All rhododendrons shall be removed from the site within an agreed timescale with the Local Planning Authority.

Reason: To eradicate the invasive species from the site and to comply with Unitary Development Plan policy EP1 and the emerging Local Plan policy NH2.

15) The development hereby granted shall be carried out strictly in accordance with the following details and plans :-

08-01 Location plan 08-02 existing ground and 1st floor plan08-03 existing elevations and roof plan 08-05 proposed ground floor plan 08-06 proposed first floor plan 08-07 proposed elevations08-09 existing site level plan and drainage 08-14A proposed site plan with trees and parking

School Travel Plan Ecological Impact Assessment

P02-1 site appraisal (daylight and sunlight)P02-3 sun path diagram of site elevation plan - sun impact

documents - Department for Education School Organisation Report to Cabinet 24 July 2015Report to Cabinet 8 December 2015

Reason: To ensure a satisfactory development.

Informatives

1) If the proposed development is to incorporate piling in the foundation detail, the developer is advised to consult with Sefton Council Pollution Control to obtain suitable guidance which is current at the time of its provision. This will reduce the chance of enforcement action which could occur if an unsuitable method of piling is chosen without appropriate consultation and which subsequently causes nuisance by way of noise and/or vibration.

2) The applicant is advised that all works to the adopted highway must be carried out by a Council approved contractor at the applicant's expense. Please contact the Highways Section on 0151 934 4175 for further information.

3) This development requires a Site Waste Management Plan. Advice on the requirements of the SWMP can be sought from the Principal Policy Officer, Merseyside Environmental Advisory Service, Merton House Stanley Road, Bootle. Tel 0151 934 4958

Existing Site Plan

Proposed Site Plan