Microsoft Word - Draft Brief 07 12 11.docDEVELOPMENT BRIEF
2. Site Information & Context 2.1 – 2.6 7 - 9
3. The Site 3.1 – 3.10 10 - 12
4. Planning Policy Context 4.1 – 4.9 13 - 15
5. The Issues For Consideration 5.1 – 5.26 16 - 24
6. Delivery 6.1 – 6.3 25
7. Environmental Assessment 7.1 26
8. Consultation & Referral To The London 8.1 27 Mayor & Secretary Of State
9. Other Consultation With Partners And 9.1 – 9.2 28 Stakeholders
10. Service Infrastructure 10.1 29
11. Contacts 11.1 – 11.7 30
Appendix 1 Planning History 32
Appendix 2 Planning Policy Synopsis A2.1 – A2.17 33 - 40
Appendix 3 Planning Requirements A3.1 – A3.5 41 - 42
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1 INTRODUCTION, SCOPE, STATUS & STRUCTURE
i. Introduction 1.1 This Development Brief has been produced by Shireconsulting for the
London Borough of Ealing (LBE), in its capacity as owner of the sports
ground known as Warren Farm in Southall.
1.2 Warren Farm is a strategic site in terms of sports provision in the
Borough, but the site has suffered from a lack of investment over a
prolonged period and it is no longer fulfilling its role as a suitable
location for community based sports. New investment is urgently
needed and LBE is seeking expressions of interest for the long lease
from potential development partners to deliver the finance necessary
to improve the facilities offered. Potential development partners will
be encouraged to suggest a facility mix which they consider could
provide a viable opportunity whilst ensuring full access for
community use over the majority of the site.
ii. Purpose and scope of the Brief 1.3 LBE is also the Local Planning Authority (LPA) for the site and the
following Brief provides informal planning guidance, including setting
out the planning policy context and an assessment of the constraints
and opportunities on the site. The Brief also provides some
development / design guidelines. However, even if a development
scheme conforms to the terms of this Brief, LBE’s decision-making
power as LPA cannot be fettered and any planning application at
Warren Farm will be treated in the same manner as if it were for
privately owned land.
1.4 LBE has “5 Priorities for the Borough”, which include;
• “Making Ealing Safer;
• Improving Public Services; &
• Delivering Value for Money”
and it is intended that the development of Warren Farm will meet
the terms of these 3 priorities.
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1.5 The Brief itself meets a number of aims:
• To provide a basis for the consideration of any future planning application(s) for the Warren Farm site.
• To help build a facility that is open, fair and inclusive for the whole community
• To work in partnership for the health and well-being of the community.
• To safeguard the environment.
• To ensure the Borough is a desirable place to live, work, learn and visit.
1.6 The new leisure facility has an important role in helping deliver these
corporate aims and priorities, and the LBE has set out the range and
type of facilities that it expects from this new development within the
“Invitation Document” included within the bidders’ document bundle.
The resultant development is expected to:
• be designed to the highest standards, incorporating green technologies, to reduce consumption of natural resources and respond to climate change;
• respond to the wider surrounding context and optimise opportunities for the leisure facility to remain part of the wider green infrastructure;
• encourage, where possible, sustainable travel choices, through optimising opportunities for walking, cycling and minimising car use; and
• encourage behavioural change towards more sustainable lifestyles through its design and purpose.
iii. The Status of the Brief 1.7 The principle of improving the recreational and leisure facilities at
Warren Farm have been consulted upon as part of the emerging
Core Strategy, and also forms a key strand in LBE’s Open Spaces
Strategy (see below in Section 4).
iv. Structure 1.8 The Development Brief is structured in the following way:
• Section 2.0 describes the context of the site; • Section 3.0 describes the site itself; • Section 4.0 provides an overview of the relevant planning policy
context; • Section 5.0 sets out the issues for consideration; • Section 6.0 is concerned with delivery of the development;
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• Section 7.0 covers the matter of Environmental Assessment; • Section 8.0 refers to the issue of consultation & referral to the
London Mayor & Secretary of State; • Section 9.0 deals with consultation with other partners and
stakeholders; • Section 10.0 covers existing site infrastructure provision; • Section 11.0 lists useful contacts within the Council and
elsewhere.
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2 SITE INFORMATION & CONTEXT
i. The Wider Area & Demographics 2.1 Warren Farm is within the administrative area of LBE, which is a
single-tier unitary authority that delivers all the main local
government services for the area. The Borough area had a
population of around 300,900 as at 2001. This was a rise of 5.7%
since the previous census in 1991 and the population is estimated to
have risen again by 3.5% by the time of the 2011 assessment. A
further rise is predicted by 2020 to a level some 7.2% above the
2001 level. It is calculated that the Borough has an average
population density of 54.2 persons to the hectare (considerably
above London’s overall average of 45.62 persons/ha). The
importance of open space for sport in a densely populated area, with
a growing population, is clear. The surrounding boroughs of
Hounslow and Hillingdon are also predicted to have significant rises
in their populations (11.4% and 12% respectively) over the 2001-
2021 period, putting further pressure on to existing facilities.
2.2 Appendix 2 to the emerging Ealing Core Strategy is entitled
“Neighbourhood Profiles” and No.8 concerns Southall. The area is
noted as being “in the south west of the borough………is the most
ethnically diverse area in the borough…..famous for its Asian culture
and has the largest Asian shopping centre in the capital. Southall
continues to be home to new communities – with more recent
migrants from Somalia, the Middle East and Europe. The area is
characterised by a relatively youthful population, lower rates of
economic activity, higher levels of overcrowded households and parts
of the neighbourhood have high relative levels of multiple
deprivation……..There is a particular shortage of open space in much
of the area, particularly in Southall West, Southall Green and
Southall Town Centre”. In future the Southall area is viewed as a
priority area for investment and opportunity and the facilities at the
‘strategically important’ Warren Farm are to be improved.
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2.3 Large parts of LBE’s area, including areas close to the subject site,
are amongst the 10% most deprived areas of the country. In
addition, in 2001, 41.3% of the population was non-white and Sport
England’s surveys of participation in sport show that Black Asian
Minority Ethnic groups are less likely to participate in physical
activity. Lack of participation in sport and high levels of deprivation
result in poor health outcomes.
ii. Transport Links 2.4 Road access to the main settlements in proximity to the subject
site is reasonable with Southall some 3 km away to the North West,
Ealing some 4½ Km away to the North east and Hounslow about 6
km to the south-west. The B454 (which at this point borders the
length of the subject site to the south-west and is known as Windmill
Lane), links the A4020 Uxbridge Road to the north of the site to the
strategic road network at the Great West Road (A4) about 3 km
south of the site. The M4 motorway is also close by, with junction 2
some 4½ km away being the nearest access to it. Heathrow is about
11 km away to the west (Figure 1 below shows the site in its West
London context).
2.5 Public transport in the vicinity is limited. Although the eastern
boundary of the site is formed by a railway line there is no access to
it for passengers and the nearest stations are Southall/Hanwell
(mainline) and Boston Manor (Piccadilly Line). None of these options
is within comfortable walking distance. There are no bus routes
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along Windmill Lane, the nearest stops being on the A4020
Uxbridge Road some 1½ km away. As at 2010 Transport for
London’s (TfL) plan of Public Transport Accessibility Levels (PTAL)
shows this part of the Borough as unclassified, reflecting its existing
limited public transport links.
2.6 There are some pedestrian links to the east of the site over the
railway and Grand Union Canal, the latter via a footbridge. There
are also cycle ways close by.
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3 THE SITE
3.1 The Site - The study area covers approximately 24.8 hectares and is
owned freehold by LBE.
3.2 The site is relatively flat with a gentle slope from north to south and
from west to east towards the canal. The land is mostly mown grass
and used as sports pitches for cricket (6 pitches), football (16 pitches)
and formerly netball (8 courts). On occasions some of the grassed
area, not in use for sports pitches, is utilised by a local society for
flying model aircraft.
3.3 There is a cluster of buildings (including changing rooms, a nursery
school and an LBE depot used by the Parks Services contractors)
within the centre of the site, which have an estimated footprint of
1,847m2. There is an internal access road from Windmill Lane to the
buildings at the centre. This road is surfaced with concrete, but is too
narrow for two vehicles to pass in opposite directions.
3.4 Most of the existing buildings are built of brick, are single storey and
in very poor condition. Those buildings are surrounded by
considerable areas of hardstanding used as car parking to serve the
buildings. The netball courts are no longer use for sport and serve as
overflow car parking. In total, the area covered by buildings and
hardstanding within the Council’s ownership (excluding the access
road) is estimated to amount to some 2 hectares.
3.5 There is a pair of privately owned semi-detached houses adjoining
the access road, which are outside the scope of the Warren Farm
Brief area.
3.6 There are few trees within the site, with the exceptions of a number
of specimens within and around the main building cluster and lining
part of the access road. There are more mature specimens to the
site’s edges and boundaries.
3.7 Boundaries - To its north the study area is adjoined by the sports
fields owned by Imperial College. Its southern boundary adjoins
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another area of open land which is bisected by the M4 from the
Wyke Green Golf Course. The eastern boundary is formed by a
railway line and the open land adjoining the Grand Union
Canal/River Brent, as well as the employment land known as the
Waterside Trading Estate. There is a pedestrian access point into the
Warren Farm sports fields over the canal/river as indicated on the
attached plan. The western boundary follows the alignment of
Windmill Lane (the B454) a single carriageway route which for some
of its length, the stretch between the site and the M4, is significantly
below the level of the Warren Farm sports pitches. On the opposite
side of Windmill Lane is the area of Osterley Park which is enclosed
by a high brick wall (the park and enclosing wall are listed Grade
II*). Aviary Farm is a substantial private house opposite the sports
pitch (see figure 2, the aerial photograph below) and is a locally
listed building. Three Bridges to the north of Windmill Lane is a
Scheduled Monument.
3.8 Existing Access to the Site - the current main access to the site
is via a gate off Windmill Lane. Visibility is restricted when exiting
the site back on to the road network, particularly due to the levels
and alignment of Windmill Lane at this point.
3.9 Brief History of the Site – The site and land was originally a
farm until the mid-1960s, when it was developed as the Warren
Farm Schools Sports Centre.
3.10 The Site’s planning history as established from LBE’s online database
is attached as Appendix 1 to this Brief. There is little history of
relevance to the overall site, the majority of the cases relate to the
semi-detached houses adjoining the access road.
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4 PLANNING POLICY CONTEXT
4.1 Any proposals for the site that require planning permission will
be considered in the context of National, Strategic and Local
planning policies. These policy documents are scheduled as
Appendix 2 to this Brief.
i. The Development Plan 4.2 The current ‘Development Plan’ for Ealing comprises The
London Plan (July 2011) and the ‘saved policies’ of the Ealing
Unitary Development Plan (UDP) 2004. The Ealing Core
Strategy being prepared under the Local Development
Framework (LDF) system is currently undergoing Public
Examination by a Planning Inspector. When adopted the Core
Strategy will form part of the ‘Development Plan’ but, by itself,
it will not supersede all of the policies in the UDP.
ii. Development Plan Allocations 4.3 In terms of site allocation within the UDP the Site itself
(together with the Imperial College Sports Ground) is
Metropolitan Open Land. The Osterley Park area has some
archaeological potential (including early field systems, possible
prehistoric barrows and Saxon finds) and designation “A23”
includes the subject land. The woodlands on Windmill Lane
adjoining the site are part of the “Long Wood/ Boundary
Stream Southall” Nature Conservation Site and Management
Area. Windmill Lane is shown as a “Main Distributor Road”.
The view from Warren Farm to St Thomas’s Church Boston
Road is considered “locally important”, as are the views from
Elthorne Park to Osterley Park, St Marks Conservation Area at
the junction with the canal and River Brent, and Three Bridges
to the Brent River Park. The Grand Union Canal and adjacent
railway are both “Green corridors” and the River Brent Park is
a “Site of Metropolitan Importance for Nature Conservation”
(SMINC). The Grand Union Canal is a Conservation Area.
Warren Farm is shown on UDP Map 11 (“Built Sports Facilities
with Community Access”) as being an “Area more than 1.2 km
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from sports hall” and an “Area more than 1.5 km from
swimming pool”.
iii. Relevant Development Plan Policy 4.4 The ‘Development Plan’ seeks to promote sustainable
development, encourage a high standard of design, protect the
natural environment and promote use of modes of transport
other than the private car. Generally, recreational use of
Metropolitan Open Land is supported by the ‘Development
Plan’ but ‘inappropriate development’ will be refused “except
in very special circumstances, giving the same level of
protection as in the Green Belt. Essential ancillary facilities for
appropriate uses will only be acceptable where they maintain
the openness of MOL” (Policy 7.17 The London Plan July 2011).
4.5 London Plan Policy 6.5 “Funding Crossrail and other
strategically important transport infrastructure” requires
contributions from most forms of planning application towards
the funding of Cross-rail by way of Community Infrastructure
Levy or CIL. At time of writing this Brief the draft Mayoral CIL
charging schedule is undergoing its public examination by an
Inspector, but if it is adopted in its current form, a rate of £35
per additional m2 of floorspace will be applied in Ealing.
iv. The emerging Core Strategy 4.6 The Key Diagram shows the subject site as “Green Space”.
Warren Farm is shown on the Proposals Map as a “strategic
site for sports and recreation” and the emerging plan states
that over the plan period it is envisaged that there will be
“improved changing rooms, outdoor sports areas and social
facilities” at the site. Development of the site is seen as being
key to helping to achieve many of the other social and
community objectives of the emerging plan.
v. Other Guidance & Evidence 4.7 In addition to planning policy, elements of Ealing Council’s
Supplementary Planning Guidance (SPG) and Supplementary
Planning Documents (SPD) will be relevant to the consideration
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such matters as accessibility, sustainable transport, planning
obligations and air quality.
4.8 There are a number of LBE strategies for the Borough’s parks
and open areas that have been brought forward in recent
years. These highlight the need for new investment and the
strategic role in sport and recreation provision played by
Warren Farm.
4.9 Also of potential relevance is LBE’s own CIL SPD which is in
preparation for possible adoption towards the end of 2012.
Like the Mayoral CIL above the levy will be set at a cost/£ per
square metre of new floorspace.
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5.1 The Warren Farm site provides an excellent opportunity to
create a thriving new community hub of sporting activity to
deliver health and well-being benefits to the entire local
community. It is important however, that the site is developed
appropriately in relation to its context. Therefore, this chapter
provides some guidance to help produce an inclusive,
sustainable and appropriate development scheme.
5.2 The various technical issues will need to be addressed by
appropriate specialists and developers will need to show that
they have qualified consultants on board who are used to
working as part of multi-disciplinary teams.
5.3 Metropolitan Open Land (MOL): The most fundamental
planning issue relating to the proposed development of any
leisure scheme on this land is its designation as MOL. For
development control purposes the implications of such status is
equivalent to Green Belt designation. Most forms of new
development are considered to be ‘inappropriate’ in such
locations although use for sports and recreation is acceptable.
New buildings can also be acceptable provided that they are
“essential facilities” genuinely needed to support the use of
land for sport and recreation. Where permitted new building
must preserve the openness of the land. For some forms of
development ‘very special circumstances’ (VSC) must be
demonstrated as a prerequisite to obtaining planning
permission. The need to enhance the provision at Warren Farm
to a level where it can fulfil its role as a strategic sports and
leisure facility could be part of the demonstration of such VSC.
5.4 There is already a cluster of buildings on the site surrounded
by extensive areas of hardstanding. Where possible any new
development should be focused within the envelope of the
existing built area. Careful siting of the scheme and other
attenuation measures, such as landscaping, will be key to
minimising the possible harm to the openness of the MOL.
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5.5 Floodlighting can also be a contentious issue, as it can be an
intrusive feature, particularly at night, to the open character of
the MOL. However, the lack of lighting currently is one factor
limiting use of the pitches and recent advances in technology
mean that the adverse effects of light over-spill can be
minimised. Nevertheless, the developer must justify the need
for such lighting and if required within the proposed business
model careful thought must be given to designing the
floodlighting scheme as part of the strategic landscape plan
for the entire site.
5.6 Loss of open space: The use of open space for the
provision of buildings and/or parking that is ancillary to the
recreational use of the site may be acceptable in terms of
Government policy provided that improved facilities result, or if
it is replaced elsewhere. There is no local deficiency in the
quantity of open space and the need is for improved quality of
provision.
5.7 Loss of Community Facilities: The developer will need to
show that the future of the nursery has been considered. The
‘Development Plan’ policy is to resist the loss of community
facilities. To set aside this policy, the other community benefits
arising from the scheme should override the loss of the
nursery. Consideration should be given to re-providing the
nursery in a more accessible location.
5.8 Transportation (including access, circulation within
the site, and location of trip-generating
development): The layout of any new development should
segregate pedestrian and vehicular movement to allow
pedestrians and cyclists to use the core areas in safety and
comfort. Car parks are to be located within the area currently
covered with hardstanding, close to the existing cluster of built
development.
5.9 The site access on to Windmill Lane needs to be improved,
particularly the visibility to the northbound carriageway when
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rejoining the road. There should be scope to address this
matter within the confines of the site, through such measures
as widening visibility splays (although see below regarding bio-
diversity). The design of the proposed junction should be
assessed by the appropriate consultant. The emphasis should
be upon the creation of a safe well-designed arrangement that
is able to cater for the leisure development’s traffic and as part
of the proposals for improved access and safety it will be
necessary to improve existing, or provide new, sections of
footway along the Windmill Lane frontage.
5.10 There is also to be an emphasis upon social inclusion for the
improved sports facility and so full provision of parking to
disability standard will be required (currently under the terms
of UDP policy, 1 space per 60 sq. m. of changing room
floorspace). Reference should also be had to Sport England’s
2010 document “Accessible Sports Facilities”.
5.11 More generally, in relation to vehicle parking, there should be
provision for coaches and mini-buses. The extent of car parking
should be limited so as to retain the open character of the
MOL and encourage car sharing and other sustainable modes
to access the site.
development in PPS4 seeks a positive attitude towards all
proposals that generate wealth and investment or create
employment, the locational preference for new investment is
usually existing urban areas, particularly central areas, but
always where the use is accessible by a variety of transport
mode. The subject site has a very low assessment in relation to
public transport accessibility and normally would not be
considered as suitable for many activities that generate trips.
However, the Council understands that in order to provide a
strategic level facility some additional land use may have to be
accepted and access to this might require use of private cars.
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A Green Travel Plan (GTP) should be produced to demonstrate
how opportunities for sustainable travel patterns have been
optimised through such measures as promoting car sharing;
the use of coaches and minibuses; strengthening pedestrian
linkages across the canal; assisting with completing the
network of cycleways; and through the provision of secure cycle
parking.
5.13 Linked with the above is the matter of traffic generation. The
site already generates trips throughout the day, to the sports
pitches, nursery and Council depot. The weak bridge over the
canal at the north of the site is a limiting factor for traffic
travelling from Southall Town centre and the scope to improve
matters are probably proscribed by its Scheduled Monument
status.
will be enhanced by creating distinctiveness in the design of
the buildings and the landscaping of the site. We have already
commented upon the need to design the scheme so as to
minimise any harm to the openness of the MOL. None of the
existing structures on the site are of any architectural merit
and all can be replaced. However, any new buildings should be
designed to a very high standard, meeting exacting BREAMM
standards. Building heights should be kept low – generally no
more than two storeys in height to protect the open character
of the MOL, local views and prevent harm to the nearby
conservation area. The new, or amended, access road to the
built elements of the scheme from Windmill Lane should be
landscaped to provide an attractive entranceway.
5.15 Buildings should incorporate elements of sustainable design
such as energy saving/generating measures as an integral part
of their design and the matter should specifically feature in a
section of the Design & Access Statement which will
accompany any application for planning permission. Localised
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parks, swales and soakways, will be expected to be used
wherever possible in order to make sure that run-off is
attenuated and dealt with as close as possible to the source.
Subject to further consultation with the Environment Agency,
attenuation may also be required in the form of flood storage
reservoirs.
5.16 The leisure facilities are intended to benefit the entire
community and protecting the amenities of any nearby
residents (such as Aviary Farm) will be vital to the success of
the scheme in gaining public support. Again, use of
landscaping of high quality will assist in mitigating the effect
upon amenity (see mention above regarding the proposed
access and also the specific section below on ‘Landscaping &
Trees’). The methods that can be employed to minimise light
over-spill, mentioned above in context of the MOL, will also be
of benefit to nearby residents. The designers will also need to
consider the effects on amenity arising from noise from users
and spectators of the outdoor pitches. Acoustic consultants will
be needed to report further on this issue.
5.17 Landscape & Trees: The site currently benefits from some
strong tree lined boundaries which would help ameliorate any
visual impact. As it is LBE owned land and Tree Preservation
Orders (TPOs) are not served by the Council upon itself, none
of the trees is subject to a TPO. However, should the land be
sold TPOs may be used to protect important specimens. A tree
survey will be needed to determine the condition of the existing
trees and contribution they make to the visual amenity of the
area and nature conservation. The arboricultural assessment
should be used to determine which trees should be retained
and incorporated into the site layout and protected during any
development and demolition on the site. There is an
opportunity for the site to create ‘green infrastructure’ through
increased tree planting which will help to contribute to the
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regenerating the environment, improving bio-diversity and
increasing opportunities for sport and recreation and
improving access to the countryside. Native species of trees
and vegetation should be encouraged.
5.18 Bio-diversity & Ecology: a Stage 1 ecological survey will be
essential to the evidence base for the application and must be
carried out. The existing buildings may serve as roost sites for
bats. Elsewhere, because the majority of the land is currently
highly managed as sports pitches, or covered by hardstanding,
it is possible that its bio-diversity will not be as high as it might
be, bearing in mind the close proximity of ‘green corridors’ and
other areas of nature conservation interest. There should be
scope to enhance the contribution of the site to local bio-
diversity through new planting at its margins and, as part of
the layout of the site, the developer will be expected to
produce a whole-site Ecological Management Plan (to include
both management and monitoring) where appropriate to be
implemented post development to maintain and enhance the
ecological interest on site.
5.19 Landscape, Trees & Visual Impact: Bearing in mind the
open undeveloped nature of much of the site within the MOL
and the proximity of important local views, landscaping is
going to be crucial to the success of the scheme both in terms
of securing permission, and also for physically integrating the
development into the locality. The scheme should sit within a
structured landscaping scheme and there is scope to create a
tree-lined avenue to the new facility. The Council also require
detail as to species type contemplated as part of any
replanting. As noted the replanting with native species could
be a major opportunity for environmental improvement and a
contribution to local bio-diversity, particularly along the site
boundaries to the river/canal and along Windmill Lane. None
of the trees on the site are presently the subject of TPOs. There
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are some small trees within the built up part of the site, but
towards the margins of the site there are specimens of
considerable size and age. An Arboricultural Implications
Assessment (AIE) should be conducted in accordance with the
“British Standard 5837 2005 Trees in relation to construction –
Recommendations”. The AIE should include identification and
assessment of the impacts on any hedgerows, mature or
veteran trees or ancient woodland remnants on site and it
should be conducted by qualified arboricultural consultants.
Woodland management plans should be prepared by
professional forestry/woodland management consultants if
required.
5.20 Flooding & Hydrology: Although the site is not shown
upon the Environment Agency’s (EA) Flood Risk map as being
within an area with a “medium” or “high” probability for flood
(either Zones 2 & 3), the Environment Agency requires all
development on sites over 1 hectare in area to be
accompanied by a Flood Risk Assessment (FRA) anyway.
Certain activities (including sports and recreation) are classified
as being more compatible to locations that are vulnerable to
flooding than others (e.g. residential). We recommend that
there is early dialogue between the hydrological engineering
consultant and the EA upon the content of the FRA, as PPS25
also recommends, so that the formal consultation process can
be expedited once any application is made.
5.21 Heritage & Archaeology: The site has archaeological
potential and it will therefore be necessary for further
development to be preceded by appropriate archaeological
investigation as Government planning policy for the historic
environment (PPS5) recommends. Early stage liaison with
English Heritage’s archaeologist is recommended to ensure
that any further features can be appropriately recorded.
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5.22 There are no designated features, such as Scheduled
Monuments or Listed Buildings within the site. The enclosing
wall on the opposite side of Windmill Lane is part of Osterley
Park (which is itself scheduled on the English Heritage Register
of Parks and Gardens) and is Grade II* listed. ‘Three Bridges’ is
a Scheduled Monument and Aviary Farm opposite is locally
listed. Thus, in addition to the research upon archaeological
matters, the application will also need to be accompanied by a
full Historic Environment Assessment, which considers the
impact of any proposal upon the setting of those structures.
5.23 Residential Amenity: The matter of noise breakout should
not be an overriding constraint to development, bearing in
mind the existing use as sports pitches. The addition of
floodlighting will extend the hours of use, but there are no
concentrations of housing close to the developed portion of the
site. There are however isolated houses within the Warren
Farm area (such as those adjoining the access road), and so
the design must include measures to attenuate any noise
arising from the proposal and to shield light from floodlights or
any other lighting provided within the site.
5.24 Air Quality: the entire Borough is an Air Quality
Management Area and the site is close to the M4. An air
quality statement should be included with any application for
development that is likely to increase trip generation upon the
local road network; is over a certain size threshold; and/or
significantly increases the car parking provision. The
improvements to walking and cycling in any Green Travel Plan,
as well as the promotion of renewable energy generation,
should assist with meeting the Council’s objective of improving
air quality.
5.25 There may also be air quality issues arising from the emissions
of pollutants from HGV movements on- and off-site. These
effects could be minimised by using standard dust mitigation
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with the Highways Authority.
5.26 Land remediation: it is possible that hydrocarbons and
other chemicals may have been stored at the Council’s depot
in the past. An assessment of the site for contamination should
be included with any application submission.
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6 DELIVERY
6.1 Warren Farm is seen by LBE as a strategic site in relation to
the provision of sport and recreation in the Borough and
delivering enhanced facilities here has long been a Council
priority.
6.2 The basis of the transaction with LBE and similar matters is
covered within the “Instructions Document” which forms a key
part of the bidders’ document bundle.
6.3 Attached as Appendix 3 to this Brief is a document which
considers the matter of planning obligations and conditions.
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depending upon the scale, nature and potential impact of the
development. A screening opinion should be obtained from the
LPA once a scheme has been prepared.
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8 CONSULTATION & REFERRAL TO THE LONDON MAYOR & SECRETARY OF STATE
8.1 There are some statutory requirements that the project would
have to address even if it does not require formal
Environmental Impact Assessment, before the Borough could
grant planning permission for the form of development
proposed.
• Initial referral to the London Mayor under the
terms of The Town and Country Planning (Mayor
of London) Order 2008 and Circular 1/2008. This
would be likely to be a Part 3 project as indicated
within the schedule to the Statutory Instrument
2008 No. 580.
• The matter may also need to be referred to the
Secretary of State if the Council is minded to grant
permission (see the Town and Country Planning
(Consultation) (England) Direction, 2009 and
accompanying Circular 02/2009). In certain
circumstances referral to the Secretary of State is
a mandatory requirement, for instance in respect
of new buildings of more than 5,000m2 to be
used for ‘town centre uses’ when situated in out of
centre locations. In such cases if the Council were
minded to grant permission, details of the
planning application would need to be sent to the
Secretary of State, who would then have 21 days
to consider whether he wishes to call in the
application for his determination.
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9.1 Support from key stakeholders (such as Sport England, the
relevant sports governing bodies and any other local sports
clubs and organisation) as well as the wider public is going to
be key to demonstrating an overriding need for new and
improved leisure facilities at Warren Farm. Consultation with
partners, the community and other local stakeholders is
essential to arrive at a design solution which people can
understand and support.
9.2 The Development Brief sets out the vision for the site and an
opportunity will be provided to enable consultees and the
general public to make their views known in order to guide
and influence the detailed design for the site, once the nature
of the intended proposals has emerged.
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10 SERVICE INFRASTRUCTURE
10.1 All mains services are available on the site and detailed
discussions with the utility providers should be undertaken by
the development partner with regard to programming and the
potential upgrade of the existing infrastructure. Due to its age,
condition and likely capacity, the existing configuration of
service infrastructure within the site may not be suitable for the
needs of modern users. Accordingly, the renewal of the entire
internal gas, electricity, water supply and drainage system
should be also be investigated by the development partner.
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P/1993/0965 Warren Farm Sports Centre Windmill Lane
Use of site for Sunday car sale market for approximately 60 cars Neighbour notification
Refused 18/05/1993
P/1993/1879 Warren Farm Sports Centre Windmill Lane
Change of use of service tenanted properties to single family dwellinghouses
Grant With Conditions 15/12/1993
P/1995/2352 2 & 3 Warren Farm Sports Centre Windmill Lane Southall Middlesex
Change of use of service tenanted properties to single family dwellinghouses (Revised Application)
Deemed Consent 17/01/1996
P/1996/1616 Warren Farm Playing Fields Windmill Lane
Use of part of playing fields to fly radio controlled model aircraft.
Grant With Conditions 23/10/1996
P/1997/3088 2 Warren Farm Sports Centre Windmill Lane Southall Middlesex
Erection of single storey extension to side of dwellinghouse (written representations appeal).
Refused
P/1997/2285 Pavilions & Playing Fields Warren Farm Sports Centre Windmill Lane Southall Middlesex
Use of part of playing fields to fly radio controlled model aircraft granted 24/10/96 (Ref 19566/4) (Renewal of temporary planning permission)
Grant With Conditions 15/09/1997
P/1998/1480 2 Warren Farm Sports Centre Windmill Lane Southall Middlesex
Erection of single storey extension to side of dwellinghouse Grant With Conditions 21/07/1998
P/1999/0669 2 Warren Farm Windmill Lane Erection of single storey extension rear of dwellinghouse (Lawful Development certificate)
Refused 18/05/1999
P/1999/1192 2 Warren Farm Windmill Lane Erection of single storey extension rear of dwellinghouse (Lawful Development Certificate)
Permitted Development 04/05/1999
P/2007/1577 2 Warren Farm Windmill Lane Southall
Single storey side extension to the side facing flank wall of an existing single storey side extension
Grant With Conditions 21/05/2007
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Appendix 2 Planning Policy Background
i. National Context A2.1 Government Planning Policy that may be relevant to proposals for the site includes:
PPS1 Delivering Sustainable Development (January 2005) PPS4 Planning for Sustainable Economic Growth (December 2009); PPS5 Planning for the Historic Environment (March 2010) PPS9 Biodiversity and Geological Conservation (August 2005) PPG13 Transport (January 2011) PPG17 Planning for Open Space, Sport and Recreation (July 2002) PPS22 Renewable Energy (August 2004) PPS23 Planning and Pollution Control (November 2004) PPG24 Planning and Noise (September 1994) PPS25 Development and Flood Risk (March 2010)
ii. Strategic & Local Policy A2.2 The Development Plan for Ealing comprises The London Plan (July 2011) and the ‘saved policies’ of the Ealing Unitary Development Plan (UDP) 2004. The Ealing Core
Strategy being prepared under the Local Development Framework system is currently at an advanced stage. When adopted, it will replace some of the policies of the UDP.
Details of the Site’s allocation is set out at paragraphs 4.2 & 4.3 above.
a. The London Plan A2.3 The London Plan provides the strategic level of planning policy for the Borough. Ealing Borough is within the defined “Outer London” and in the “West London Sub-region”.
Policies relevant to any proposals for this site might include:
Policy 1.1 Delivering The Strategic Vision And Objectives For London Policy 2.6 Outer London: Vision And Strategy
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Policy 2.7 Outer London: Economy Policy 2.8 Outer London: Transport Policy 2.18 Green Infrastructure: The Network Of Open And Green Spaces Policy 3.1 Ensuring Equal Life Chances For All Policy 3.2 Improving Health And Addressing Health Inequalities Policy 3.6 Children And Young People’s Play And Informal Recreation Facilities Policy 3.16 Protection And Enhancement Of Social Infrastructure Policy 3.19 Sports Facilities Policy 4.6 Support For And Enhancement Of Arts, Culture , Sport And Entertainment Provision Policy 5.2 Minimising Carbon Dioxide Emissions Policy 5.3 Sustainable Design And Construction Policy 5.6 Decentralised Energy In Development Proposals Policy 5.7 Renewable Energy Policy 5.8 Innovative Energy Technologies Policy 5.9 Overheating And Cooling Policy 5.10 Urban Greening Policy 5.11 Green Roofs And Development Site Environs Policy 5.12 Flood Risk Management Policy 5.13 Sustainable Drainage Policy 5.14 Water Quality And Wastewater Infrastructure Policy 5.15 Water Use And Supplies Policy 5.16 Waste Self-sufficiency Policy 5.18 Construction, Excavation And Demolition Waste Policy 5.21 Contaminated Land Policy 6.1 Strategic Approach Policy 6.3 Assessing Effects Of Development On Transport Capacity Policy 6.5 Funding Crossrail And Other Strategically Important Transport Infrastructure Policy 6.9 Cycling Policy 6.10 Walking Policy 6.13 Parking
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Policy 7.1 Building London’s Neighbourhoods And Communities Policy 7.2 An Inclusive Environment Policy 7.3 Designing Out Crime Policy 7.4 Local Character Policy 7.5 Public Realm Policy 7.6 Architecture Policy 7.8 Heritage Assets And Archaeology Policy 7.13 Safety, Security And Resilience To Emergency Policy 7.14 Improving Air Quality Policy 7.15 Reducing Noise And Enhancing Soundscapes Policy 7.17 Metropolitan Open Land Policy 7.18 Protecting Local Open Space And Addressing Local Deficiency Policy 7.19 Biodiversity And Access To Nature Policy 7.21 Trees And Woodlands Policy 8.2 Planning Obligations Policy 8.3 Community Infrastructure Levy
b. Ealing Unitary Development Plan A2.4 Most of the Part 1 policies were not saved in 2007 and have been replaced by the London Plan (see above). The remaining Part 1 Strategic Policy remaining of relevance to
this case is:
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A2.5 Part 2 policies of the UDP relevant to the site and its surroundings might include:
Policy 2.1 Environmental Resources and Waste Policy 2.5 Water - Drainage, Flood Prevention and Environment Policy 2.6 Air Pollution and Quality Policy 2.7 Contaminated Land Policy 2.9 Energy Policy 2.10 Waste Minimisation and Management Policy 3.1 Major Open Areas (MOAs) – Metropolitan Open Land and Green Belt Policy 3.2 Green Corridors and Waterway Network Policy 3.3 Heritage Land Policy 3.4 Public and Community Open Space Policy 3.5 Land for Sports, Children’s Play and Informal Recreation Policy 3.8 Biodiversity and Nature Conservation Policy 3.9 Wildlife Protection Policy 4.1 Design of Development Policy 4.3 Inclusive Design - Access for All Policy 4.4. Community Safety Policy 4.5 Landscaping, Tree Protection and Planting Policy 4.6 Statutory Listed Buildings Policy 4.7 Locally Listed Buildings, Buildings with Facade Value, and Incidental features Policy 4.8 Conservation Areas Policy 4.9 Ancient Monuments and Archaeological Interest Areas Policy 4.11 Noise and Vibration Policy 4.12 Light Pollution Policy 8.1 Existing Community Facilities Policy 8.2 Major Developments and Community Facilities Policy 8.3 Redundant Community Facilities Policy 8.4 Large Scale Community Facility Development Policy 8.6 Facilities for Young Children
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Policy 8.7 Educational Facilities Policy 9.1 Development, Access and Parking Policy 9.5 Walking and Streetscape Policy 9.6 Cycling Policy 9.7 Accessible Transport Policy 9.9 Highways and Traffic Management Policy 9.11 Public Car Parks and Private (non-residential) Parking Areas
c. Ealing Core Strategy (at Examination 2011) A2.6 When adopted the Core Strategy will form part of the Development Plan but, by itself, it will not supersede all of the policies in the UDP. However, as it is currently
undergoing Public Examination by a Planning Inspector, it is at an advanced stage and its policies will therefore carry weight in decisions on applications for planning
permission.
A2.7 The Key Diagram shows the subject site as “Green Space”. Warren Farm is shown on the Proposals Map as a “strategic site for sports and recreation” and the emerging
plan states that over the plan period it is envisaged that there will be “improved changing rooms, outdoor sports areas and social facilities” at the site.
A2.8 Its development will be key to achieving the Council’s action plan to “address deficiency in terms of physical access, quantity of provision, and in terms of quality of
facilities. As a tool for alleviating deficiency, this strategy identifies a hierarchy of sites in the borough for sports and active recreation, defining sites of strategic and local
importance and distinguishing between sites of single and multi sports use”.
A2.9 These strategic sites are noted as comprising “a number of pitches, and accommodate a range of sports, often used by a significant number of organisations and clubs.
These sites will be primarily safeguarded and protected for outdoor sports related activities”. However, it is accepted that “some ancillary development on these sites may
be necessary and desirable to enhance the primary active recreation function of these Sites”. Amongst the elements identified as being needed at Warren Farm are
“improved changing rooms, outdoor sports areas and social facilities”.
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A2.10 The policies of the emerging Core Strategy relevant to the site and its surroundings might include:
Policy 1.1 Spatial Vision for Ealing 2026 Policy 1.2 Delivery of the Vision for Ealing 2026 Policy 5.2 Protect and Enhance Metropolitan Open Land (MOL) Policy 5.3 Protect and Enhance Green Corridors Policy 5.4 Protect the Natural Environment – Biodiversity and Geodiversity Policy 5.5 Promoting Parks, Local Green Space and Addressing Deficiency Policy 5.6 Outdoor Sports and Recreation Policy 6.2 Social Infrastructure Policy 6.3 Green Infrastructure Policy 6.4 Planning Obligations and Legal Agreements
d. Other Guidance A2.11 In addition to planning policy, elements of Ealing Council’s Supplementary Planning Guidance (SPG) and Supplementary Planning Documents (SPD) may be relevant. These
include:
SPG1 Sustainability Checklist (revised April 2011) SPD2 Community Facilities (June 2006) SPG 4 Refuse and recycling facilities (October 2004) SPG 5 How To Prepare An Urban Design Statement (October 2004) SPG7 Accessible Ealing (October 2004) SPG8 Safer Ealing (October 2004) SPG9 Trees and Development Guidelines (October 2004) SPG10 Noise and Vibration (October 2004) SPG 20 Sustainable transport: transport assessments (October 2004) SPG 21 Sustainable transport: green travel plans (October 2004)
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A2.12 Some regard may also need to be had to:
Draft SPG 2 Water, Drainage, Flood Risk and Development Draft SPG 3 Air Quality and Pollution SPD9 Legal Agreements, Planning Obligations and Planning Gain (draft – published September 2007) SPD10 Conservation Areas and Listed Buildings (draft – published September 2007) Draft CIL SPD Work on this is on-going and is to continue throughout 2012
d. Evidence Base A2.13 Ealing’s Sustainable Community Strategy 2006-2016 sets out its “Themes and Key goals for 2016”. Many of these themes are relevant in this case and increased
participation in sport and recreation is seen as key to attaining a number of these objectives:
Environment and Culture Make Ealing a better place to live Safety Make Ealing one of the safest places in London Children and young people Create a great place for every child and young person to grow up in Ealing Health and Independence Reduce health inequalities and promote well-being and independence for adults and older people in Ealing Economy and Housing Ensure Ealing is a thriving place to live and work Residents First Provide efficient, well-run services that are good value for money; promote a cohesive and engaged community;
reduce inequalities and balance community interests
A2.14 Parks and Open Spaces Strategy 2003 – 2008 (2002) - Section 9.1 noted that the Borough’s parks have in the recent past suffered from under investment and
many of them were much in need of infrastructural investment. However, it was also acknowledged in Section 9.1 that “infinite funds are not available” and new means of
funding other than LBE sources would have to be explored. Paragraph 9.2.10 identified Warren Farm as a “Potential Sports Centre of excellence…the intention is to reduce
the overall number of parks providing poor quality sports facilities and concentrate efforts into good quality facilities in strategically located sites which can be run
sustainably”.
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A2.15 Playing Pitch And Outdoor Sports Strategy & Action Plan (August 2007) – this document set out a strategy for the provision of facilities for various sports
across the Borough. In relation to football at Warren Farm the Strategy notes that it is a “well-used site”, which was to be maintained “as the main multi-pitch site in the
Borough”.
A2.16 Emerging Ealing Green Space Strategy 2012-2022 (August 2011) – consultation upon this document ended on the 14th November 2011. Once adopted this
Strategy is intended to replace the 2003 Strategy above. The emerging Strategy notes that “buildings in parks are generally in poor condition and the cost of maintenance
is extremely high. The Council has been dealing with this in a variety of ways including: demolishing buildings beyond practical use and renovation; and regularising leases
and new letting wherever possible to private service suppliers or community uses with full repairing conditions. The buildings still under direct council control are in variable
condition and quality of management. Work should continue to engage income streams from these assets”.
A2.17 Warren Farm is one of ten sites to be given the “highest priority for improvement” in the future (paragraph 4.15). “Existing resources will be targeted at improving the
changing rooms and ancillary facilities at multi sport multi pitch sites to comply with league standards, particularly Warren Farm Sports Ground and Perivale Park” (page
68).
Planning Requirements i. Planning Obligations
A3.1 LBE has published a Background Paper on Planning Obligations. The Background Paper has been prepared in the context of the UDP and explains the Council’s planning
policy for seeking and implementing planning obligations.
A3.2 The Community Infrastructure Levy (CIL) Regulations 2010 (SI 2010 No. 948) as amended, lays down tests that must be met when planning obligations are sought (the
tests are a variation of the five tests contained in Circular 05/2005 on ‘Planning Obligations’). According to Section 122 of the CIL Regulations, such obligations must be:
• “necessary to make the development acceptable in planning terms;
• directly related to the development; and
• fairly and reasonably related in scale and kind to the development”.
A3.3 By 2012 it is likely that contributions towards the Mayoral (Cross-rail) CIL will be required as well as to LBE’s CIL charging schedule.
A3.4 Where a condition could be used to secure the same end as a legal agreement, in accordance with the policy tests of Circular 11/95 (“The Use of Conditions in Planning
Permissions”), then the Local Authority should use conditions rather than a planning obligation. The type of situations where the Local Planning Authority may seek a
planning obligation could include the following:
• Community use of the sports grounds and ancillary facilities. As part of the planning agreement there will be a management strategy setting out such matters as the times when available to the public, costs to hire etc.
• Off-site highway works (including works associated with traffic diverted as a result of the stopping up of a highway and improvements relating to walking and cycling). N.B. A Section 278 agreement will also be required;
• Any necessary service infrastructure improvements (e.g. in relation to sewage disposal, reinforcement of water supply, etc), until adoption of the CIL schedule.
• Replacement, or re-provision elsewhere, of any necessary existing community facilities, such as the nursery;
• Long-term management of landscaping;
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ii. Planning Conditions A3.5 Other matters, as listed below, could be dealt with by planning conditions.
• The details of the siting, design, external appearance of the buildings on the site;
• Any outstanding details of the means of access to the site, including retention (?) of visibility splays;
• Details of the routeing and management of construction traffic;
• Parking within the site for coaches, minibuses, cars and for the disabled;
• Green Transport Plan (this may be dealt with as a planning obligation, see above);
• Details of landscaping of the site;
• Provision of open space and recreational and sports facilities;
• Drainage details;
• Ecological measures, including any relocation (if outside the site this could involve a planning obligation);
• Any necessary archaeological survey prior to development;
• Waste storage and recycling facilities;
• Details of remediation of contamination on the site;