HERTFORDSHIRE COUNTY COUNCIL
DEVELOPMENT CONTROL COMMITTEE
MONDAY 20 JULY 2009 AT 10.00 AM
Agenda No.
2
HERTSMERE BOROUGH
APPLICATION FOR A FLOODLIT MULTI USE GAMES AREA (MUGA) AT
HERTSWOOD LOWER SCHOOL, COWLEY HILL, BOREHAMWOOD
Report of the Director of Environment and Commercial Services
Author:
Debbie Taylor
Tel: 01992 556220
Local Member: John Usher
Adjoining Members: Morris Bright and Martin Heywood
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Purpose of Report
To consider planning application ref. 0/0750-09 for a floodlit Multi-Use Games
Area (MUGA) at Hertswood Lower School, Cowley Hill, Borehamwood,
Hertfordshire.
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2.1
Summary
The application site is within the Green Belt in the north east area of
Borehamwood. The floodlit pitch can be accessed from the school via Cowley
Hill or from the sports centre via Potters Lane.
2.2
Currently, Hertswood School has two football pitches, one in the north of the
school campus and the other to the south, where the proposed MUGA is
located. Between October and April, the school has only about 60% available
usage of its playing fields due to the water logging of this area and, even if
remedial drainage measures were to be applied to this area, the natural grass
would not be able to sustain the level of activity required for school use. Due
to the restricted use of this pitch, there is a detrimental impact upon the
physical education for the students at this school.
2.3
This planning application seeks permission to resolve the drainage problem by
creating a MUGA with artificial turf; this would provide a facility for football
(both 11 and 5-a-side) and hockey. It would be beneficial for the school to
have an all weather pitch to meet its curriculum needs and it would offer
community use for this facility for out of school hours.
2.4
The proposals also include 3m fencing around the pitch, with a 4m high fence
behind each of the main goals, together with enclosures at the end goals for
the storage of sports equipment. There would be 8 octagonal galvanised steel
lighting columns, which would be 12m in height and for maintenance they
could be raised or lowered; they would be fitted with ultra low glare asymmetric
beam floodlights to ensure that the glare and light spillage of the luminescence
would be kept to the minimum.
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Conclusion
3.1
The proposal is within the Green Belt and this development is regarded as
appropriate development as it has been demonstrated that the proposed
MUGA does not harm the openness of the Green Belt and there is an
educational and recreational need for this sport facility. Nevertheless the
application should be referred to the Secretary of State in accordance with
departure procedures, as set out in the Town and Country Planning
(Consultation)(England) Direction 2009.
3.2
It is also considered that the floodlighting is necessary to extend the use of this
MUGA for use for the school and local community; the glare and light spillage
has been minimised to ensure minimal visual impact upon the local residents
and reduce the potential light pollution.
3.3
The report therefore concludes that the Director of Environment and
Commercial Services should be authorised to grant planning permission
(subject to the application being referred to the Secretary of State and his not
wishing to call the application in) for the floodlit Multi Use Games Area (MUGA)
At Hertswood Lower School, Cowley Hill, Borehamwood, Hertfordshire, subject
to conditions to include:
a)
b)
c)
d)
e)
f)
g)
h)
i)
j)
k)
l)
m)
n)
Time limit for commencement;
Hours of construction, working and deliveries;
Contractor parking, access and compound area;
Wheel/chassis cleaning;
Car parking and access to be completed as per details submitted before
MUGA comes into use;
Lighting to be installed as per details submitted;
Tree/hedge protection scheme;
Revised landscaping details;
Details of a Wildlife Area;
Hours of use of the MUGA;
Community Use Agreement;
Details of the management plan for the MUGA;
School Travel Plan
Surface water run-off.
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Description of the site and proposed development
4.1
The application site is located in the north eastern area of the town of
Borehamwood, bounded by medium density residential areas on Cowley Hill,
on its western boundary, and Potters Lane, on its southern boundary, with
open land beyond the other two boundaries. The site lies within the Green
Belt.
4.2
The school buildings are sited in the central area of the school campus. There
are playing fields in the north and shared sports facilities, with the local
community, to the southern area of the site. The Hertswood Sports Centre is
located in the south west area of the campus.
4.3
The school currently has 1289 pupils (11 to 19 year olds) of which 628 are
based in the Lower School and 661 are based in the Upper School. There are
93 teaching staff and 40 supporting staff.
4.4
This planning application seeks permission to construct a floodlit Multi-Use
Games Area (MUGA) using green artificial astro turf. The pitch would be large
enough to enable full size football/hockey pitches to be marked out, and it
would also be able to be divided up into three five-a-side football areas. The
pitch enclosure would be formed by a 3-metre high black powder coated mesh
fence, with the same fencing but 4m high behind each of the main goals,
together with enclosures at the end goals for the storage of sports equipment.
4.5
There would be 8 octagonal galvanised steel lighting columns, which would be
12m in height (revised from the original proposal of 14m) and for maintenance
they could be raised or lowered; they would be fitted with ultra low glare
asymmetric beam floodlights to ensure that the glare and light spillage of the
luminescence would be kept to the minimum with no direct upward waste light.
The lamps used would produce a ‘white light’ and a colour-rendering spectrum,
which is ideal for sports activities.
4.6
The current pitch is on sloping ground and the construction of the MUGA would
result in a level pitch and excess excavated top and sub soil; it is proposed to
use this to create a landscaped mound and a landscaping scheme has been
submitted as part of this application.
4.7
Other locations were considered for the MUGA, within the school campus,
which included the top playing field to the north and an area further to the east
of the proposed location. The first option was discounted because of the
overhead power cables and the long distance from the changing rooms in the
Hertswood Sports Centre, whereas the second option was also ruled out
because it was not in close proximity of the same changing facilities.
4.8
It is proposed that the MUGA would be used by the school from 9am to 5.15pm
and by the community 5.30 to 9pm weekdays; at weekends it would be used
10am to 8.30pm by the community.
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4.9
Planning History
There has been one previous planning application for this site for major
developments; this included the erection of a new music/drama block with six
additional classrooms, a separate classroom extension and other extensions,
providing additional accommodation for food technology, dining room, office
and other administrative areas, with associated car, coach parking and cycle
facilities [Ref no: - 0/0783-99 (CC0272)], which was granted on 2 February
2000.
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5.1
Consultations
Hertsmere Borough Council - this application was discussed at the Potters
Bar/Shenley Committee on 11 June 2009 and no objections were made,
although the Borough commented as follows:
 A car parking management scheme would be preferred. The possible use
of existing parking to the north of the school site and some of the playing
fields to the eastern end of the site for additional parking areas for larger
events could be considered.
 The landscaping scheme be improved and extended further along the
boundary with Potter Lane.
 Insufficient information has been provided with respect to the proposed
security fence between the school and proposed multi-use games area
and with respect to security of the site.
 The hours of use for the facility should make provision for Bank Holidays.
 A detailed scheme for community use by local clubs should be
implemented.
5.2
Sport England does not object subject to one condition:Prior to the completion (or operation) of the development, a Community Use
Scheme shall be submitted to and approved in writing by the Local Planning
Authority in consultation with Sport England. The Scheme shall include details
of pricing policy, hours of use, access by non-school users/non-members,
management responsibilities and include a mechanism for review. The
approved Scheme shall be implemented upon commencement of use of the
development.
Reason: To secure well managed safe community access to the sports facility
and to ensure sufficient benefit to the development of sport.
The consultation response also pointed out that there is only one other floodlit
all weather pitch in Borehamwood, at Borehamwood FC, and the proposed
facility would therefore provide a new facility that would meet community needs
although the surface of the pitch would be similar to the pitch at Borehamwood
FC; they also commented that a third generation rubber crumb (3G) pitch as
proposed in the planning application is unsuitable for competitive hockey.
On 18 June 2009, after further consultation, Sport England is now satisfied that
the proposed Tiger Turf Challenger 3G pitch is suitable for competitive hockey.
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5.3
Hertfordshire County Council as Highway Authority does not wish to restrict the
grant of permission subject to the following conditions:1) Within six months of the grant of planning permission a School Travel Plan
shall be prepared and implemented in full throughout the life of the school.
Reason – to assist in achieving greater use of sustainable transport modes,
with less reliance on the private car, in line with national government
policies and County Council’s sustainable transport polices.
2) The new parking arrangement shown on drawing no ST-2063-5 shall be
provided before the multi use games area is brought into use.
Reason- to ensure that on street parking does not occur and in the interests
of highway safety.
5.4
Environment Agency – does not object subject to one condition:The development permitted by this planning permission shall only be carried
out in accordance with the approved Flood Risk Assessment (FRA) prepared
by WSP dated 01 July 2009 (Revision 1) and the following mitigation measures
detailed within the FRA:
1.Limiting the surface water run-off generated by the 100 year + 20% critical
storm so that it will reduce the run-off from the developed site and not increase
the risk of flooding off-site in accordance the details in Table 1 (Section
8.3.10)
Reason: To prevent flooding by ensuring the satisfactory storage of/disposal of
surface water from the site and to prevent flooding elsewhere by ensuring that
compensatory storage of flood water is provided.
5.5
Shenley Parish Council has not responded to date.
5.6
Elstree and Borehamwood Green Belt Society are in favour of providing
sporting facilities for school and community use and recommend that the
MUGA should be strictly monitored and policed to prevent noise and vandalism
after hours.
5.7
Hertfordshire Biological Records Centre (HBRC)
The response states:
‘There are no recognised sites of ecological importance within the HBRC
database adjacent to or some distance from the application site, although there
is open Green Space within the urban area to the south, and trees and
hedgerows within the landscape to the north and east. Great crested newts
have been recorded 365m to the south, and bats 430m to the south-east, but
given their presence within the existing urban environment generally, it is
unlikely that any specific concerns could be attributable to the floodlighting.
Although there do not appear to be any major ecological constraints to the
development, we advise that the effects should be kept to a minimum and the
proposed usage reduced so that at least one or two nights a week remain as
dark as at present, unless the impact is not unacceptable.
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It is essential that the lamp design uses horizontal lamps so that they do not
have to be tilted. This would otherwise expose the luminaire itself and thus
create significant glare, which will be unacceptable. It would appear from the
proposed designs that this approach has been proposed. ……The higher the
lamps, the more glare will be visible even if they are horizontal, and this will
have a greater impact to residents to the south. The height of the lights might
also further reduce the screening effect of the school from the north’.
It is also recommended that there should be a mix of native species rather than
the non-native or cultivars proposed in the new landscaping area associated
with the bund and some evergreens such as holly could be included as well as
some additional screening trees along the boundaries.
It is suggested that a Wildlife Area could be created, which would be open
areas not regularly cut and a simple regime introduced to cut areas on rotation,
in addition to leaving some areas of long grass to remain over winter as
undisturbed habitat; a sympathetically managed long grass area and boundary
would enhance the ecological value in this vicinity and help to reduce the
ecological impact of the extra lighting locally within the site.
5.8
Hertfordshire Lighting Engineers the MUGA lighting details have been
assessed and the lighting lux levels are acceptable.
5.9
Neighbour consultation and publicity three site notices were erected on 13 May
2009 and an advert was placed in the Herts Advertiser newspaper on 21 May
2009. A total of 416 properties were consulted on the application and 22
letters objecting to the application were received. Before the application was
submitted, there was an exhibition arranged by Hertswood School about the
MUGA; one letter was received in February 2009 objecting to the development,
together with a petition with 41 signatures.
The planning issues of concern can be summarised, from all the objectors, as:

additional noise generated by the activity and from the associated arrival and
departure movements

light pollution from the floodlighting

increased associated traffic on the road network and parking on the nearby
residents streets

extended use of the MUGA for the community, which would be out of school
hours, and especially late in the weekday evenings and at weekends

the need for this additional astro turf pitch where there are two other facilities
at Old Laings Sport Ground and Meadow Park, which are within a short
distance from the school

concerns about the effects of the floodlighting on the local wildlife
Additional comments relating to the drainage problems that should have been
sorted out previously, finance issues, the adverse effect of this development upon
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the property values and on the views of the sunset are not material considerations
for this application.
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6.1
Planning considerations
The relevant development plan policies are:
Hertsmere Local Plan through to 2011 (adopted 2003)
Policy K1: Sustainable development
Policy K2: Development Strategy
Policy C1: Green Belt
Policy C4: Development Criteria in the Green Belt
Policy C18: Major Developed Sites in the Green Belt
Policy L1: Leisure and Recreation DevelopmentsGeneral Principles
Policy L2: Leisure and Recreation DevelopmentsEnvironmental Criteria
Policy L6: Sports Facilities
Policy S5: Extensions to Existing Schools or Colleges
Policy M12: Highway Standards
Policy M13: Car Parking Standards
Policy D7: Re-use and recycling in Construction
Policy D14: Noisy Development
Policy D19: Lighting Installations and Light Pollution
Policy D21: Design and setting of Development
Policy D23: Access for People with Disabilities
Hertfordshire Waste Local Plan 1995- 1999 (adopted January 1999)
Policy 6: Waste Minimisation
East of England Plan (RSS), adopted May 2008
Policy SS7: Green Belt
Policy T3: Managing Traffic Demand
Policy T8: Local Roads
Policy ENV2: Landscape Conservation
Policy ENV5: Woodlands
Policy ENV7: Quality in the Built Environment
Planning Policy Guidance 2: Green Belt
Planning Policy Guidance 17: Planning for Open Space, Sport and
Recreation
6.2
The principal issues to be taken into account in determining this application are:
 Green Belt
 Need and benefits of the proposed MUGA
 Impact on residential amenity: lighting and noise
 Traffic assessment and accessibility
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Green Belt
6.3
The application site is within the Metropolitan Green Belt as defined within the
policy C1 (Green Belt) of adopted Hertsmere Local Plan through to 2011
(adopted 2003); policy SS7 (Green Belt) of the adopted East of England Plan
adopted in May 2008 and Planning Policy Guidance 2 (Green Belts) (PPG2) are
also relevant. Policy SS7 (Green Belt) of the adopted RSS states that ‘the
broad extent of the Green Belts in the East of England is appropriate, and
should be maintained’.
6.4
Protection of the Green Belt is one of the key policies in the local development
plan where there is a presumption against inappropriate development in the
Green Belt, except in very special circumstances, for purposes other than
those detailed in paragraph 3.2 of PPG2
6.5
In Planning Policy Guidance 2: Green Belts paragraph 3.4 states:
‘The construction of new buildings inside a Green Belt is inappropriate unless it
is for the following purposes:...ii) essential facilities for outdoor sport and
outdoor recreation, for cemeteries, and for other uses of land which preserve
the openness of the Green Belt and which do not conflict with the purposes of
including land in it (see paragraph 3.5);
Paragraph 3.5 states:
‘Essential facilities (second indent of paragraph 3.4) should be genuinely
required for uses of land which preserve the openness of the Green Belt and do
not conflict with the purposes of including land in it. Possible examples of such
facilities include small changing rooms or unobtrusive spectator accommodation
for outdoor sport, or small stables for outdoor
sport and outdoor recreation.
6.6
The proposal is for a dual-use playing pitch for use by the school and the wider
community and therefore its location within a school site is appropriate. There
is policy support for this type of use in principle.
6.7
PPG2 (Green Belts) advises that the use of land within the Green Belt has a
positive role to play in fulfilling a number of objectives, including providing
opportunities for outdoor sport and outdoor recreation near urban areas.
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6.8
PPG17 (Sport and Recreation) sets out that it is the policy of Government to
promote the development of sport and recreation in the widest sense: to enable
people to participate in sport, whether as players or spectators, and to
encourage the provision of a wide range of opportunities for recreation so that
people can choose what suits them best. It advises that planning authorities
should consider the scope for encouraging recreational facilities in the urban
fringe where this is compatible with existing uses. The proposed location
within an existing school site on the urban edge for dual-use purposes is
compatible with this guidance.
6.9
The floodlights are considered as essential facilities. They provide solely for
participation in sport and are the minimum necessary to meet the standards
needed for playing of sports. They are not provided to support any spectators.
6.10 The floodlighting columns would be slender in design. Given their intermittent
use it is judged that the proposal is small scale and that the enclosures and
fencing meets the tests of Policy 1 and PPG2 in terms of being essential
facilities for the pitch. The mesh fencing would not restrict the views beyond
the development. The fencing and columns would therefore allow openness of
the Green Belt to be maintained, which complies with PPG2 paragraphs 3.4
and 3.5.
6.11 PPG2 also requires that proposals should not prejudice the purposes of
including land within the Green Belt (as set out in PPG2 (Green Belts).





to check the unrestricted sprawl of large built-up areas;
to prevent neighbouring towns from merging into one another;
to assist in safeguarding the countryside from encroachment;
to preserve the setting and special character of historic towns; and
to assist in urban regeneration, by encouraging the recycling of derelict
and other urban land.
6.12 The proposal would not conflict with these purposes (as set out in the
paragraph above) it is considered that openness is maintained. The proposal
should not lead to sprawl, merging of towns or encroachment into the
countryside. It would not affect the character of a historic town and the
proposal does not relate to the recycling of derelict land.
6.13 PPG17, at paragraph 30 states:
‘Planning permission should be granted in Green Belts for proposals to
establish or to modernise essential facilities for outdoor sport and recreation
where the openness of the Green Belt is maintained. Development should be
the minimum necessary and non-essential facilities (e.g. additional function
rooms or indoor leisure) should be treated as inappropriate development. Very
special circumstances which outweigh the harm to the Green Belt will need to
be demonstrated if such inappropriate development is to be permitted.’
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Furthermore in paragraph 19 it states:
‘In considering applications for floodlighting, local authorities should ensure that
local amenity is protected. The impact on the openness of the Green Belt or on
the character of the countryside, of floodlight towers or pylons should be a key
factor in determining whether planning permission should be granted.’ These
impacts are considered in more detail in paragraphs 6.19 – 6.24.
6.14 Policy L1 of the Hertsmere Borough Plan provides that:
‘in Green Belt areas not defined as a Landscape conservation Area only Type
B medium and low intensity developments will be acceptable provided they
accord with Green Belt policies’
6.15 Type B uses require large areas of land with few buildings but in continuous or
intermittent use and include sports pitches such as football. The proposal is for
a type B use taking place within the Green belt and fulfils the requirements of
Green Belt policies.
6.16 Policy S5 of the adopted Hertsmere Local Plan highlights that proposals to
extend and improve existing school facilities will be supported provided that
they do not conflict with Green Belt policy and policy L1 states that leisure
activities within the Green Belt should also accord with Green Belt policy. The
proposed MUGA would be ancillary to and would support the existing uses of
the site as a school and a sports centre. It is considered that, because the
proposed MUGA is a recreational use, it is an acceptable use within the Green
Belt, which is compliant under the criteria of policies C4 as it unobtrusive where
it is located, the scale and setting is sympathetic and not harmful to the
openness and the existing landscape features and ecological interest have
been retained. In addition to this, the proposals have regard to the aims and
objectives of policy L2. The MUGA would contribute significantly to the
educational needs of the school and contribute to the existing community
sports facilities at the sports centre within the application site. The proposed
development is supported by policies C5, C18, S5, L1 and L2 in the Hertsmere
Local Plan. The impacts of the MUGA are considered in more detail further in
paragraphs 6.19 to 6.24.
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Need and benefits of proposal
6.17 The MUGA would be available for community use 9am until 8.30pm on weekdays
(revised from 9pm in the original proposals) and 10am until 8.30pm on Saturdays
and Sundays. The floodlights would be turned on only as and when they are
needed, and would be switched off as soon as play finishes and the pitch and site is
secured. The floodlights would be directed down onto the pitch to prevent light
spillage onto adjacent areas; a condition could be imposed restricting the hours of
use for the floodlighting, as set out above.
6.18 Due to the clay deposits below the existing playing field, the grass football pitches
are often unplayable. This severely limits their use for both school curriculum and
community purposes, especially between October and April when the school has
only about 60% available usage of its playing fields due to the water logging of this
area. Many football fixtures, which are governed by a play by a date, have to be
played away and this increases the costs to the school for additional transport and
hire of other facilities, which also is contrary to sustainability principles to bus pupils
some distance for playing sport. The proposed artificial turf pitch would provide a
playable surface for all weathers and all year round, as well as being more useable,
durable and sustainable and in keeping with policy K1: Sustainable development.
Being green in colour, it would not look dissimilar to the existing natural grass.
6.19 A number of residents have raised concern that the proposed community use
of
the MUGA astro turf pitch would cause additional noise and loss of amenity; to
mitigate this, a condition for a Management Scheme for the use of the MUGA could
be imposed.
6.20 Hertswood School has a strong sports commitment and has association with
Watford and Arsenal Football Clubs, Radlett Cricket Club, Borehamwood Athletics
Club and Tabard Rugby Club; it is also involved in the Queens School sports
partnership, which encourages students to try new sports as well as providing
training for school staff and sporting competitions.
6.21 The school holds the Sportsmark award, which is given to schools in recognition of
a high level of participation and achievement in sport; they are also the current
county football champions for under 14 level and compete in the football conference
youth league.
6.22 In addition to this, over the past 4 years, schools have been implementing the
Government Extended Schools Initiative; by 2010, it is expected that every school
will fulfil the ‘core offer’ and extended services will be available to students, families
and the community they serve. Hertswood School is the Hub school for the Elstree,
Borehamwood and Shenley consortium and co-ordinates the activities within the
whole group.
6.23 Residents have raised concerns about the need of this facility because there are
two other facilities at Old Laings Sport Ground and Meadow Park, which are within
a short distance from the school; Sport England was consulted and stated that ‘at
present, there is only one floodlit all weather pitch in Borehamwood (at
Borehamwood FC) and the proposed facility would therefore provide a new facility
that would help meet community needs although the surface of the proposed pitch
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would be similar to the pitch at Borehamwood FC. The pitch would allow the school
to develop its links with other sports clubs’ (which have been previously mentioned
in paragraph 6.17).
6.24 Sport England commented that the all weather pitch would offer significant potential
benefits to the community, as it would be floodlit and viable for community use
outside of school hours and the facility would complement the facilities already
available at the Hertswood Centre on the site and concluded that the potential
sports development benefits that the proposed all weather pitch would offer would
clearly outweigh the detriment caused by the impact on the playing field, which
would meet exception E5 of their playing fields policy.
6.25 Therefore, it is considered that the construction of the MUGA is acceptable; the
main intrusion into the Green Belt is the floodlighting columns and the fencing,
which are discussed below.
Impact on residential amenity: lighting and noise
6.26 Concerns were raised about adverse impacts to residential amenity on a number of
issues. Residents raised concerns about the impact of the floodlighting and noise
generated from evening and weekend use of the MUGA.
6.27 Objections, raised about the light pollution associated with the MUGA, are in
relation to the intrusion on the amenity of nearby properties; this would be mitigated
to some degree by the proposed lighting, which would be designed to minimise the
light ‘spillage’ as the lux level would be 0.5 immediately outside of the MUGA area
and zero at the boundary of the school. This complies with policy D19 (Lighting
Installations and Light Pollution) of the Hertsmere Local Plan. Furthermore, it is
recommended that the use would be subject to a condition for hours of use (see
paragraph 6.14).
6.28 The residents are concerned about the effect of the floodlighting on the local
wildlife; HBRC have been consulted and have stated ‘Although there do not appear
to be any major ecological constraints to the development, we advise that the
effects should be kept to a minimum and the proposed usage reduced so that at
least one or two nights a week remain as dark as at present, unless the impact is
not unacceptable.’ The applicant has revised the scheme to include 12m
floodlighting columns and reduced proposed hours of the MUGA would be
conditioned to 8.30pm Monday to Saturdays, which take the residents concerns into
account. A revised landscaping scheme to include evergreens, which could provide
all year round screening, and a creation of a Wildlife Area could be subject to a
condition.
6.29 The noise generated from the extended use of the MUGA is also of great concern
to the residents; it is considered by the residents that the noise from playing school
sport during the day is more acceptable but it is the evening/weekend ‘noise’ from
the community use that is perceived to be a problem. There has been an additional
letter, complaining about current abusive language during a match for community
use on the existing football pitch in this location in June and the resident is very
concerned that this would not be acceptable every weekday evening and at
weekends. A condition for a Management Scheme should include measures for
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reducing unnecessary noises such as swearing and bad behaviour. (see paragraph
6.16)
6.30 Visually the MUGA pitch would blend in with the surrounding playing field because
the astro-turf would be green and, in line with Policy ENV7, the fencing would be
appropriate for the area by utilising a black coated mesh, which is similar to that of
the existing school boundary. There are already numerous large mature trees,
which range approximately 8/10m in height, along the boundary with Potters Lane;
they would form some screening for the 8 floodlighting columns and there is a
proposal to increase the trees and landscaping to mitigate the visual impact on the
local residents amenity.
6.31 There is a landscaped bund proposed to the south eastern area of the site; this
would be formed with the excess excavated ‘waste’ top and sub soil as a result of
making a level pitch for the construction of the MUGA. Not only would this be a
sustainable method of construction because it removes the need for transporting
this waste to a Waste Transfer Station or disposal site but it can provide some
screening for the MUGA; this is in keeping with policy D7 of the local plan and
policy 6 of the adopted Hertfordshire Waste Local Plan. Also as a result of the
consultation with HBRC, it is considered appropriate to impose conditions for a
revised scheme of landscaping to include a mix of native species of trees and
evergreens, additional tree planting along the boundaries and for the creation of a
Wildlife Area.
Traffic assessment and accessibility
6.32 A traffic assessment has been included in the submission; it concludes that the
application site is located well in terms of public transport and the existing traffic
flows were not observed to cause any undue problems currently on the local road
network nor for the foreseeable future. There is a recommendation to amend the
existing ‘splitter’ island at the access point and to increase the car parking provision
by 25 spaces, together with 6 bicycle spaces.
6.33 The planning application seeks to extend an access route through to the existing
hard play area, which would provide over-spill parking for an additional 25 cars and
to improve the access, which conforms to policies M12 and M13 of the adopted
local plan and policies T3 and T8 of the adopted East of England Plan.
Hertfordshire County Council as the Highways Authority does not object to the
proposals but suggests that the car parking and access modifications are
constructed prior to the use of the MUGA, together with an updated School Travel
Plan within six months of granting planning permission.
6.34 The response from the consultation with Hertsmere Borough Council included
a recommendation of a car parking management scheme for the possible use
of existing parking to the north of the school site and some of the playing fields
to the eastern end of the site for addition parking areas for larger events could
be considered. This could be included in a condition for a Management
Scheme for the use of the MUGA.
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6.35 The existing Hertswood Sports Centre is DDA compliant, as it has wheelchair
access and changing facilities for the disabled. The MUGA would be
accessible via a ramped access route from the Sports Centre, which would
allow fully inclusive use all year round and would also facilitate the ease of
movement for the bulky sports equipment. The proposals conform to Policy
D23 of the local adopted plan.
7
Conclusions
7.1
The proposal is within the Green Belt and this development is regarded as
appropriate development as it has been demonstrated that the proposed
MUGA does not harm the openness of the Green Belt and there is an
educational and recreational need for this sport facility. The proposed MUGA
offers clear benefits to the school and the community by providing a dual use
sports facility that can be used for longer periods of time with the use of
floodlighting and, due to the nature of the pitch surface, the MUGA would
provide for a wide range of sports; the glare and light spillage has been
minimised, together with additional landscaping, to ensure minimal visual
impact upon the local residents and reduce the potential light pollution.
7.2
It is also considered that the proposed location of the MUGA between the
existing school and the floodlit road, Potters Lane, would help to integrate it
within the landscape. In addition to this it has been assessed that the
ecological harm would be minimal, especially with the additional landscaping
using native species and the creation of a Wildlife Area. Nevertheless the
application should be referred to the Secretary of State in accordance with
departure procedures.
7.3
The report therefore concludes that planning permission should be granted for
the floodlit Multi Use Games Area (MUGA) At Hertswood Lower School,
Cowley Hill, Borehamwood, Hertfordshire, subject to conditions to include:
a)
b)
c)
d)
a)
b)
c)
d)
e)
f)
g)
h)
i)
j)
Time limit for commencement;
Hours of construction, working and deliveries;
Contractor parking, access and compound area;
Wheel/chassis cleaning;
Car parking and access to be completed as per details submitted before
MUGA comes into use;
Lighting to be installed as per details submitted;
Tree/hedge protection scheme;
Revised landscaping details;
Details of a Wildlife Area;
Hours of use of the MUGA;
Community Use Agreement;
Details of the Management Scheme for the MUGA;
School Travel Plan;
Surface water run-off.
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8
Financial Implications
8.1
There are none for this Committee.
8.2
Background information used by the author in compiling this report
Planning application reference 0/0750-09
Consultee responses
Relevant policy documents
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Appendix 1 – Relevant development plan policies
Hertsmere Local Plan (adopted 2003)
Policy K1: Sustainable Development
All activities and development in Hertsmere will be required to be carried
out consistently with the principles of sustainable development and the
general aims set out in Policy 1 of the Hertfordshire Structure Plan Review
1991- 2011
Policy K2: Development Strategy
The overall development needs of Hertsmere will be planned in accordance with the
settlement hierarchy set out in paragraph 5.9. Initiatives such as Comprehensive
Settlement Appraisals or Village Appraisals will be developed in association with the
local community and other relevant parties for individual settlements to assist the
process of monitoring and reviewing the policies in this Plan.
Policy C1: Green Belt
Within the Green Belt, as defined on the Proposals Map, there is a general
presumption against inappropriate development and such development will not be
permitted unless very special circumstances exist. Development proposals within the
Green Belt will be assessed in relation to the guidance set out in section 3 of PPG2
‘Control Over Development’.
Policy C4: Development Criteria in the Green Belt
In addition to Policy C1 and any other specific policies set out in this Plan particular
regard will be paid to the following criteria when considering proposals for
development in the Green Belt:(i) developments should be located as unobtrusively as possible and advantage
should be taken of site contours, landscape features, etc. to minimise the visual
impact. Buildings should be grouped together and isolated buildings in the
countryside should be avoided;
(ii) wherever possible, developments should use materials which are in keeping with
those of the locality. Where modern materials are acceptable they should be
unobtrusive in the landscape;
(iii) proposals must comply with the County Council's policy for traffic on rural roads;
(iv) the scale, height and bulk of the development should be sympathetic to, and
compatible with, its landscape setting and not be harmful to the openness of the
Green Belt;
(v) existing trees, hedgerows and other features of landscape and ecological interest
should be retained and be reinforced by additional planting of native species or other
appropriate habitat enhancement in order to enhance the character and extent of
woodland in the Community Forest;
(vi) account will be taken of any lost contribution to farm economics and management,
with a strong presumption against development which would fragment farm holdings.
Policy C18: Major Developed Sites in the Green Belt
The Major Developed Sites in the Green Belt are identified on the Proposals Map and
proposals will be assessed in relation to the advice set out in Annex C of PPG2.
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Infilling may be appropriate within the defined areas subject to the following
considerations:(i) the proposal should have no greater impact on the purposes of including land in
the Green Belt than the existing development;
(ii) the proposal should not exceed the height of the existing buildings;
(iii) the proposal should not lead to a major increase in the developed proportion of
the site;
(iv) the proposal should be ancillary to, or support, an existing or approved use on the
site;
(v) proposals should respect the design of existing buildings and should not detract
from the appearance of the site;
(vi) proposals should not lead to any significant increase in motorised traffic
generation.
Complete or partial redevelopment on these sites should:
a) have no greater impact than the existing development on the openness of the
Green Belt and the purposes of including land in it, and where possible less;
b) contribute to the achievement of the objectives for the use of land in the Green
Belts set out in PPG2;
c) not exceed the height of the existing buildings;
d) not occupy a larger area of the site than the existing buildings (unless this would
achieve a reduction in height which would benefit visual amenity) and;
e) should not lead to any significant increase in motorised traffic generation or unduly
impact on the amenities of adjacent properties.
Policy L1: Leisure and Recreation DevelopmentsGeneral Principles
Planning applications for leisure and recreation developments, including the extension
of existing facilities, will be permitted subject to compliance with the following
locational considerations:(i) high intensity leisure activities will be expected to locate within the Town, Local
Town and District Centres as defined on the Proposals Map. Where this is not
possible preferred locations are those on the edge of the Town / Local Town / District
Centres as defined on the Proposals Map. Only where no Town / Local Town / District
Centre or edge of Town / Local Town / District Centre sites are available will urban,
out-of-centre sites be considered. All high intensity leisure proposals will be expected
to show evidence that this
sequential approach has been followed;
(ii) in Green Belt areas not defined as a Landscape Conservation Area only Type B
medium and low intensity developments will be acceptable provided they accord with
Green Belt policies;
(iii) within the Landscape Conservation Areas and sensitive rural areas, such as high
grade agricultural land and important sites for wildlife, only low intensity developments
will be considered acceptable provided there is no adverse impact on these assets.
Where proposals do not comply with the above criteria exceptions may be
made if:
(a) it can be demonstrated that there is a specific proven recreational need in
Hertsmere for the proposed facility and that it cannot be accommodated in
accordance with the criteria set out above or by existing facilities; or
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(b) the development involves the reuse or restoration of existing buildings or the
restoration of damaged land; and would not require new buildings in the Green Belt;
or
(c) the proposal accords with the objectives, and would assist the implementation, of
the Watling Chase Community Forest Plan.
Policy L2: Leisure and Recreation DevelopmentsEnvironmental Criteria
Planning applications for leisure and recreation developments, including the extension
of existing facilities, will be permitted subject to compliance with the following criteria:(i) proposals should avoid any material harm to the local environment or residential
amenity in terms of visual impact, noise or general disturbance;
(ii) all developments must be suitably designed and sited and incorporate where
appropriate a high standard of landscaping. Within the Green Belt new buildings
should be sited to minimise their impact on the openness of the Green Belt;
(iii) the proposal should not adversely affect features of landscape, ecological,
historical or archaeological importance;
(iv) the proposal should not include any associated development which is in excess of
that reasonably required for its operation unless existing redundant buildings on the
site are capable of providing associated facilities;
(v) consideration should be given to the particular recreational needs of the elderly
and disabled people, and developments should make provision for people with
disabilities.
Policy L6: Sports Facilities
Development proposals which involve the loss of existing (public or
private*) sports facilities without adequate replacement will be refused.
The provision of appropriate additional opportunities for participation in
sport in suitable locations, in both urban and Green Belt areas will be
encouraged, provided that the intensity of leisure use criteria set out in
Policy L1 are satisfied.
Policy S5: Extensions to Existing Schools or Colleges
Proposals to extend existing schools or colleges, for the purpose of providing
improved facilities but with no associated increase in student numbers, will be
supported provided that:
(i) there will be no significant impact on the amenity of neighbouring residents;
(ii) there will be no significant impact on the visual amenity of the area;
(iii) the proposal would not directly result in a significant increase in traffic generation
to and from the site or car parking on the highway network; and
(iv) proposals would not conflict with Green Belt policy.
Where a significant increase in student numbers is anticipated and facilitated as a
direct result of any proposed extensions or additions, then the requirements of Policy
S4 will apply.
Policy M12: Highway Standards
Development proposals should comply with the advice set out in the County Council’s
‘Roads in Hertfordshire - A Design Guide’ (or as amended). Where appropriate,
contributions may be sought via planning obligations for off-site highway works,
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demand management and other non-car based transport improvements. The
formation of a vehicular access directly onto a primary route can only be permitted
after consultation with, and the agreement of, DETR and the Highways Agency. In
considering all planning applications for development, particular regard will be paid to
the following criteria:(I) the compatibility of the proposal with the movement and transport policies set out
in this Plan and the Hertfordshire Structure Plan Review 1991-2011;
(ii) the adequacy of any proposed vehicle access and the likely impact of any
associated traffic generation on the local road network and the environment of the
locality;
(iii) the adequacy within the site of space for the circulation, parking, manoeuvring and
loading and unloading of commercial vehicles.
Policy M13: Car Parking Standards
Car parking requirements for developments will be assessed in relation to
the Council's current car parking standards as set out in approved
supplementary guidance (or as subsequently amended). The actual
quantity of parking within new development will be determined having
regard to the proposed use, the location, and the availability of or
potential for access by modes of transport other than the private car.
Where on site parking is provided at a level less than the standard, the
Council may require developers to enter into a planning obligation to
contribute to improvements in non-car transport facilities and services.
Policy D7: Re-use and Recycle in Construction
When considering development proposals the Borough Council will encourage the
appropriate re-use of clean, excavated material from construction projects, including
from the proposed development itself, as preparation for development, land
restoration or site landscaping and where possible the use of recycled aggregates
and building products within buildings and other structures in place of natural
aggregates or previously unused materials.
Policy D14: Noisy Development
New development involving noisy activities should be sited away from
noise-sensitive land uses. Regard will be paid to the cumulative impact of
noisy development, the time and nature of the noise and the character of
the surrounding area. In particular there is a need to ensure that
residential properties, and nature conservation sites, are protected from
the impact of undue noise levels. Where planning permission is granted
appropriate conditions may be imposed to control the level of noise
emitted.
Policy D19: Lighting Installation and Light Pollution
In order to minimise light pollution, external lighting scheme proposals,
including floodlighting, will only be approved where it can be
demonstrated that:
(i) the scheme proposed is the minimum needed for security and/or
operational purposes;
(ii) it minimises the potential pollution from glare and light spillage;
(iii) there would be no adverse impact on residential amenity;
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(iv) there would be no adverse impact on the character or openness of
the Green Belt;
(v) it would not adversely affect ecological interests; and
(vi) there would be no dazzling or distraction of drivers using nearby
roads.
Policy D21: Design and Setting of Development
Development proposals must:
(I) respect or improve the character of their surroundings and adjacent properties in
terms of scale, massing, materials, layout, bulk and height;
(ii) retain, enhance or create spaces, views, landmarks or other townscape and
landscape features which make a material contribution to the character of the area;
(iii) not impact adversely on prominent ridge lines, or other important topographical,
ecological or landscape features; and
(iv) create safe and accessible environments.
Policy D23: Access for People with Disabilities
All proposals for new buildings and facilities that will be accessible to the
public, including shops, must comply with minimum access requirements
to allow people with disabilities satisfactory access. Proposals for a
change of use or proposals that include alterations to a principal
entrance, including new shopfronts, should also demonstrate adequate
access arrangements for people with disabilities.
Hertfordshire Waste Local Plan 1995- 1999 (adopted January 1999)
Waste Policy 6 – Waste Minimisation
The County Council will strongly support any development proposals which are
required for the purpose of minimising waste, subject to other development plan
policies, particularly those relating to the environmental and other effects of the
development.
East of England Plan (RSS), adopted May 2008
Policy SS7 – Green Belt
The broad extent of green belts in the East of England is appropriate, and should be
maintained. However, strategic reviews of green belt boundaries are needed in the
following areas to meet regional development needs at the most sustainable
locations:
• Stevenage, involving land in Stevenage and North Hertfordshire;
• Hemel Hempstead, involving land in Dacorum and probably St Albans District;
• Harlow, involving land in Harlow, East Hertfordshire and Epping Forest Districts; and
• Welwyn/Hatfield, involving land in Welwyn Hatfield District and potentially St Albans
District.
A more local review will be required in Broxbourne.
These reviews will have to satisfy national criteria for green belt releases, accord with
the spatial strategy, and ensure that sufficient land is identified to avoid the need for
further review to meet development needs before 2031. Where reviews cover more
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than one local authority, they should be undertaken through a joint or co-ordinated
approach.
The reviews at Harlow and Stevenage should identify compensating strategic
extensions to the green belt in East Hertfordshire and North Hertfordshire
respectively.
Policy T3 – Managing Traffic Demand
Demand management measures for highway use should be pursued to tackle
congestion and, as a consequence, provide more reliable journeys. Road pricing may
be considered as part of an integrated approach to managing the
region’s road network and should be consistent with national technical standards and
guidelines. Road pricing schemes or other demand management measures should:
• be matched with provision of sustainable alternatives to private vehicle use, and
• be designed to avoid disadvantaging the region’s rural communities and
regeneration areas dependent on road access.
Policy T8 – Local Roads
Local Authorities should manage the local road network in accordance with their local
transport plan objectives to complement the aims of Policies T2 to T7 with the
following priorities:
• tackling congestion and its environmental impacts;
• facilitating the provision of safe and efficient public transport, walking and cycling;
• providing efficient vehicular access to locations and activities requiring it, particularly
in areas of growth and where regeneration is dependent on improved access; and
• improving safety.
Policy ENV2 – Landscape Conservation
In their plans, policies, programmes and proposals planning authorities and other
agencies should, in accordance with statutory requirements, afford the highest level of
protection to the East of England’s nationally designated landscapes (Figure 5) – the
Norfolk and Suffolk Broads, the Chilterns, Norfolk Coast, Dedham Vale, and Suffolk
Coast and Heaths Areas of Outstanding Natural Beauty (AONBs), and the North
Norfolk and Suffolk Heritage Coasts. Within the Broads priority should be given to
conserving and enhancing the natural beauty, wildlife and cultural heritage of the
area, promoting public enjoyment and the interests of navigation. Within the AONBs
priority over other considerations should be given to conserving the natural beauty,
wildlife and cultural heritage of each area.
Planning authorities and other agencies should recognise and aim to protect and
enhance the diversity and local distinctiveness of the countryside character areas
identified on Figure 6 by:
• developing area-wide strategies, based on landscape character assessments,
setting long-term goals for landscape change, targeting planning and land
management tools and resources to influence that change, and giving priority to those
areas subject to most growth and change;
• developing criteria-based policies, informed by the area-wide strategies and
landscape character assessments, to ensure all development respects and enhances
local landscape character; and
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• securing mitigation measures where, in exceptional circumstances, damage to local
landscape character is unavoidable.
Policy ENV5 – Woodlands
In their plans, policies, programmes and proposals planning authorities and other
agencies should seek to achieve an increase in woodland cover by protecting and
achieving better management of existing woodland and promoting new planting
where consistent with landscape character. Ancient semi-natural woodland and other
woodlands of acknowledged national or regional importance should be identified in
Local Development Documents with a strong presumption against development that
would result in their loss or deterioration. Aged or veteran trees should be conserved.
The nature conservation and recreation value of woodland is recognised, and
conversion to other land uses should be resisted unless there are overriding public
and ecological benefits. Woodland unavoidably lost to development should be
replaced with new woodland of at least equivalent area and composition, preferably in
the same landscape unit.
New woodland creation should be targeted at:
• schemes for the restoration of derelict or contaminated land and sites formerly used
for mineral-extraction or industry;
• green infrastructure projects associated with areas planned for significant growth;
• the Thames Chase, Watling Chase and Forest of Marston Vale Community Forests,
with the aim of increasing their woodland cover to 30% by 2030;
• planting schemes along transport corridors; and
• schemes to expand and link areas of native woodland and create new wet woodland
(which is a priority in this region), to meet regional and local BAP targets.
Policy ENV7 – Quality in the Built Environment
Local Development Documents should require new development to be of high quality
which complements the distinctive character and best qualities of the local area and
promotes urban renaissance and regeneration.
New development should:
• provide buildings of an appropriate scale, founded on clear site analysis and urban
design principles;
• make efficient use of land;
• in the case of housing development, achieve the highest possible net density
appropriate to the character of the locality and public transport accessibility;
• provide a mix of uses and building types where appropriate;
• have regard to the needs and well being of all sectors of the community;
• address crime prevention, community safety and public health;
• promote resource efficiency and more sustainable construction, including maximum
use of re-used or recycled materials and of local and traditional materials;
• reduce pollution, including emissions, noise and light pollution; and
• maximise opportunities for the built heritage to contribute to physical, economic and
community regeneration.
Conservation-led regeneration should respect the quality and distinctiveness of
traditional buildings and the value they lend to an area through their townscape
quality, design and use of materials. In their plans, policies, programmes and
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proposals planning authorities should give consideration to the opportunities
presented by the region’s industrial, maritime and rural heritage.
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