COMMITTEE DATE: 23/04/2012

Application Reference: / 12/0058
WARD: / Layton
DATE REGISTERED: / 30/01/12
LOCAL PLAN ALLOCATION: / No Specific Allocation
APPLICATION TYPE: / Full Planning Permission
APPLICANT: / ANNACLIFFE RESIDENTIAL CARE HOME
PROPOSAL: / Demolition of existing rear bungalow, erection of single-storey rear extension to form 13 bedroom dementia care facility and alterations to existing car parking layout.
LOCATION: / 129-131 NEWTON DRIVE, BLACKPOOL, FY3 8LZ

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Summary of Recommendation: / GRANT PERMISSION

CASE OFFICER

Miss. S. Parker

INTRODUCTION

The present application was brought before the Committee on 19th March with a recommendation of approval. Following a visit to the site, the Committee deferred the application for later determination pending the receipt of additional information demonstrating that the proposed parking layout could be provided on site whilst still enabling larger 'transit' delivery vans to enter the site, manoeuvre and leave the site in a forward gear. A larger scale car park plan has since been provided which clearly shows that 11 parking spaces can be provided at the front of the property. This accords with the Council's maximum parking standards for a care home use accommodating 55 residents. The Council's transportation section have run an independent swept-path analysis on the car parking layout and have confirmed that a large 'transit' delivery van would be able to enter the site, manoeuvre into the delivery bay shown, and leave the site in a forward gear when the car park is full. On this basis, the Head of Transportation has no objection to the scheme.

The Committee visited the site on 19th March 2012 and will have visited for a second time on 23rd April 2012.

The original report to Committee, amended where necessary, is provided below. On the basis of the information received since the meeting on 19th March, and the lack of an objection from the Head of Transportation, the Committee is respectfully recommended to approve the application.

BACKGROUND

This application has been preceded by a number of applications seeking to intensify the use of the site and provide more resident bedrooms, all of which have been refused. The last application (10/0725 refers) sought planning permission for the demolition of the existing bungalow to the rear of the home and the erection of a three storey dementia care facility providing 26 bedrooms to be operated in association with the existing Annacliffe rest home. This application was refused by the Committee and a subsequent appeal was dismissed. The key issues in terms of the appeal were the impact on the living conditions of neighbouring residents and the impact on highway conditions in Newton Drive and the nearby streets,with particular reference to parking.

SITE DESCRIPTION

The application site is on the southern side of Newton Drive, approximately 30m to the east of its junction with Deneway Avenue. The site has a frontage of some 36m to Newton Drive and a depth of some 105m. The Acorn Nursing Home sits to the west of the site with the 2 to 4 storey Regent Court apartment block beyond. To the east is a pair of semi-detached houses (133/135 Newton Drive) with long narrow back gardens (8m wide and roughly 80m in length). To the rear of the site are detached houses which front onto North Park Drive. These properties have rear gardens of some 40-50m depth, some of which contain outbuildings. The properties fronting North Park Drive are part of the Stanley Park Conservation Area. On the opposite side of Newton Drive are detached and semi-detached properties.

The application site comprises an existing nursing home for 42 residents which is accommodated in two large, double-fronted properties. The larger property is primarily of brick construction with a red tile roof, the smaller is of part brick, part render construction with a grey slate roof. There is a link between the two properties in the recess between them and other extensions and freestanding buildings exist to the rear of the main buildings. There are a number of trees in the rear garden in common with other rear gardens in the area. The forecourt to the site is used for car parking (11 spaces) and the forecourt is bounded by a low brick wall. There is an access to the rear down the western side of the buildings.

Newton Drive (B5266) is a wide road, however, this is compromised by the existence of unrestricted on-street parking on either side of the road.

DETAILS OF PROPOSAL

This application seeks permission for the demolition of the existing bungalow at the rear of the home and the erection of a single storey rear extension. The extension would be L-shaped with a corridor giving access to bedrooms on either side leading down to a communal living and dining area. It would be some 46m in length with the corridor/bedroom section (some 36m) being 9.4m wide and the communal area at the end being 14.2m wide. The extension would runalong the western boundary of the site and would be just over 5m from the boundary with no. 125 Newton Drive. To protect the privacy of the occupants of this property, the windows would be positioned behind rendered screens to give light and outlook without affording a direct view into the neighbouring garden. Additional light would be provided by velux windows in the proposed pitch roof. As proposed, the extension would have an eaves height of 3.1m and a ridge height of 5.7m which would be some 10m from the boundary to the west.The extension would be between 16 and 21 metres from the boundary with no 133 Newton Drive and some 26 metres from the boundary with properties fronting North Park Drive. The extension would be part brick, part render, with a tiled pitched roof.

Externally, formal landscaped garden areas would be created between the extension and the boundary to the east, with additional garden areas at the southern end of the site. Eleven parking spaces, including two accessibility spaces, and a defined area for deliveries would be provided at the front of the properties. Refuse and cycle storage would be provided on the boundary with no. 125 Newton Drive towards the rear of the site.

The application is accompanied by the following:

  • a Design and Access Statement
  • a Transport Assessment
  • a Planning Statement
  • a Statement of Need
  • a Tree Survey

MAIN PLANNING ISSUES

The main planning issues are considered to be:

  • the principle of the development in the location
  • the impact of the proposal on the amenities of surrounding residents
  • the acceptability of the design of the extension
  • the impact of the proposal on highway/pedestrian safety, including the adequacy of the access and parking arrangements.

These issues will be discussed in the assessment section of this report.

CONSULTATIONS

United Utilities Plc (water) - no objections subject to a separate system of drainage. Recommends SUDS to cater for surface water run off.

Head of Transportation - the Head of Transportation has verbally confirmed that he has no objection to the scheme but no written comments have been made in time for inclusion in this report. Any comments that are received before the meeting will be communicated through the update note.

Head of Parks and Greens (Environmental Services) - no comments have been made in time for inclusion in this report. Any comments that are received before the meeting will be communicated through the update note. In response to the previous application, the Council's Arboricultural Manager noted that none of the trees at the rear of the building are worthy of a Tree Preservation Order (TPO) but that the tree on the Newton Drive frontage is worthy of retention.

Assistant Director of Commercial Services - no comments have been made in time for inclusion in this report. Any comments that are received before the meeting will be communicated through the update note.

Head of Housing and Environmental Protection Services - no comments have been made in time for inclusion in this report. Any comments that are received before the meeting will be communicated through the update note.

PUBLICITY AND REPRESENTATIONS

Neighbours notified 6th February 2012

Site Notice displayed 14th February 2012

Letters of objection have been received from:

  • North Park Drive - nos. 35, 41, 43, 51, 53a, 59, 61, 65, 67, 69, 75, 85 and 91a
  • Newton Drive - nos. 103, 121-123 (no. 8), 125, 133, 135, 139, 141, 164, 168 and 170

A letter has also been received from no. 10 Yardley Drive, Spital, Wirral.

These letters have raised the following issues:

  • no need for the development
  • inappropriate use in Conservation Area/impact of proposal on character of Conservation Area
  • over-intensive development of the site
  • impact on residential amenity, including enjoyment of garden areas
  • loss of light
  • loss of privacy
  • increased noise and disturbance
  • inadequate site access
  • increased traffic and congestion
  • inadequate parking provision
  • impact on on-street parking and anticipated increase in inconsiderate/illegal parking
  • impact on highway safety
  • impact on drainage/flood risk
  • disturbance during construction
  • danger of residents leaving the site
  • disturbing and distressing noises from residents
  • proposal would set precedent for other developments in the area
  • inadequate consultation
  • breach of Human Rights to peaceful enjoyment of life.

These issues will be discussed in the assessment section of this report.

PLANNING HISTORY

There is an extensive planning history relating to the use of the property and extensions.

NATIONAL PLANNING POLICY AND GUIDANCE

The National Planning Policy Framework (NPPF) was published on 20th March 2012. This document sets out a clear presumption in favour of sustainable development. One of the core planning principles is listed as being the need to proactively drive and support sustainable economic development. The NPPF makes it clear that Local Planning Authorities should approach decision-making in a positive way and should look for solutions rather than problems. It states that decision makers at every level should seek to approve applications for sustainable development where possible.

SAVED POLICIES: BLACKPOOL LOCAL PLAN 2001-2016

LQ1 - Quality of Design

LQ2 - Site Context

LQ6 - Landscape Design and Biodiversity

LQ8 - Energy and Resource Conservation

LQ10 - Conservation Areas

LQ14 - Extensions and Alterations

BH3 - Residential and Visitor Amenity

BH4 - Public Health and Safety

BH24 - Residential Institutions and Community Care Residential Use

NE7 - Sites and Features of Landscape, Nature Conservation and Environmental Value

AS1 - General Development Requirements

AS2 - New Development with Transport Implications

EMERGING PLANNING POLICY

The Core Strategy Preferred Option was published in April 2010. The relevant emerging policies of this document are:

Policy S6 - quality of place

Policy G3 - health and education

ASSESSMENT

The Principle of Development

Need

In 2008 the applicant commissioned a study of the availability of dementia care facilities in Blackpool. The study analysed availability within 2 miles and 5 miles of the application site and identified shortfalls of 201 and 452 places respectively. This report was submitted in support of the previous application in 2010, but was met with concern relating to the age of the information. Consequently, an updated statement was produced in July 2010. This statement acknowledged the existing provision for dementia suffers in the area and took account of the proposed mental health unit at Whyndyke Farm. Nevertheless, given the increasing prevalence of dementia and the fact that many existing sufferers will be cared for in non-specialist accommodation, a need for additional, specialist provision was identified. The Inspector who dealt with the subsequent appeal against the refusal of planning permission in 2010 accepted the appellant's evidence that "dementia beds are likely to be in short supply in the medium to long term", and did not consider any further demonstration of need to be necessary. As the current proposal seeks planning permission for 13 additional beds in place of the 26 beds last proposed, it is considered that sufficient demand exists to support the proposed provision.

Impact on the character of the Stanley Park Conservation Area

The application site adjoins the boundary of the Stanley Park Conservation Area. As such, any impact on the character and appearance of the Conservation Area would be a material consideration. Policy LQ10 of the Blackpool Local Plan relates specifically to the designated Conservation Areas but does not include any requirements or restrictions relating to land use. As the site is already in use for care purposes, and as the development proposed would be a rear extension which would not be easily visible from a public vantage point, it is not considered that the proposal would have a detrimental impact on the character of the Stanley Park Conservation Area.

Acceptability of the Land Use

Policy BH24 of the Blackpool Plan relates to residential institutions and community care facilities. It is permissive of such uses in residential areas subject to various criteria relating to need, the type and intensity of use, the impact on neighbours, the suitability of the premises and the management of the property being met. The applicant has sought to demonstrate a need for additional bedspaces and would operate the facility in conjunction with the existing care home. On this basis, the intensification of the existing use on the site is considered to be acceptable in principle.

Impact on Residential Amenity

The extension would be substantial in size, measuring some 46m in length. The extension would sit just over 5m to the east of the boundary with no. 125 Newton Drive which is also in use as a care home. This property has been extended substantially at the rear with approximately 5m separating the building from the boundary with the application site. As such, 10m would separate the two properties should permission be granted. The extension would be some 16-21m to the west of the boundary with no. 133 NewtonDrive and would have eaves and ridge heights of 3.1m and 5.7m respectively. In addition the extension would be some 26m from the boundary with the properties to the south (which front North Park Drive). Given the height of the proposed extension and the separation distances involved, no detrimental impact on residential amenity arising from a loss of light or outlook is anticipated.

In order to safeguard the privacy of neighbouring residents whilst ensuring an acceptable level of daylight and outlook for residents of the application property, screened windows have been proposed along the western elevation of the extension. These windows would be angled and would look towards the south-west giving only an oblique view, at ground floor level, towards the neighbouring property. To maximise light levels within the proposed extension, velux windows are proposed within the roof pitch. Given this design, and as the extension would be positioned some 16-21m from the boundary with no. 133 Newton Drive to the east, and some 26m from the rear boundary of the site, no loss of privacy is anticipated.

Concerns have been raised by local residents over the additional noise and activity that would be generated at the site and the disturbance this would cause, particularly if the sounds are distressing. The application site is situated on a main road which is well trafficked. It is not considered that the provision of an additional 13 bedspaces would result in a significant increase in noise and activity that would be detrimental to residential amenity. Whilst neighbours concerns relating to the potential behaviour of residents is noted, this is an issue that would be dealt with through the proper management of the facility and care of the residents.

Acceptability of the Design

The application property comprises a pair of semi-detached houses (nos. 127-129 Newton Drive) and a double fronted, detached property (no. 131 Newton Drive) which have been joined by a recessed link and extended at the rear. Overall, the frontage to Newton Drive spans some 60m with the former front garden areas used for parking. The extension would be single-storey in height and would be situated to the rear of the existing buildings. As such, it would not be easily visible from a public vantage point. The extension would be of relatively modern design but would include a pitched roof to make reference to the main buildings and the surrounding properties. The eastern and western elevations of the extension would be brick with rendered sections to break up the massing and screen the bedroom windows on the western side. The end elevation of the building would be entirely rendered with larger, picture windows/doors giving views and access to the rear garden. The design proposed is considered to be acceptable.

Adequacy of Parking and Impact on Highway Safety

At present the Annacliffe Rest Home offers 42 bed spaces. The addition of 13 bedspaces through this application would increase the number to 55. The maximum car parking standards for a nursing home use are based on a ratio of one space for every five residents in recognition of the fact that such uses do not generate a significant demand for car parking. This would equate to a maximum parking requirement of 11 parking spaces which is what is proposed. An additional delivery area is also proposed although it is acknowledged that this could only be used by small delivery vehicles,minibuses and ambulances. Refuse vehicles and large delivery vehicles would have to use Newton Drive as they currently do. The Inspector who dismissed the appeal was concerned about the impact of the 26 bed proposal on highway safety. The current smaller proposal would provide the required number of parking spaces and it would provide a dedicated area for smaller vehicles to park while loading and unloading (without impinging on the car parking spaces and access to the parking spaces). The current proposal would not provide for larger delivery vehicles or bin lorries to enter the site. It is not felt that this lack of provision for the smaller scheme would on its own justify a refusal of the proposal.