DEVELOPMENT CONTROL COMMITTEE – 13 JANUARY 2015 9

APPLICATION NO DC/14/3207/FUL LOCATION

Land Rear Of 65 To 79
Hollingsworth Road
Lowestoft
Suffolk

EXPIRY DATE 19th January 2015

APPLICATION TYPE Full Application
APPLICANT Orwell Housing Association

PARISH
PROPOSAL Demolition of 2 garage blocks and replacement with a 2 storey block of 6
no. self -contained 1 bed flats, together with associated car parking (6
spaces) and 4 car parking spaces for existing residents ,the construction
of a refuse/bicycle Store and provision of associated amenity space

DO NOT SCALE SLA100042052

Reproduced from the Ordnance Survey mapping with the permission of the Controller of Her
Majesty’s Stationery Office © Crown Copyright. Unauthorised reproduction infringes Crown
copyright and may lead to prosecution or civil proceedings.

1. SUMMARY

1.1 This application proposes the demolition of two blocks of garages and the construction of a
two storey block comprising 6no. 1 bed flats with associated car parking, cycle store and
amenity space, to be managed by Orwell Housing Association. The application site is
currently owned by Waveney District Council.

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2. SITE DESCRIPTION

2.1 The application site is located to the rear of the shopping parade and flats located at No’s
65-79 Hollingsworth Road, within an established residential area. As configured, the site
currently provides garaged car parking, amenity space and bin storage areas for the
occupants of No’s 65-79 Hollingsworth Road. To the north of the site is an existing access
route which serves the garages. To the east the site borders onto the rear garden of No.79
Harris Avenue and the playing fields of the Ashley School. To the south is the existing
access road into the site from Hollingsworth Road and the rear garden of No.81
Hollingsworth Road beyond. To the west is the existing access road which currently serves
the rear of the commercial uses, provides the sole access to the residential units on the
upper floors of No’s 65 to 79 Hollingsworth Road and access to garages. Beyond this
roadway is the three storey terraced block with a shopping parade at ground floor and flats
above on the first and second floors.

3. PROPOSAL

3.1 It is proposed to demolish 9 no. garages on the site and construct a two storey block of one
bedroom flats. The existing access from Hollingsworth Road is proposed to be retained to
serve the new development and the existing users. Each of the six flats within the proposal
will have a designated parking space and cycle and bin storage will also be provided.
Residents will have the use of their own amenity space on land surrounding the building.

3.2 A further 4no. car parking spaces are proposed to be made available on the north of the
site for use by existing residents of No’s 65 to 79 Hollingsworth Road.

3.3 It is proposed that these affordable units will be let via Waveney District Council’s ‘Gateway
to Home Choice’ scheme. Orwell Housing Association (the applicant) has advised that it
has secured grant funding for this proposal through the Homes and Communities Agency
so as to be in a position deliver these homes in 2015.

3.4 The Design and Access Statement advises that the proposal:

3.5 “makes excellent efficient use of a brownfield site, fulfilling the social, economic and
environmental objectives of the NPPF in so far as affordable housing is being encouraged
whilst there is also a willing landowner (WDC), developer (Wellington Construction) and
end user (Orwell Housing Association) already in place and

3.6 will revitalise this underused brownfield site within the physical limits of Lowestoft and will
provide a viable development involving a willing landowner, developer and end users,
whilst assisting the local authority in achieving its affordable housing objective. The
Housing Need figures as of April 2013 support the need for affordable housing in Lowestoft
and the surrounding area”.

4. CONSULTATIONS/COMMENTS

4.1 Neighbour consultation/representations: two rounds of consultations have been carried

out following the receipt of an amended design from the applicant. Three representations
have been received from neighbours.

4.2 81 Hollingsworth Road – (rec’d 14th October 2014) representation confirms no objection.
Advised that the site is currently an eye sore and redevelopment would improve its
appearance. Requested a perimeter fence to be erected around the site to stop car parking
on grass, dog fouling and improve security. Also advised that access road should be kept
clear during construction so their garage could be accessed.

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4.3 In response to 2nd consultation a further representation was received on 11th December
2014 advising original plans were preferred due to previous location of bedrooms to the
south which overlooked garden and that these latest revised plans show that the lounge
and kitchen will overlook instead.

4.4 79 Harris Avenue – (rec’d 27th October 2014) representation raises objection on issues of:

• Scale - not in keeping with existing properties, causing overlooking and should be
reduced to two storeys, will make flat residents feel ‘hemmed in’.

• Density – too dense compared with surrounding development, which has larger
footprint and room sizes. Open space will be lost making density of development even
greater.

• Anti-social behaviour – addition of further residents living in a small space and

congested area will lead to more anti-social behaviour. There is a history of crime and
damage in the proposal area.

• Access – access road to the rear of the shops is a primary service road and is in
regular day and night use. Large vehicles turn into this service road and there is
insufficient space to turn. Secondary use of the road is to provide access to flats,
garages and respondent’s rear gates.

• Safety – hazard created by vehicles which will have impact on safety. Increase in
density will increase the safety risk to residents. Concerns highlighted regarding an
increased danger risk to children. No secondary provision observed escape in the
event of fire.

• Appearance – materials do not match, steeped roofs are considered out of character
with the area.

• Flooding – concerns about flood possibilities due to reduction in soft landscaping and
increased run-off from the development proposed.

• Damage – harm to personal property from construction works.

• Privacy – overlooking of respondent’s property due to close proximity of development

proposed.

• Parking – Concerns that the area will become congested due to possible future parking
restrictions on Hollingsworth Road and the number of community facilities in the area.
The possibility of up to 12 additional residents will result in the need for additional car
parking to service need which will impact upon an already over-used facility.

• Wildlife – Concerns that the existing grass, trees and scrubland will diminish wildlife
habitats.

Consultees

4.5 Suffolk County - Highways Department: Response received advising that any
permission which that Planning Authority may give should include a condition that the use
shall not commence until the areas for manoeuvring and parking of vehicles has been
provided and thereafter that areas shall be retained and used for no other purposes, to
ensure that sufficient space for the on site parking of vehicles is provided and maintained in
order to ensure the provision of adequate on-site space for the parking and manoeuvring of
vehicles where on-street parking and manoeuvring would be detrimental to highway safety
to users of the highway.

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4.6 WDC - Environmental Health - Contaminated Land was consulted on the 6 October
2014. Response received advising that the report submitted with the application has
concluded that the most pragmatic way to progress the site is to have a competent person
present on site to inspect the soils during demolition / development and carry out intrusive
investigations if and when required. In addition at least 300 mm of certified clean top soil
will be placed in all garden and soft landscaped areas. These additional works, and any
remediation and validation which may subsequently be required, could be secured using
the usual suite of contaminated land conditions no’s 1 to 4 inclusive.

SITE NOTICES

4.7 The following site notices have been displayed:

General Site Notice Reason for site notice: New Dwelling,

Date posted 09.10.2014
Expiry date 29.10.2014

5. PLANNING POLICY

5.1 The Waveney Core Strategy was adopted in January 2009. Relevant policies include:
CS01, which sets the Spatial Strategy for the District, CS02 which requires high quality and
sustainable design and CS11 Housing.

5.2 Development Management Policies were adopted in January 2011. Policy DM01 sets
physical limits for settlements. Policy DM02 sets design principles, policy DM04 requires
sustainable construction, policy DM16 considers housing density, policy DM17 housing
type and mix and policy DM18 considers affordable housing.

5.3 The National Planning Policy Framework (NPPF) is also relevant to this proposal.

6. PLANNING CONSIDERATIONS

6.1 The application proposals are for a modern, bespoke building which is appropriate in scale
to the surrounding buildings. The design of the scheme has been amended, with a
reduction in overall height being made by the applicant following concerns regarding the
impact upon the outlook of the residential occupiers of the first and second floor flats in
Hollingsworth Road. Whilst the building’s footprint has increased to compensate, this isn’t
seen to have resulted in further problems elsewhere in the overall design.

6.2 The individual design of the flats and their relationship between the surrounding residential
units, landscaping and provision of amenity spaces, car parking and bin / cycle storage has
been examined in the context of policies CS02 (High Quality and Sustainable Design) and
DM02 (Design Principals). The proposed density of this development is particularly high at
approximately 60 units per hectare. However, the application does confirm that since the
development involves one bedroom flats rather that houses, it is comparable with the
density achieved within the existing block of flats located adjacent on Hollingsworth Road.
The proposals are considered to generate an acceptable level of residential amenity for
new residents and the overall design, layout, outlook and amenity of the flats would create
an acceptable living environment.

6.3 The relationship between the proposed building to No’s 65 to 79 Hollingsworth Road, No.
81 Hollingsworth Road and No.79 Harris Avenue have been carefully considered given the
potential problems of undue overlooking and possible consequential loss of privacy or
overshadowing at the separation distances involved with adjacent buildings. Careful
placement of windows and the use of existing trees and vegetation on adjacent land to
screen views into neighbouring properties has created an informed design which is

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 considered to acceptably mitigate the effects of the development upon neighbouring
occupiers.

6.4 The proposal seeks to make better use of a currently underused piece of land which is
currently suffering from the consequences of poor maintenance. This proposal to
regenerate the site would be likely to ensure that the overall condition of the site did not
worsen to a state where it was considered to adversely affect the amenity of the area.

6.5 The loss of 9 no. secure parking garages is offset to some extent by the provision of 4no
new car parking spaces for existing residents. The applicant has carried out a survey of
current use of the garages and identified that only four are in use by local residents. On
that basis, the applicant’s argument of overprovision is difficult to counter, given the
replacement spaces proposed. The applicant has also surveyed car park usage on the
existing surface spaces, located adjacent to site’s access road. The survey confirms that
these parking spaces were not in frequent use outside of commercial trading hours and
that levels of overnight parking on the site were generally low. Suffolk County Council
Highways Authority have not raised any particular concerns relating to this on-site parking
issue and therefore it must be concluded that the parking provision proposed is acceptable.

6.6 The applicant has stated that this development is much needed and has cited the
‘Indicators of Need and Demand for Affordable Housing in Lowestoft, Carlton Colville and
Kessingland Report 2013’. The report confirms there to be a high demand for smaller (1
bed) affordable flats in the Lowestoft Area, as reflected by the needs identified. The report
confirms there to be a considerable mismatch between the size of properties needed
(predominantly one and two bedroom) and the housing stock available (48% having 3 or
more bedrooms). Existing social housing stock cannot meet the area’s need for 1 and 2
bedroom properties. It is considered that this report is sufficient to demonstrate a local need
for affordable housing of the type proposed in this application.

6.7 The site’s location is sustainable, with access to public transport and within walking
distance of a range of key local facilities including shops, school, doctors’ surgery and other
community facilities. As such, the proposal accords with the NPPF which actively seeks to
bring vacant and underused previously developed land in sustainable locations back into
use and to promote regeneration, whilst helping to mitigate against declining environmental
quality.

6.8 There are mature trees adjacent to the site. The Council’s Arboricultural and Landscape
Officer has advised that the site is not within a conservation area and there are no TPO’s
affecting trees on the site or neighbouring sites. Along the boundary with Harris Avenue
and the playing fields there is a mature mix of trees predominantly Maples & Poplars – with
a Poplar behind the garage block and an Ash further along closer to No. 81 Hollingsworth
Road. She recommends that a detailed landscape scheme would be required. A condition
is recommended.

7. CONCLUSION

7.1 Whilst there were some concerns with the initial scheme submitted by the applicant, the
revised scheme is considered to address all major concerns relating to development on this
site. The principle of the development accords with Core Strategy and will contribute
toward the provision of the much needed affordable housing. Accordingly, the application is
recommended for approval.

8. RECOMMENDATION

That permission be granted subject to the completion of a section 106 agreement and the
imposition of the following conditions:

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1. The development hereby permitted shall be begun within a period of three years beginning
with the date of this permission.

Reason: In accordance with Section 91 of the Town and Country Planning Act 1990 as
amended.

2. The development hereby permitted shall not be brought into use until it has been
completed in all respects strictly in accordance with drawing numbers SL01 REV A, PL01
REV F, PL01 REV D received 5th December 2014, for which permission is hereby granted
or which are subsequently submitted to and approved in writing by the Local Planning
Authority and in compliance with any conditions imposed by the Local Planning Authority.

Reason: To secure a properly planned development.

3. Unless otherwise agreed by the Local Planning Authority, development other than that
required to be carried out as part of an approved scheme of remediation must not
commence until conditions 4 to 7 have been complied with. If unexpected contamination is
found after development has begun, development must be halted on that part of the site
affected by the unexpected contamination to the extent specified by the Local Planning
Authority in writing until condition 7 has been complied with in relation to that
contamination.

Reason: To ensure that risks from land contamination to the future users of the land and
neighbouring land are minimised, together with those to controlled waters, property and
ecological systems, and to ensure that the development can be carried out safely without
unacceptable risks to workers, neighbours and other offsite receptors.

4. Prior to the commencement of development, an investigation and risk assessment, in

addition to any assessment provided with the planning application, must be completed in
accordance with a scheme to assess the nature and extent of any contamination on the
site, whether or not it originates on the site. The contents of the scheme are subject to the
approval in writing of the Local Planning Authority. The investigation and risk assessment
must be undertaken by competent persons and a written report of the findings must be
produced. The written report is subject to the approval in writing of the Local Planning
Authority. The report of the findings must include:
(i) a survey of the extent, scale and nature of contamination;
(ii) an assessment of the potential risks to:
- human health,
- property (existing or proposed) including buildings, crops, livestock, pets, woodland and
service lines and pipes,
- adjoining land,
- groundwaters and surface waters,
- ecological systems,
- archaeological sites and ancient monuments;
(iii) an appraisal of remedial options, and proposal of the preferred option(s).
This must be conducted in accordance with DEFRA and the Environment Agency’s ‘Model
Procedures for the Management of Land Contamination, CLR 11’.

Reason: To ensure that risks from land contamination to the future users of the land and
neighbouring land are minimised, together with those to controlled waters, property and
ecological systems, and to ensure that the development can be carried out safely without
unacceptable risks to workers, neighbours and other offsite receptors.

5. A detailed remediation scheme to bring the site to a condition suitable for the intended use
by removing unacceptable risks to human health, buildings and other property and the
natural and historical environment must be prepared, and is subject to the approval in
writing of the Local Planning Authority. The scheme must include all works to be
undertaken, proposed remediation objectives and remediation criteria, timetable of works

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 and site management procedures. The scheme must ensure that the site will not qualify as
contaminated land under Part 2A of the Environmental Protection Act 1990 in relation to
the intended use of the land after remediation.

Reason: To ensure that risks from land contamination to the future users of the land and
neighbouring land are minimised, together with those to controlled waters, property and
ecological systems, and to ensure that the development can be carried out safely without
unacceptable risks to workers, neighbours and other offsite receptors.

6. The approved remediation scheme must be carried out in accordance with its terms prior to
the commencement of development other than that required to carry out remediation,
unless otherwise agreed in writing by the Local Planning Authority. The Local Planning
Authority must be given two weeks written notification of commencement of the
remediation scheme works.
Following completion of measures identified in the approved remediation scheme, a
verification report (referred to in PPS23 as a validation report) that demonstrates the
effectiveness of the remediation carried out must be produced, and is subject to the
approval in writing of the Local Planning Authority.

Reason: To ensure that risks from land contamination to the future users of the land and
neighbouring land are minimised, together with those to controlled waters, property and
ecological systems, and to ensure that the development can be carried out safely without
unacceptable risks to workers, neighbours and other offsite receptors.

7. In the event that contamination is found at any time when carrying out the approved
development that was not previously identified it must be reported in writing immediately to
the Local Planning Authority. An investigation and risk assessment must be undertaken in
accordance with the requirements of condition 4, and where remediation is necessary a
remediation scheme must be prepared in accordance with the requirements of condition 5,
which is subject to the approval in writing of the Local Planning Authority.
Following completion of measures identified in the approved remediation scheme a
verification report must be prepared, which is subject to the approval in writing of the Local
Planning Authority in accordance with condition 6.

Reason: To ensure that risks from land contamination to the future users of the land and
neighbouring land are minimised, together with those to controlled waters, property and
ecological systems, and to ensure that the development can be carried out safely without
unacceptable risks to workers, neighbours and other offsite receptors.

8. The use shall not commence until the areas within the site shown on submitted drawing
number PL02 - Rev D for the purposes of manoeuvring and parking of vehicles has been
provided and thereafter that areas shall be retained and used for no other purposes.

Reason: To ensure that sufficient space for the on site parking of vehicles is provided and
maintained in order to ensure the provision of adequate on-site space for the parking and
manoeuvring of vehicles where on-street parking and manoeuvring would be detrimental to
highway safety to users of the highway.

9. Samples of all external facing and roofing materials shall be submitted to and approved by
the Local Planning Authority before development commences. Development shall be
carried out in accordance with the approved samples.

Reason: To ensure the satisfactory external appearance of the development.

10. Before the development begins, details of the siting, height and type of screen walls and
fences shall be submitted to and approved by the Local Planning Authority.

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 Reason: In the interests of neighbour amenity and in order to enhance the appearance of
the locality.

11. No development shall commence until the agreed foul water strategy has been submitted
to and approved in writing by the Local Planning Authority. No dwellings shall be occupied
until the works have been carried out in accordance with the foul water strategy so
approved unless otherwise approved in writing by the Local Planning Authority.

Reason: To prevent environmental and amenity problems arising from flooding.

12. Prior to being discharged into any watercourse, surface water sewer or soakaway system,
all surface water drainage from parking areas and hard standings should be passed
through trapped gullies with an overall capacity compatible with the site being drained.

Reason: to prevent pollution of watercourses or groundwater.

13. No development shall take place until full details of both hard and soft landscape works
have been submitted to and approved in writing by the Local Planning Authority and these
works shall be carried out as approved. These details shall include proposed finished
levels or contours; means of enclosure; car parking layouts; other vehicle and pedestrian
access and circulation areas; hard surfacing materials; minor artefacts and structures (e.g.
furniture, play equipment, refuse or other storage units, signs, lighting etc.); proposed and
existing functional services above and below ground (e.g. drainage power, communications
cables, pipelines etc. indicating lines, manholes, supports etc.); retained historic landscape
features and proposals for restoration, where relevant. Soft landscape works shall include
planting plans; written specifications (including cultivation and other operations associated
with plant and grass establishment); schedules of plants, noting species, plant sizes and
proposed number/densities where appropriate; implementation programme.

Reason: To ensure the provision of amenity afforded by appropriate landscape design.

14. The landscaping scheme shall be completed within 12 months from the completion of the
building shell, or such other date as may be agreed in writing with the Local Planning
Authority. Any trees or plants which die during the first 3 years shall be replaced during the
next planting season.

Reason: to ensure the satisfactory external appearance of the building.

15. Prior to the occupation of the final dwelling a final Code for Sustainable Homes certificate
for each dwelling shall be submitted to and approved in writing by the Local Planning
Authority. The final certificate shall be produced by an accredited assessor and
demonstrate compliance with code level 3.

Reason: To ensure the delivery of sustainable construction.

BACKGROUND INFORMATION: See application ref: DC/14/3207/FUL at

www.waveney.gov.uk/publicaccess
CONTACT Paul Vertigen, Area Planning Officer, 01502 523021,
Paul.Vertigen@eastsuffolk.gov.uk

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