AUGUST 2018

DOCUMENT

Shepperton Studios Planning Application for Growth 2018

Planning Statement

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Shepperton Studios Planning Statement

August 2018

Contents

1. Overview of the Case 1

2. Introduction 3

3. Shepperton Studios: A Global Brand 7

4. Site Description 11

5. Planning History 18

6. The Proposals 19

7. Planning Policy Context 27

8. Policy assessment of the proposals 33

9. Green Belt 53

10. Third Parties 65

11. The Planning Balance 67

Appendix 1: Planning History (existing and expansion site)

Appendix 2: Adopted Planning Policy extracts

Appendix 3: Third Party Letters of Support

Sara Dutfield sara.dutfield@turley.co.uk

Client Shepperton Studios Limited

Our reference PINR3003 16 August 2018

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1. Overview of the Case1

1.1 The case for the redevelopment and expansion of Shepperton Studios is founded upon:

1) The projected growth of the global film and high-end television (HETV) sectors of the creative industries.

2) The Government’s ongoing policy of strong, sustainable and balanced economic growth and support for the creative industries. The leading role and potential of the UK, West London and especially Shepperton Studios in providing for the growth.

3) The role of the West London cluster as the prime location for investment in the UK film and HETV sector.

4) The shortage of capacity within the leading UK studio facilities in the West London cluster to meet the identified demand for large ‘blockbuster’ film and HETV productions, predominantly from the inward investment, international market.

5) The need for Shepperton Studios to expand and improve its facilities both to meet these identified demands and accommodate the current and future requirements of film and HETV productions.

6) The world-class reputation of Shepperton Studios, founded on an unparalleled legacy of almost a century of film-making, to be secured for the future through this proposed [£500 million] development. Spelthorne Borough Council’s (‘SBC’) economic and corporate strategies of recognising the importance and potential of Shepperton Studios to the local economy and to local education, skills and training opportunities.

7) The tested commercial and design solution for the redevelopment and expansion proposals.

8) The substantial associated economic and social benefits of scale.

9) The absence of a credible and viable alternative to a major expansion at Shepperton Studios if the UK film growth ambition is to be met and existing economic activity retained.

10) The considerable harm to the industry that would arise from lost inward investment and economic benefits should the proposed expansion of Shepperton Studios not be allowed to proceed.

1.2 The proposed expansion will deliver substantial economic benefits:

• The sustainable growth of the UK film, HETV and screen based media industry.

1 See also ‘The Case for Space’ application document

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• A significant step change in the capability of the West London cluster of production facilities to sustainably attract inward investment into the UK from the international film and HETV production market.

• A construction spend of c. £500m.

• A construction phase of four years creating approximately 1,470 FTE temporary construction jobs.

• The accommodation of around 2,800 total jobs on site.

• A total of 5,000 FTE jobs including those supported on site, indirectly through the business supply chain and induced through onward expenditure of wages in the economy.

• A total contribution of over £320m GVA (gross value added)once the development is completed spill-over effects including:

‒ a total of approximately 900 FTE jobs supported in non-film industries

‒ a total Exchequer revenue of around £60m per annum

‒ a total export contribution of around £75m per annum

• Education, training and apprenticeship opportunities.

• Enhanced business rate revenue for SBC.

1.3 This is the case for the redevelopment and expansion of Shepperton Studios to be considered in the determination of the planning application and in particular to be weighed against the Green Belt status of part of the application site. A planning balance between Green Belt constraint and the demonstration of very special circumstances to outweigh the presumption against a grant of planning permission is the key planning issue for determination. The applicants’ case is that the Green Belt harm is outweighed by the other material considerations and benefits and that a grant of planning permission is fully justified.

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2. Introduction

Introduction

2.1 This Planning Statement is submitted on behalf of Shepperton Studios Ltd (SSL) to SBC in support of an outline planning application to redevelop and extend Shepperton Studios within its existing site and onto adjacent land for the reconfiguration and expansion of facilities for film and HETV production facilities and associated support services.

2.2 The application site comprises c.60ha of land comprising the existing Shepperton Studios site, land located to the south-west and west of the existing Studios site owned by SSL (the ‘Expansion site’) and the River Ash corridor.

2.3 The proposal is described as follows:

“Outline planning permission with all matters reserved (except for principal points of access) for the redevelopment and expansion of Shepperton Studios, comprising the partial demolition and replacement of existing accommodation; construction of new sound stages, workshops, office accommodation, entrance structures and reception, security offices and backlots; creation of a new vehicular and pedestrian access from Shepperton Road and the relocation of existing access off Studios Road; with associated car parking; landscaping and ecological enhancements.”

2.4 This Planning Statement is intended to addresses all the relevant planning policy considerations associated with the proposed development, and should be read in conjunction with the other documents and drawings submitted in support of the application, including:

• Planning application forms and certificates of ownership;

• Community Infrastructure Levy Forms;

• Application drawings:

‒ 3542-FBA-00-XX-DR-PP.1 Existing Site Layout ‒ 3542-FBA-00-XX-DR-PP.2 Demolition ‒ 3542-FBA-00-XX-DR-PP.3 Movement ‒ 3542-FBA-00-XX-DR-PP.4 Development Zones ‒ 3542-FBA-00-XX-DR-PP.5 Heights ‒ 3542-FBA-00-XX-DR-PP.6 Green Infrastructure ‒ 3542-FBA-00-XX-DR-PP.7 Flood Protection ‒ 3542-FBA-00-XX-DR-PP.8 Levels ‒ 3542-FBA-00-XX-DR-PP.12 Composite Parameter Plan

• Illustrative drawings:

‒ 3542-FBA-00-XX-DR-05_10-007 Illustrative Masterplan

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• The Case for Space;

• Review of the UK film and high-end TV production facility market;

• Behind the Scenes at Shepperton Studios;

• Expanding Shepperton Studios: The Economic Impact

• Design and Access Statement (including illustrative sections);

• Environmental Statement;

• Ecological Assessment;

• Landscape and Visual Appraisal;

• Sustainability Assessment;

• Heritage Statement;

• Arboricultural Implications Report;

• Geo-environmental desk study;

• Planning Noise Report; and

• Statement of Community Engagement.

2.5 The application is in outline form with all matters reserved for future consideration except principal means of access into the site. In accordance with The Town and Country Planning (Development Management Procedure) (England) Order 2015, the application provides details of potential routes of access through the site on the Parameter Plans, although the fixed routes and designs will be secured through reserved matters.

Context

2.6 This Statement is intended to assist SBC in its determination of the application having regard to the requirements of the Development Plan, the National Planning Policy Framework (the Framework) and Planning Practice Guidance (PPG). It evaluates the proposed development against local and national planning policies and carries out an overall planning balance.

Structure of Planning Statement

2.7 The remainder of the Statement is structured as follows:

• Section 3: an introduction to Shepperton Studios as an iconic brand leader in the global film industry; its reputation, heritage, scale, facilities, significant offer and role both nationally and internationally;

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• Section 4 and 5: a description of the site and its surroundings, planning designations and the relevant planning history;

• Section 6: the proposed development in detail;

• Section 7: a summary of the development plan policies, national policies, economic, film and screen based media policy context against which the development proposals will be assessed;

• Section 8: the outline of the proposal’s compliance with the Development Plan and other material considerations;

• Section 9: Green Belt assessment;

• Section 10: Third Parties; and

• Section 12: The overall planning balance.

Environmental Impact Assessment

2.8 Schedule 2 of the Town and Country Planning (Environmental Impact Assessment) Regulations 2017 (hereafter referred to as the ‘EIA Regulations’) identifies projects where an EIA is required. The EIA Regulations implement the requirements of the European Community’s Directive on Environmental Assessment (85/337/EEC), as amended by the Council Directive No. 97/11/EC and 2011/92/EU. Further guidance is provided in the National Planning Practice Guidance (NPPG).

2.9 The size of the Site is above the 0.5ha ‘threshold’ for an urban development project as set out in category 10b of Schedule 2 of the EIA Regulations, and therefore the need for EIA must be considered.

2.10 A request for a screening opinion was submitted to SBC on 6 June 2018. SBC subsequently issued its Screening Opinion on 26 June 2018 (Appendix 1 of the Environmental Statement (ES)) which confirmed that:

“Based on the information submitted, the Planning Authority is of the opinion that the development should be classified as ‘EIA development’.”

2.11 The Council’s response was accompanied by the notice issued under the EIA Regulations and an associated report.

2.12 An informal Scoping Opinion was sought from the Council and the ES has been prepared on the basis of the response received. A copy of the Council’s Informal Scoping Opinion is provided at Appendix 2 of the ES.

2.13 In response to the Scoping Opinion received from SBC, the structure of the ES which accompanies this application is as follows:

• Non-technical summary

• Chapter 1 – Introduction

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• Chapter 2 – Approach and Methods

• Chapter 3 – Site and Surrounding Area

• Chapter 4 – The Proposed Development

• Chapter 5 – Alternatives and Design Evolution

• Chapter 6 – Legislation and Planning Policy Context

• Chapter 7 – Transportation

• Chapter 8 – Air Quality

• Chapter 9 – Hydrology and Flood Risk

• Chapter 10 – Summary and Conclusions

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3. Shepperton Studios: A Global Brand

3.1 This section of the Planning Statement sets out the background to the proposed development. It provides an overview of Shepperton Studios and its evolution into one of the leading facility providers to the international film, HETV and other screen based media industries.

3.2 This context enables an understanding of the role of Shepperton Studios, the issues it faces in maintaining its position as a leading international studio and the contribution it can make towards meeting Government policy objectives for growth in this market.

Profile of Shepperton Studios

3.3 Shepperton Studios is a market leader with a global reputation. Alongside Pinewood Studios it offers the largest and most comprehensive film and television production facilities in the UK and is one of the leading film studios in the world2. Key facts include:

• Over 1,000 films have used Shepperton Studios’ facilities winning 126 BAFTAS and 81 Oscars.

• Major inward investment films produced at Shepperton in the last five years include Gravity, Guardians of the Galaxy, Into the Woods, Doctor Strange, Beauty and the Beast, The Mummy, Mary Poppins Returns, Mamma Mia: Here We Go Again and The Voyage of Doctor Dolittle. During the same period, Shepperton has also hosted films such as Mandela: Long Walk to Freedom. Lady in the Van, Florence Foster Jenkins and Christopher Robin.

• It is the first and only facility in the world to receive an award from the British Academy of Film and Television Arts (BAFTA) in 2009 for an Outstanding British Contribution to Cinema (jointly with Pinewood Studios).

• It offers a wide range of facilities that are essential for film and HETV production, on a scale that is currently rivalled by few studios worldwide and only Pinewood in the UK. Key facilities comprise:

‒ 14 sound stages ranging from 3,000 to 30,000 sq ft ‒ 31 workshops ranging from 1,000 sq ft to 11,000 sq ft ‒ Fully serviced production offices ‒ Dressing rooms ‒ Make-up and Hair facilities ‒ Meeting rooms ‒ Wardrobe workshops and costume storage and fitting facilities ‒ Flexible utility rooms ‒ 3 external backlot areas ‒ On site amenities for production employees, staff and tenants including

a canteen and coffee shop.

2 See PwC – “Key Findings”(August 2018) Review of the UK film and high-end TV production facility market

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3.4 The unrivalled range of production facilities, services and skills available on a single site at Shepperton is one of the most comprehensive in the world and provides a unique offer that attracts the best international producers and directors to make their films at Shepperton3.

The Shepperton brand and its history

3.5 Shepperton Studios was established in 1931, becoming “Sound City Film Producing and Recording Studios” in 1932 following the acquisition of Littleton Park Estate by Norman Louden.

3.6 The first feature to be produced was Watch Beverley. The large open space that Littleton Park Estate provided was attractive to productions looking to shoot there, and with its rapid turnover of movies, Sound City was quickly established as a home to independent and up-and-coming young directors.

3.7 By 1936 the studios comprised seven sound stages, a dozen editing rooms, three viewing theatres and a large number of prop, costume and scenery workshops.

3.8 During the Second World War activity at Shepperton was curtailed. Two of its sound stages were used to store sugar from Tate & Lyle and when the nearby Vickers aircraft factory was bombed, production of Wellington bombers shifted to A and B Stages.

3.9 Following the war the London Films producer, director and writer Sir Alexander Korda bought Shepperton Studios under his new British Lion Studio banner and the pre-eminent film-making partners Powell and Pressburger joined him from Pinewood. They were joined shortly afterwards by David Lean, who transferred his production of The Sound Barrier to the studios. John and Roy Boulting were also brought into the fold and Korda backed their ambitious thriller Seven Days to Noon.

3.10 Until his death in 1956, Korda acted as an executive producer and studio administrator and convinced Britain’s most renowned film makers to move to British Lion at Shepperton.

3.11 During the 1980s and 1990s Shepperton was the studio of choice for Sir Richard Attenborough, where he made Ghandi, Cry Freedom and Chaplin.

3.12 In the early 1990s large-scale film productions such as Hamlet directed by and starring Sir Kenneth Branagh and Robin Hood: Prince of Thieves competed for stage space with a mixture of pop promos and TV shows such as Alas Smith & Jones and Red Dwarf. Shepperton’s reputation grew and successful films such as The Crying Game, Four Weddings and a Funeral, Shakespeare in Love and Mary Shelley’s Frankenstein were all filmed there.

3.13 Following a major refit and upgrade orchestrated by Sir Ridley and Tony Scott, a number of high profile, globallysuccessful films were produced at Shepperton including Sense and Sensibility, 101 Dalmatians, Evita, The Mummy (and its sequel), Notting Hill and Billy Elliot.

3 See ‘Behind the Scenes’ for further details on the existing site and its production capabilities

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3.14 Early in 2001, it was announced that Pinewood Studios acquired Shepperton Studios, jointly creating one of the most highly regarded, largest and best-equipped facilities in the world.

The Shepperton Offer

3.15 Shepperton Studios provides a world class range of facilities and services to the film and HETV production industries, supporting productions of all kinds and specifically those with large scale sound stage, backlot, office, workshop and infrastructure requirements.

3.16 The Studios’ primary focus is on providing the best possible production environment for inward investment feature films with budgets which are usually in excess of [$100m]. The individual elements of production are described more fully in the ‘Behind the Scenes’ document submitted with this application, but in summary they comprise:

• Development – script or concept development and scoping of the project, casting and crewing.

• Pre-production – script-writing and production planning

• Physical production – shooting the film on a set or location, including the construction of sets and manufacture of props,, costumes etc.

• Post-production – editing or mixing elements of the film, adding Visual Effects, Computer Generated Imagery (CGI) and sound to pictures.

• Market Testing – re-shooting, editing and refining prior to distribution, production of trailers.

3.17 In turn each of these elements involves many contributors and a vast array of skills. This will include artistic, creative, craft, technical, businesses and professional expertise. Shepperton Studios hosts a permanent on-demand supply of these skills together with access to specialist equipment.

3.18 The process of producing HETV is similar.

3.19 The film production process involves managing many logistical issues, whilst successfully integrating the inputs of a large number of contributors. The process is also expensive, with large budget films costing in excess of $100 million to produce before the cost of marketing.

3.20 As well as the complexities and high costs, there are a number of risks beyond the producer’s control which can jeopardise the success of a project.

3.21 Therefore, anything that can reduce or minimise the risk of production is a high priority to filmmakers among the reasons why they choose a particular country and studio to base their production. The more Shepperton Studios can reduce the risks to producers and their investors, the more attractive it – and the UK - will be to the market.

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3.22 Shepperton Studios offers some of the most complete range of physical facilities in the UK required for film and HETV. Producers favour Shepperton because they have ease of access to all the necessarily facilities, skills and resources they require, thereby minimising the risk of disruption and delays to the filming schedule. However, modern demands for large film productions mean that it is becoming increasingly difficult to accommodate a large scale production at Shepperton: some recent films have had to be shot between both Shepperton and Pinewood, which increases the costs and timescales for filming and the risk profile of any individual production.

3.23 Given Shepperton’s standing within the industry, its clients are leading producers attracted by the quality, scale and range of the facilities, skills and services available on site, and the exceptional pool of production talent which Shepperton can draw from the catchment of the West London cluster. As a result, Shepperton Studios has a global customer base with filmmakers from the USA, Europe and beyond providing a large share of its business and making a significant contribution to UK inward investment and exports. A substantial proportion of its business also comes from UK film and other media producers.

3.24 It is critical to note that there is a significant unmet demand for large film in the UK and for Shepperton. Research by PwC has shown that in the UK-London there is an annual average lost potential inward investment in major film of c. £950m which is equivalent to around eight blockbuster films4. This is the critical market context for the application and the target of Government policy for growth.

4 Review of the UK film and high-end TV production facility market prepared by PwC

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4. Site Description

Borough Context

4.1 The site lies within the administrative boundary of SBC in Surrey, which has a population of approximately 95,000 people and covers circa 52 square kilometres to the south west of Central London. It is a relatively small borough, 9.7 kms long and 4kms wide with an overall area of 5,116 hectares. It is bounded by Heathrow Airport to the north, the River Thames to the south and the London Boroughs of Hillingdon, Hounslow and Richmond to the east, whilst the M25 runs close to its western boundary.

4.2 The population is densely concentrated in the Borough’s main towns of Ashford, Shepperton, Staines-on-Thames, Stanwell and Sunbury, which cover only 35% of the Borough’s area. The other 65% is Metropolitan Green Belt, of which almost half is either floodplain or reservoir.

4.3 There are three large employers within the Borough: Heathrow Airport, BP and Shepperton Studios.

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Figure 4.1: Borough Wide Context

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Site Context

4.4 Shepperton Studios is located to the west of Littleton village, close to the boundary of the parish of Shepperton. The Studios are strategically located some 9.7kms to the south-west of Heathrow and 29kms to the south-west of central London.

4.5 The primary entrance to the site for vehicles and pedestrians is currently on the south side of Studios Road. There are on-road cycle routes in the vicinity of the site connecting Staines-Upon-Thames with Shepperton.

4.6 In terms of public transport, there are two bus stops located approximately 40m from the site access serving locations in the Borough. Shepperton and Staines railway stations are located approximately 2.4 and 6.3kms respectively offering regular connections to London Waterloo, Reading and Weybridge. Figure 4.2: Site Context

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The Existing Shepperton Studios Site

4.7 The existing Studio site is approximately 11 ha in area and accommodates more than 83,550 sqm (899,430 sqft) of floorspace.

It is contained by:

• Studios Road and the reservoir embankment to the north;

• the River Ash and its corridor of woodland to the south; and

• To the west and east, housing estates built on former Studios’ land and abutting the Studio’s perimeter fence, known as Studios Estate and Magdalene Road respectively.

Figure 4.3: Existing Studios Site

4.8 In addition to the primary entrance on Studios Road, access can also be gained from a gate in the Studio’ southern boundary fence which leads to a path and bridges over the River Ash corridor; this is only used by pedestrians and light vehicles to access the backlots.

4.9 Littleton House is a locally listed building located within the existing studios site. The Church of St Mary Magdalene, a Grade I listed building lies immediately to the east.

The Application Site

4.10 The total planning application site area (‘the Site’) extends to some 60 hectares, comprising three distinct parts (see Figure 4.4):

• The existing Shepperton Studios site (11ha)

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• 39 ha of land located to the south-west and north-west of the existing Studios site including the existing backlots

• A segment of the River Ash corridor between Squires Bridge Road to the east and the application boundary to the west (10ha).

4.11 The Site is bounded by:

• the Queen Mary Reservoir to the north, which is formed by a continuous grassed embankment rising approximately 10m above the studio ground level;

• Shepperton Road to the south;

• open arable fields (formerly gravel extraction sites) to the west, beyond which is the Village of Laleham; and

• the residential areas of Shepperton to the east.

4.12 The residential estate of Studios Road is excluded from the application site but lies in a central position between the parcels of land forming the application site. It is also served by Studios Road, the current main access to the Studios.

Figure 4.4: Application Site Plan

4.13 Topographically, the Site straddles the River Ash and extends across the floodplain at approximately 12m AOD. The northern part of the Site abuts the embankment of the Queen Mary Reservoir, which rises steeply above the site. Land at the extreme north

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west of the Site rises to approximately 16m AOD in a shallow mound formation, with the River Ash following this curved valley form5.

4.14 Parts of the Site have been subject to excavation and extraction works in recent history, at times creating a series of flooded gravel pits. Following remediation works this area is now predominantly flat.

4.15 The south eastern corner of the Expansion site incorporates the current Studio backlots which occupy 7.9 hectares, bounded to the north by the River Ash corridor and to the east and south by residential development, a small light industrial complex and Shepperton Road.

4.16 The remainder of the Expansion site was formerly a horticultural nursery, known as Laleham Nurseries. It comprises a collection of small buildings and glasshouses with areas of hardstanding, which are now vacant and in a dilapidated state.

5 See Design and Access Statement for topographic and section detail

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Figure 4.5: Plan of Expansion site

4.17 The River Ash corridor forms the final part of the application site and comprises 10ha of the river, its associated banks and immediate surroundings.

4.18 Public access to the corridor can be gained from Squires Bridge Road and from Studios Estate.

4.19 Centrally within the corridor there is a bridge connecting the existing Studio site with the backlots. Whilst the bridge is open to the public, access to the Studio’s land either side is only through access-controlled gates.

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5. Planning History

5.1 The existing Studio site has been in use since 1931 and has a long planning history associated with it. This includes recent applications in relation to car parking (ref. 15/00342/FUL) and workshop buildings and more historic applications in relation to buildings for general studios use, including sound stages.

5.2 Of most significance in relation to this application is the outline permission secured under reference 04/0499/OUT (and granted by the Council in March 2006) for the masterplan redevelopment of the Shepperton Studios site. This application proposed the densification of the site through the redevelopment of a large number of the existing buildings to provide 46,870 square metres (504,500 square feet) of net new floorspace. Most of this new floorspace (63%) was proposed to be on the upper floors of buildings, producing a maximum height of 22.5 metres across various parts of the site.

5.3 The masterplan was implemented through the approval and construction of Workshop 9 (building P2-1 under the masterplan) in September 2011.

5.4 In relation to the expansion site, the planning history can be split into two distinct parts: the use of the land for sand and gravel extraction (and its restoration) and the use of the land as backlots to allow external filming in association with the existing Studio site.

5.5 Notably, the backlot planning permission (ref. 11/00382/FUL) allows the construction of new workshop buildings on Green Belt land south of the River Ash corridor.

5.6 Full details of all applications for the existing and expansion site are included at Appendix 1.

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6. The Proposals

Description of Development

6.1 The formal description of the proposed development is:

“Outline planning permission with all matters reserved (except for principal points of access) for the redevelopment and expansion of Shepperton Studios, comprising the partial demolition and replacement of existing accommodation; construction of new sound stages, workshops, office accommodation, entrance structures and reception, security offices and backlots; creation of a new vehicular and pedestrian access from Shepperton Road and the relocation of existing access off Studios Road; with associated car parking; landscaping and ecological enhancements.”

Form of the Outline Application

6.2 The outline application is supported by a series of parameter plans which provide the framework and set the principles for which future reserved matters applications will be brought forward. The parameters are explained further below.

6.3 An Illustrative Masterplan with sections has also been prepared (Dwg. nos: 3542-FBA-00-XX-DR-05_10-007 and Design and Access Statement) and is submitted for illustrative purposes only. It is not submitted for formal approval. The illustrative layout demonstrates that the proposals can be appropriately accommodated within the site, while respecting the amenity of adjacent development.

Parameter Plans PP.1: Existing Site Layout and PP.2: Demolitions

6.4 The first two parameter plans show the existing site layout and the existing buildings which are proposed to be demolished.

Parameter Plan PP.3: Movement

6.5 The primary entrance to the existing Studio site for vehicles and pedestrians is currently on the south side of Studios Road, with onward connection to the wider highway network via New Road heading east, and via Squires Bridge Road heading south. A secondary vehicular access is currently provided from an existing roundabout junction between the B376 Shepperton Road and Littleton Lane although this is not used on a daily basis and services the backlots only.

6.6 The application seeks detailed approval of the proposed means of vehicular access into the application site from the public highway. The proposals include the following:

• Main access - a proposed new roundabout access on to the B376 Shepperton Road; and

• Secondary access – from Studios Road including reconfiguring the access arrangements to the existing Studios Estate.

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6.7 Internal access arrangements within the application site are reserved for subsequent approval. Parameter Plan PP.3 confirms the proposed hierarchy and alignment of pedestrian and vehicular circulation routes within the application site, and associated ‘limits of deviation’ are indicated. Importantly the secondary circulation routes will be refined through subsequent reserved matters approvals, where the exact layout will be confirmed.

6.8 The internal access arrangements also include a bridge crossing over the River Ash to connect the different areas of the expanded Studio. The location of the bridge crossing has been defined by the arboriculture and ecological work undertaken to ensure that no harm is caused to the River Ash corridor in this locality.

6.9 The movement parameter plan also defines the approximate alignment of a network of pedestrian routes through the River Ash corridor, providing a circular route from Squires Bridge Road. A number of pedestrian only bridges are also identified on this circular route.

Parameter Plan PP.4: Development Zones

6.10 Parameter Plan PP.4 identifies the development zones (including backlots and parking areas). The edge of each development zone is identified, as is a limited level of horizontal deviation for each in order to provide an appropriate degree of flexibility at the reserved matters stage. In addition, parcels are proposed to be capable of being amalgamated outside of the primary circulation routes.

6.11 A summary description of each main building type or land use proposed in the application and its characteristics and function for screen based media production is presented in Table 6.1 below:

Table 6.1: Types of Proposed Accommodation

Building Type Description

Sound stages Sound stages are large soundproofed buildings which offer enclosed, high quality and technically controlled facilities for shooting film and recording dialogue. They have structural elements built in, such as lighting gantries and electrical infrastructure designed for filming.

Workshops Workshops are used for the construction of sets and props. These activities increasingly require higher head rooms and larger floor areas. A number of recent productions have begun using workshops as linear production lines where teams specialise in a certain process and the set props move down the line in a production process.

Offices Offices are used by staff employed by an individual production company for the creative, managerial, financial and administrative functions of a production.

Office-type space can also be used by productions for dressing rooms, make-up and hair rooms, wardrobe, meeting rooms, flexible

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utility spaces and for editing picture and sound.

They are also occupied by companies providing a range of media-based support services to the production companies using Shepperton Studios. A small amount of floorspace will be occupied by SSL to manage, operate and maintain the site.

Backlot Open land used for the construction of exterior sets and filming outdoor special effects. They also provide the flexibility for temporary storage and for the parking of vehicles associated with film and television production.

Development Yield

6.12 The proposed development includes the demolition of existing outdated accommodation and the erection of new buildings, as defined by Parameter Plan PP.2 - Demolition.

6.13 Each building type as defined above will be accommodated on both the existing Studios and the expansion areas of the Site.

6.14 In order to retain flexibility to respond to the market over the lifetime of the outline planning permission, consent is sought for the overall floorspace figures as shown at Table 6.2.

Table 6.2: Shepperton Studios floorspace (GEA) – for approval (1)

Accommodation Existing (A)

Demolitions (B)

Proposed new (C)

Total (A-B+C)

Net addition (D)

m2 83,560 51,859 164,708 196,409 112,849

sq ft 899,432 558,206 1,772,902 2,114,129 1,214,696

(1) All figures GEA

6.15 An indicative breakdown of uses within that overall figure is provided at Table 6.3 to illustrate one way in which the development could be built out. This is not submitted for approval.

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Table 6.3: Shepperton Studios indicative building types mix (GEA) – illustrative only (2)

Accommodation Existing (A)

Demolitions (B)

Proposed new (C)

Total (A-B+C)

Net addition (D)

Stages

m2 20,837 10,006 67,902 78,733 57,896

sq ft 224,288 107,704 730,891 847,475 623,187

Workshops

m2 25,053 14,666 61,090 71,477 46,424

sq ft 269,668 157,863 657,567 769,372 499,703

Offices

m2 24,218 14,123 32,715 42,810 18,592

sq ft 260,680 152,018 352,141 460,803 200,122

Other (3)

m2 13,452 13,064 3,001 3,389 -10,063

sq ft 144,796 140,619 32,302 36,478 -108,317

(2) Based upon operational requirements of a film studio as known. Subject to variations within limits. Submitted for information only and not part of the planning application (3) Includes entrance structures, cabins, recycling, pass office etc

6.16 In line with the parameters approach adopted throughout the application only the total floorspace figures are proposed for approval, with the breakdown of spaces shown for illustrative purposes only

6.17 The illustrative masterplan shows that a total of 2,595 permanent surface car parking spaces (with an additional 250 spaces for overflow parking) will be available within the site to support the development. This would represent a net increase of 1,798 spaces from the existing provision as show below.

Car Parking Existing Proposed Loss Proposed Total

Permanent 587 187 2,195 2,595

Temporary 460 460 250 250

Total 1,047 647 2,445 2,845

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Parameter Plan PP.5: Heights

6.18 Parameter Plan PP.5 defines the maximum height of built form on each proposed development zone. This parameter plan defines 4 height zones: +7m, +10m, +15.5m and +21.5m measured Above Ordnance Datum (AOD) as shown on Parameter Plan PP.8 - Levels. These heights are derived from SSL’s experience of production height requirements in existing buildings both at Shepperton and Pinewood Studios; they follow discussion with industry experts and production companies to understand existing and potential future building size requirements, and they have regard to adjoining land uses.

6.19 These parameters will provide SSL with appropriate levels of design flexibility at reserved matters stage, to ensure that what is to be built meets the industry demand at the time.

Parameter Plan PP.6: Green Infrastructure

6.20 A minimum of 3ha of the application site will comprise soft landscaping in addition to the River Ash corridor and woodland to the north west of the site. A key design principle of the landscape / ecology strategy is to achieve a net biodiversity gain.

6.21 The Green Infrastructure parameter plan defines the proposed areas of existing landscaping planting to be retained, as well as areas of new planting and structural landscaping.

6.22 Notably, the ancient woodland in the north western corner of the site is retained, and is safeguarded from the development by the provision of soft landscape screening. Furthermore, the River Ash corridor, which falls within the confines of the site boundary, is to undergo restorative management to increase its ecological value. The Ecological Appraisal provides a full summary of the ecological enhancements proposed as part of the planning application. These enhancements may be secured by planning condition or obligation, as appropriate.

6.23 Landscape areas are proposed to the boundaries of the site, in particular adjacent to the rear of properties on Laleham Road, Cranwell Grove and Studios Estate. A large area of landscaping is proposed on the western boundary of the expansion site, which will consist of a circa 40m landscaped screen.

6.24 One water attenuation pond will be created in the north-west area of the expansion site, in proximity to Development Zone D11. This will be designed to appeal to a range of different aquatic, reptile and ornithological species through the incorporation of design features such as fringing reed beds and marginal plant species. Swales will also be created along the western boundary of the expansion site and to the south of development zone D11 and these will feed into the attenuation ponds.

6.25 Full details of the potential landscape and ecological measures are set out within the Ecological Assessment and Design and Access Statement.

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Parameter Plan PP.7: Flood Protection

6.26 The proposed development will incorporate a Sustainable Drainage System (SuDS) ensuring that surface water discharge rates from the proposed development do not exceed the existing level. For new buildings in the expansion site discharge rates will be controlled to greenfield rates.

6.27 Elements of the SuDS include potential rainwater capture from permeable surface areas and swales, attenuation ponds and wetland areas as defined on Parameter Plan PP.7 – Flood Protection.

6.28 The flood protection parameters have been designed to provide protection of the site and downstream from flooding based upon the current Environment Agency model. To this has been added a further ‘risk’ allowance to give a worst and future proof case. This will be agreed with the Environment Agency and controlled in a planning permission by a suitable condition.

Parameter Plan PP.8: Levels

6.29 The majority of the site sits at around 12m AOD, with some areas of higher ground in the North West parcel of the site.

Implementation – timescales

6.30 Planning approval is sought for an outline permission with reserved matters to be submitted over a ten year period.

6.31 The need for additional sound stage space in the film cluster of West London and at Shepperton is pressing. The applicant would seek to bring forward a substantial first phase as soon as possible after a grant of planning permission. However, the scheme is of significant scale and has a construction cost of about £500m. In order to manage this, an extended life outline permission is required of 10 years. This is the life that was granted by the Secretary of State for Communities and Local Government at Pinewood and at Warner Bros Leavesden (the other two major UK film studio complexes).

6.32 It is anticipated that, subject to planning permission being granted, development would commence in 2019 for an initial phase subject to the prior approval of the requisite reserved matters.

Summary of pre-application discussions with SBC and statutory consultees

6.33 A series of pre-application discussions has taken place with SBC regarding the proposed development since the inception of the project. This has included discussions in respect of the principle of the development, the form of the development and the application itself.

6.34 General feedback from SBC has highlighted their support for economic development within the Borough and their support for Shepperton Studios itself as the third largest employer in the Borough. It has also highlighted matters about which SBC requires information to be submitted with the planning application.

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6.35 Meetings have also taken place with stakeholders in respect of various technical matters including Highways, Drainage and Flooding, Landscape and Trees.

Summary of public and stakeholder consultations

6.36 A full and detailed stakeholder consultation process has taken place, including workshops with neighbouring residents and an exhibition with the wider community. Full details of the activities are set out within the accompanying Statement of Community Engagement (SCE).

6.37 A series of meeting has also taken place with statutory and non-statutory consultees including the Environment Agency, Surrey County Council (Highways and Drainage), SBC’s landscape team and SBC itself. A summary of the outcomes of these meetings is set out below.

• Environment Agency – An initial meeting with the planning liaison officer gave comfort that the presentation of the Flood Risk Assessment and Drainage Strategy were acceptable. Discussions also took place around the Agency being in the process of producing a new flood model for the Lower Thames, which could potentially impact upon the application site. Following the meeting further discussions have taken place in respect of the modelling, the ground levels on the site (which appear different from the detailed topographical survey compared to the data used for the model) and the correct approach to take to the flood mitigation measures proposed as part of this application. Full details are contained within the submitted Flood Risk Assessment.

• SCC Highways – A series of meetings have taken place with the highways authority, and subsequent discussions via telephone and email. The scope of the Transport Assessment was agreed with the SCC and specific agreement sought on matters such as traffic impact parameters. These discussions included agreement on the junctions to be surveyed and on the approach to traffic generation, distribution and assignment.

• SCC Drainage – A meeting was held on the 19th July 2018 and a number of points agreed:

‒ The existing studio (brownfield area) of the site will have a minimum of a 20% betterment on existing rates. The FRA / Drainage strategy will provide justification as to why discharge rates cannot be reduced further.

‒ Greenfield areas will be limited to greenfield run-off rates.

‒ The FRA will provide evidence/justification to confirm why infiltration is not possible.

‒ The existing residential area is a separate system.

‒ All overland flows will be controlled.

‒ A source control approach has been adopted.

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‒ Some flooding will be designed to occur over and above the 1 in 30 year event however this will be contained on site.

‒ Existing Thames Water covenants means that the site is constrained by a maximum dig depth of 0.5m in the northern areas and therefore storage will be provided in the subbase of the permeable surfacing.

‒ Surface water outfalls will be able to function during a ‘flood’ event: it is likely that water levels in the River Ash will be delayed and therefore outfalls will not be submerged.

‒ As the planning application will be made in August 2018, the report submitted to validate the application will use the flood level information currently available at the time.

‒ Surface water attenuation areas will be situated outside Flood Zone 3. They would be acceptable within Flood Zone 2.

‒ Ground water levels should be considered in the design of surface water attenuation areas to prevent ingress of water.

• SBC Landscape – Discussions with the LPA took place with regards the Landscape and Visual Impact Assessment (LVIA) being prepared to support the application. Discussions included agreement with SBC around the viewpoints and visualisations to be included within the LVIA.

• SBC – A full and detailed pre-application process has been undertaken with the Local Planning Authority, including 4 meetings with the planning officers. These meetings have covered a range of topics including the overall approach to the outline planning application, the parameter plans and illustrative masterplan, Section 106 matters and agreement to a Planning Performance Agreement.

6.38 These discussions collectively have shaped the final form of the application.

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7. Planning Policy Context

7.1 Section 38(6) of the Planning and Compulsory Purchase Act 2004 (as amended) (the Act) provides as follows:

“If regard is to be had to the development plan for the purpose of any determination under the Planning Acts the determination must be made in accordance with the plan unless material considerations indicate otherwise.”

7.2 This section of the Planning Statement identifies policies in relation to economic growth; the creative industries and planning that are relevant to the consideration of the application at national, regional and local level having regard to the statutory test set out above.

7.3 Extracts of the relevant planning policies referred to in the Planning Statement are provided at Appendix 2.

7.4 The sources of policy are:

A. The Development Plan

B. Other material considerations including the National Planning Policy Framework (July 2018) and Government Policy (non-planning)

A. The Development Plan

7.5 The Development Plan for Spelthorne Borough Council comprises:

• Core Strategy and Policies DPD - Adopted February 2009

• Allocations DPD - adopted December 2009

• Local Plan 2001 - Saved policies

Adopted Proposals Map (2009)

7.6 The proposals map was adopted in 2009 at the same time as the Core Strategy and Policies DPD but is a consolidated plan also showing all designations within the Saved Local Plan and the Surrey Waste Plan. An extract of the adopted proposals map is provided at Figure 7.1).

7.7 The relevant designations are:

• Green Belt

• Employment Land

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Figure 7.1: Local Plan Proposals Map

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Core Strategy and Policies DPD

7.8 The Core Strategy and Policies DPD (CS), adopted in 2009, includes a full suite of strategic and detailed development management policies used in the determination of planning applications including matters in relation to:

• The general location of development • Economy and Employment Provision • Community Needs • Maintaining and Improving the Environment • Climate Change and Transport

7.9 Of particular relevance to this application are:

• Strategic Policy SP1: Location of Development • Strategic Policy SP3: Economy and Employment Land Provision • Strategic Policy SP5: Meeting Community Needs • Strategic Policy SP6: Maintaining and Improving the Environment • Strategic Policy SP7: Climate Change and Transport • Policy LO1: Flooding • Policy EM1: Employment Development • Policy EN1: Design of New Development • Policy EN3: Air Quality • Policy EN5: Buildings of Architectural and Historic Interest • Policy EN8: Protecting and Improving the Landscape and Biodiversity • Policy EN9: River Thames and its Tributaries • Policy EN11: Development and Noise • Policy EN13: Light Pollution • Policy EN15: Development on Land Affected by Contamination • Policy CC1: Renewable Energy, Energy Conservation and Sustainable

Construction • Policy CC2: Sustainable Travel • Policy CC3: Parking Provision

Allocations DPD

7.10 The Allocations DPD contains no policies or allocations which are of relevance to the determination of this planning application.

Spelthorne Borough Local Plan 2001 Saved Policies

7.11 The Spelthorne Borough Local Plan 2001 Saved Policies was adopted in April 2001; a number of policies were ‘saved’ in 2007, subsequently updated in 2009, and therefore remain part of the development plan.

7.12 Of particular relevance to this application are:

• Policy GB1: Green Belt • Policy RU11 - Sites of Nature Conservation Importance • Policy RU14 - Sites of Nature Conservation Importance • Policy BE25: Archaeology and Ancient Monuments

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B. Other Material Considerations

The National Planning Policy Framework (The Framework)

7.13 The Framework is a key part of the Government’s Plan for growth and the associated reform of the planning system. Its publication, in July 2018, post-dates the Government’s economic growth policies and industrial strategy and accordingly its objective is clear, to assist in the recovery of the UK economy and to foster sustainable economic growth with a clear strategy and Government support. Significant weight should be attached to it.

7.14 The Framework sets out the purpose of the planning system as one of contributing to the achievement of sustainable development, which is to be assessed on three dimensions: economic, social and environmental (paragraph 8), taking local circumstances into account (paragraph 9).

7.15 The economic policy guidance in the Framework places significant weight on the need to support economic growth through the planning system. Paragraph 80 is clear that:

“Significant weight should be placed on the need to support economic growth and productivity, taking into account both local business needs and wider opportunities for development. The approach taken should allow each area to build on its strengths, counter any weaknesses and address the challenges of the future. This is particularly important where Britain can be a global leader in driving innovation”

7.16 The Framework references the Government’s Industrial Strategy in this regard, where the priority of growing the Creative Industries, and in particular the film sector, is key. Paragraph 82 goes on to recognise that there are specific locational requirements for different sectors and that planning policies and decisions should make provision for clusters of, amongst other things, creative industries.

7.17 The Framework reiterates previous national policy relating to the Green Belt and confirms (at paragraph 144) that the fundamental aim of Green Belt policy is to prevent urban sprawl by keeping land permanently open. Paragraph 143 confirms that inappropriate development is, by definition, harmful to the Green Belt and should not be approved except in very special circumstances.

7.18 Paragraph 144 confirms that when considering any planning application, local planning authorities should ensure that substantial weight is given to any harm to the Green Belt, and that very special circumstances will not exist unless the potential harm to the Green Belt by reason of inappropriateness, and any other harm, is clearly outweighed by other considerations.

7.19 The Framework contains guidance on a number of other themes. Those relevant to this application are:

• Promoting sustainable transport • Requiring good design • Meeting the challenge of climate change, flooding and coastal change • Conserving and enhancing the natural environment

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• Conserving and enhancing the historic environment.

Flooding SPD

7.20 This document published in July 2012 explains in more detail the Council’s policy on development in areas of flood risk. Policy LO1 ‘Flooding’ is set out in the CS.

7.21 Detailed consideration of this SPD is provided by the submitted Flood Risk Assessment and Drainage Strategy.

Emerging Planning Policy

7.22 SBC is in the process of preparing a new Local Plan, which will provide a framework to guide development in the Borough in a sustainable way over the emerging plan period up to 2035. It will replace the current Development Plan when adopted.

7.23 A review of the Local Development Scheme (November 2017) indicates that the new Local Plan is anticipated to be adopted in September 2020.

7.24 It is expected that this planning application will be determined considerably before the adoption of the new Local Plan and as a result the emerging Plan carries little to no weight in the determination of this planning application.

Central Government Policy

UK Economic Growth Policy 7.25 Returning the UK economy to strong, sustainable and balanced growth is the single

most important priority for the Government. The imperative to achieve economic growth and development is the cornerstone of government policy across all Departments and has been continually reiterated with increasing momentum since the Government took office.

7.26 The key policy documents and expression of policy aims and are set out below.

Government’s Industrial Strategy 7.27 The Industrial Strategy published in 2017 and the Creative Industries Sector Deal in

2018 unequivocally state the priority that the UK Government places on growing the film sector. The Industrial Strategy promotes five key areas to boost the productivity and earning power of people throughout the UK. The Creative Industries – a group of sectors which includes film – is one of the five chosen pillars within the Industrial Strategy.

7.28 In March 2018, the UK Government launched the ‘Creative Industries Sector Deal’. The Government’s position is that if more stages are provided and the crew base is sufficiently expanded, then the UK could attract an increase in inward investment from the current figure of £2.4 billion per year to a target of £4 billion by 2025.

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Other

Enterprise M3 Local Enterprise Partnership (LEP) 7.29 The Enterprise M3 Local Enterprise Partnership (LEP) has expressed strong support for

the sector. The LEP’s Strategic Economic Plan 2014-2020: Working for a Smarter Future focuses on sectors which play to the area’s strengths. ‘Entertainment technologies’, which includes film, is identified as a ‘niche specialism’ which can contribute positively to realising the area’s economic potential and which the LEP will seek to support.

Spelthorne Borough Council Economic Policy 7.30 At the local level, Spelthorne Borough also acknowledges the important economic

contribution made by Shepperton Studios. For example, SBC’s Economic Strategy 2017-22 highlights Shepperton Studios as being amongst the local area’s biggest employers and that they are important to the generation of wealth to the country through exports, and critical to the local economy for jobs. Shepperton Studios is recognised as being part of a cluster of like businesses in the outer/west London area.

Economic Policy Summary 7.31 There is strong and consistent policy and strategy support for the development of the

UK film industry at all levels and Shepperton Studios is acknowledged as a key economic asset in furthering growth.

Overall Summary

7.32 The policy provisions of most relevance to the determination of this application are:

• Green Belt • Environmental Considerations • Employment Land / Economic Development • Flooding • Sustainability

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8. Policy assessment of the proposals

Approach

8.1 The legislative basis for decision making is Section 70(2) of the Town & Country Planning Act 1990 which requires a local planning authority in determining a planning application to have regard to the development plan insofar as it is relevant and other considerations that are material, and Section 38(6) of the Act (as above).

8.2 Other material considerations can be very wide and have a significant influence upon decision-making. However, such considerations are not all of the same weight which is an important distinction given the planning balance that has to be drawn. This Statement deals with the matter of planning balance and weight.

8.3 The Framework makes it clear that development plans must be prepared with the objective of contributing to the achievement of sustainable development and that they should be consistent with its policies and kept up to date. Wherever a development plan has no relevant policies, or the policies which are most important for determining the application are out of date, permission should be granted unless, the application of policies in the Framework provides a clear reason for refusal, or any adverse impact of approving the application should significantly and demonstrably outweigh the benefits, when assessed against the Framework as a whole.

8.4 On this basis, and having regard to Section 38(6) of the Act, the key issues to be considered in determining the planning application are:

A. whether the proposals are in accordance with the relevant policies of the development plan;

B. if not, whether there are considerations which indicate that the application should be determined otherwise than in accordance with the plan e.g. this includes an assessment of whether the proposals accord with the policy and guidance of the Framework (and other Government policy), and/or whether they would amount to sustainable development as defined in the Framework;

C. whether the proposals would amount of sustainable development as defined in the Framework

8.5 These matters are considered in the following chapters of this Statement and draw upon the technical information and evidence base contained in the key documents supporting the planning application.

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A. Whether the proposals are in accordance with the relevant policies of the Development Plan

Principle of the development and its location within the Green Belt

8.6 Strategic Policy SP1 (Location of Development) of the CS indicates that the extent of the existing urban area will be maintained and provision for all new development will be made within it.

8.7 Strategic Policy SP3 (Economy and Employment Land Provision) of the CS states that SBC will maintain the employment capacity of the Spelthorne economy by maintaining well sited larger Employment Areas and supporting the renewal and improvement of employment floorspace to meet needs.

8.8 In support of this strategic policy, the existing Studios site is defined by Policy EM1 (Employment Development) of the Core Strategy which explicitly states that SBC will retain Shepperton Studios as an Employment Area and support in principle, proposals for employment development. Moreover, Policy EM1 encourages proposals for redevelopment and extensions that enable business needs to be met and make the most effective use of available employment land.

8.9 The redevelopment of the existing Studios site alone is therefore in accordance with Policy EM1 and supported by SBC’s economic growth and corporate strategies as recent grants of planning permission has shown.

8.10 SBC’s economic development policies, including the Economic Strategy are clear as to the contribution Shepperton Studios makes to the local and national economy and the role it can play in furthering economic growth within the SBC.

8.11 The expansion site lies within the Green Belt. The relevant development plan policy relating to the control of development within the Green Belt is Policy GB1 of the saved version of the 2001 Local Plan. This is limited to the consideration of development which is appropriate to the Green Belt and does not explicitly acknowledge the scope provided by national policy to rebut the presumption against inappropriate development in the Green Belt, and justify its approval where very special circumstances are demonstrated.

8.12 This long-established cornerstone of national policy is set out at paragraphs 143 and 144 of the Framework, and states that:

“Inappropriate development is, by definition, harmful to the Green Belt and should not be approved except in very special circumstances”

and that:

“When considering any planning application, local planning authorities should ensure that substantial weight is given to any harm to the Green Belt. Very special circumstances will not exist unless the potential harm to the Green Belt by reason of inappropriateness, and any other harm, is clearly outweighed by other considerations.”

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8.13 The Applicant acknowledges that the proposed development constitute inappropriate development under the terms of these policies. The Applicant therefore accepts that the proposed development is in conflict with the development plan in relation to Green Belt policy, but consider that very special circumstances exist because any and all harm arising is clearly outweighed by other considerations (see section 12.0 for details).

8.14 Policy GB1 does not reference exception by very special circumstances and is, therefore, inconsistent with the Framework such that less weight should be attached to it. In any event, this application is approached, as it must, on the basis that this long standing national provision (as confirmed by the Framework) applies. This position has been confirmed by SBC during pre-application discussions.

8.15 A full Green Belt assessment and the VSC case is set out at Section 9.

Assessment

Air Quality 8.16 The proposed site is within a borough wide AQMA declared by SBC. This has been

declared mainly for transport related emissions due to the presence of major trunk roads, including the M3 and M25.

8.17 The likely effects of the proposed development with respect to air quality have been considered through a full and detailed air quality assessment. The likely impact on local air quality as a result of the development has been considered in relation to national air quality objectives and EU limit values.

8.18 During construction, site activities are likely to have the potential to affect local air quality in particular from dust deposition and increased particulate matter emissions. As a result of a predicted high impact from construction and earthwork activities mitigation measures are recommended for implementation to ensure that any impact on local air quality is not significant.

8.19 Pollutant emissions from traffic generated as a result of the construction and operation of the proposed development have been assessed and are likely to be negligible. As such no specific mitigation is required although best practice operations such as a detailed travel plan, bicycle parking facilities and improvements to shuttle bus services are proposed.

8.20 Strategic Policy SP6 (Maintaining and Improving the Environment) notes that SBC will seek to maintain and improve the quality of the environment of the Borough, noting that it will seek to improve the air quality in the Borough. Policy EN3 (Air Quality) of the CS highlights that SBC will seek to improve the air quality of the Borough and minimise harm to air quality from proposed developments. The proposed development complies with these policy requirements fully.

Landscape and Visual Effects 8.21 A full and detailed Landscape and Visual Impact Assessment accompanies the

application, which has been completed following discussions with SBC in respect of viewpoints and visualisations.

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8.22 The assessment concludes that the proposed development is likely to have a moderate effect on the landscape character of the application site during construction, reducing to minor during the operational stage by reference to the existing baseline context.

8.23 Effects on the wider character of the area (identified as LCA RF3: Ash River Floodplain) are judged to be minor in both the construction and operational stages, reflecting the localised extent of the change.

8.24 The landscape mitigation included as part of the proposed development would integrate the scheme into the surrounding landscape and create strong connections between the different areas of the site.

8.25 Views of the proposed development have been considered within a 2.0 km study area and evaluated for 18 representative locations in the wider study area as agreed with SBC. A ZTV based on assumed maximum parameters for the proposed development shows that views are available from large swaths of the study area, albeit centred on receptors within 1 km of the application site itself. However, the effect of low-lying landform dictates that views within close proximity are likely to have the greatest likelihood for visual effects.

8.26 The appraisal identifies major effects at the construction phase for a small number of viewpoints in virtue of their short viewing distances within Littleton. Moderate effects at the construction phase are identified at 8 of the viewpoints which are reduced to minor effects in the first year of operation. The incremental growth of intervening vegetation or landscape mitigation planting dictates that all of these effects reduce to minor / negligible effects at year 10 in most areas.

8.27 Moderate effects at year 10 are limited to 3 viewpoints as a result of their short range vantage points or availability of open views.

8.28 Visibility of the development would be restricted as a result of intervening vegetation and built form as well as the low-lying topography which precludes elevated vantage points. The embedded vegetation which forms an integral part of the proposed development would partially mitigate views from viewpoints.

8.29 The proposals therefore comply with Policy EN8 of the CS which seeks to protect and improve the landscape of the Borough.

Ecology and Nature Conservation including Arboriculture 8.30 Policy EN8 (Protecting and Improving the Landscape and Biodiversity) of the CS seeks

to protect and improve the landscape and biodiversity of the Borough by ensuring that new development, wherever possible, contributes to an improvement in the landscape and biodiversity and also avoids harm to features of significance in the landscape or of nature conservation interest, and by refusing permission where development would have a significant harmful impact on the landscape or features of nature conservation value.

8.31 Policy EN9 (River Thames and its Tributaries) also highlights the support that SBC will give to development which seeks to maintain and look for opportunities to enhance the setting of the River Thames and its tributaries.

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8.32 In addition, Saved Policies RU11 and RU14 (Sites of Nature Conservation Importance) of the Local Plan highlight the importance of ensuring that the proposals do not have an adverse effect on safeguarded Sites of Nature Conservation Importance.

8.33 The application is supported by a comprehensive Ecological Assessment prepared by LUC.

8.34 A full suite of ecological baseline studies was completed in 2016, with further survey updates of specific parts of the Site completed in 2018 where necessary.

8.35 The majority of the site, and the areas within which most of the development footprint will be focused, comprise land uses of negligible ecological value including hardstanding, buildings, and ‘backlots’ which have historically been subject to extensive and ongoing disturbance, including remodelling of ground profiles and mineral extraction activities. As a result, the majority of the site is poor in terms of its ecological value.

8.36 Habitat features of ecological value within the site include the River Ash and its associated woodland corridor, and fields in the northwest and north of the site which support semi-improved neutral grassland. The grasslands support a relatively rich floristic diversity. The northwest field is regularly grazed by sheep and therefore lacks the structural diversity required to support small mammals and reptiles, whereas the north field supports a thatched sward structure capable of supporting reptiles (albeit surveys recorded none in this field).

8.37 The River Ash corridor separates the existing Studio site from its backlots to the south of the river. The corridor comprises a linear belt of semi-natural woodland along the River Ash, and extends to the northwest of the Site where it enters an area of ancient woodland. The part of the River Ash corridor located within the Site boundary is currently lacking the management required to maximise its potential ecological value.

8.38 Much of the watercourse is heavily shaded by a mature tree canopy and is therefore devoid of aquatic macrophytes cover for much of its length, and the watercourse often comprises eutrophic and silted backwaters lacking in habitat niches or structural diversity. Much of the woodland understorey and ground flora is also lacking in structural or floristic diversity, again as a result of excessive shading.

8.39 The scheme has been designed to avoid and minimise adverse ecological effects from the outset and deliver a biodiversity net gain.

8.40 Prior to mitigation, the proposals would be expected to result in significant adverse effects on habitats and species at the site to local geographic scale. However, when mitigation and enhancement measures are considered, the scheme (as construction takes place) will provide significant benefits at the site to local level for the majority of ecological receptors by increasing the value of retained habitats, strengthening ecological corridors, increasing resilience to habitat fragmentation and climate change, and providing beneficial management in perpetuity and delivering a biodiversity net gain. The ecological assessment shows how this will be achieved.

8.41 A full tree survey has been carried out which has identified 1042 individual trees on the application site, 101 groups of trees and two areas of woodland.

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8.42 Of those trees the survey has categorised 39 of the trees as category A, 265 as category B and the remainder as either category C or U.

8.43 On the basis of the assessment, it is concluded that the arboricultural impact of this scheme is of negligible magnitude. No trees of high landscape or biodiversity value are to be removed, none of the main arboricultural features of the site are to be removed, and no category ‘A’ trees are to be removed. No veteran or ancient trees are to be removed.

8.44 The illustrative masterplan will be developed at the detailed design stage taking into account root protection areas (RPAs) of trees within.

8.45 There are no incursions into the adjacent ancient woodland, or into the associated buffer zone; and consequently, the proposals will not result in any loss of ancient woodland, will avoid any potentially harmful effects on the woodland, and comply with current UK Planning and development guidance

8.46 The proposals therefore comply with CS Policy EN1, E7, EN8 and Policy EN9, Saved Policies RU11 and RU14 of the Local Plan.

Water Resources 8.47 Objective 13 and Policy LO1 (Flooding) of the CS seek ways to reduce flooding and its

associated risks to people and property including ensuring development does not increase the risk. Policy LO1 also requires that all development within flood Zones 2, 3 and 3b are supported by an appropriate Flood Risk Assessments. SBC’s supplementary planning document on Flooding was developed to address local policy on development in areas of flood risk as a result of historic incidents of flooding within the Borough.

8.48 A full and detailed FRA and drainage strategy are submitted with the application.

8.49 The FRA considers the flood risk posed to the proposed development from a variety of sources of flooding. It demonstrates that the overall site is free from flooding during the 1 in 100 year and 1 in 100 year plus 35% allowance for climate change event (that is the site does not lies within Flood Zone 3). The majority of the site does, however, lie within Flood Zone 2 and the report identifies predicted maximum depths of flood water during a 1 in 1000 year (plus 35% allowance for climate change) event to be between 0.4m and 0.5m.

8.50 As part of the scheme, an assessment of the potential options to provide a betterment to fluvial flood risk to the wider area has been investigated. Two potential locations within the site have been identified that provide additional flood storage during both higher frequency and more extreme flooding events.

8.51 The FRA also address the requirements for sequential and exception tests. In sequential terms the expansion of Shepperton Studios cannot take place in any other location and as such there is no alternative site at lower risk of flooding. There is no explicit requirement for the exception test to be considered (as a result of the site passing the sequential test) but the FRA provides details akin to the requirement of the second section of the test in that it provides measures necessary to mitigate any

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residual flooding risk, to ensure that the proposed development and occupants will be safe and that flood risk will not be increased elsewhere.

8.52 The drainage strategy demonstrates that an appropriate approach to drainage has been adopted, including Sustainable Urban Drainage System methods for surface water disposal. The proposed scheme:

• Is suitable in the location proposed.

• Will be adequately flood resistant and resilient.

• Will not place additional persons at risk of flooding, and will offer a safe means of access and egress.

• Will not increase flood risk elsewhere through the loss of floodplain storage or impedance of flood flows.

8.53 The Application therefore meets the flood risk requirements of Policy LO1 of the CS.

Heritage 8.54 Policy EN5 of the CS sets out the requirement of SBC to preserve its architectural and

historic heritage through a range of measures, including requiring development to have special regard to preserving the setting of listed buildings.

8.55 The relevant heritage assets requiring consideration as part of this application are the Church of St Mary Magdalene (a Grade I listed building) and Littleton House (a locally listed building). The application proposals will have an impact on their significance through change in part of their settings.

8.56 The heritage report accompanying the application contains a narrative of the historic development of Littleton and Shepperton Studios and the expansion site as context to the assessments of heritage significance for the Church of St Mary Magdalene and Littleton House. These assessments demonstrate that the settings of both heritage assets have been significantly altered during the course of the 20th century and now do not contribute strongly to significance and are not sensitive to further change.

8.57 The outline application proposals provide an appropriate framework in which the detailed design at the reserved matters stage would preserve, and potentially enhance the significance of the Church of St Mary Magdalene and Littleton House. Accordingly, the outline application proposals are consistent with policy EN5 of the CS and the objectives of Section 66 of the Planning (Listed Buildings and Conservation Areas) Act 1990.

Ground Conditions 8.58 Policy EN15 (Development on Land Affected by Contamination) of the CS states that

SBC will ensure that where development is proposed on land that may be affected by contamination, action will be taken to ensure the site is safe or will be made safe for its intended use.

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8.59 To ensure the proposals meet this policy aim a Geo-environmental Desk Study has been prepared in support of the application.

8.60 A preliminary contamination risk assessment has been carried out using best practice methodology in the context of the site setting and assessing the potential pollutant linkages to site receptors. Based on the available information the risk estimations to the following receptors have been made:

• Construction workers – low to moderate • Residents and neighbours – low to moderate • Shallow Groundwater - low to moderate • On-site Building materials and underground services – low • Surface water – low to moderate • Trees and Plants – low • Adjacent land and property – low to moderate

8.61 The assessment recommends that a ground investigation is undertaken to investigate the general contamination levels on site and to target specific sources as identified during the site walkover.

8.62 The need for a Phase 2 Ground Investigation Survey can be adequately controlled via an appropriately worded planning condition. On this basis, the proposed development therefore accords with Policy EN15 of the CS.

Access and Transportation 8.63 Policies SP7 (Climate Change and Transport), CC2 (Sustainable Travel) and CC3 (Parking

Provision) of the CS set out SBC’s aims in relation to reducing the need for travel by private car and encouraging alternatives, supporting initiatives such as travel plans to encourage non car-based travel and securing more sustainable travel patterns as a whole.

8.64 Detailed surveys have taken place on the wider highway network to establish the current baseline position of the roads and specific junctions in the area.

8.65 The traffic impact of the proposed development has then been robustly tested based on empirical data and using an approach and parameters that have been discussed and agreed with the local highway authority, Surrey County Council which includes an assessment of a Shepperton Studios without and with the proposed development, on an ‘Average Operational Day’ and, as a sensitivity test, a ‘90th Percentile Operational Day’ (i.e. the 90th worst day in terms of traffic generation for the site).

8.66 The assessment results and resultant proposed mitigation is shown in Table 8.1 overleaf.

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Table 8.1 Capacity Assessments - Summary

Junction Type Operation in 2023

Without Development

Operation in 2023 With Development

Mitigation? Operation with

Mitigation

Existing Studios Road Site Access

New Junction (relocated) Below capacity Below capacity None necessary n/a

Existing Studios Road Car Park Access

No Change Below capacity Below capacity None necessary n/a

Proposed Shepperton Road Site Access Roundabout

New Junction n/a Below capacity n/a n/a

Proposed New Studios Road Car Park Access

New Junction n/a Below capacity n/a n/a

Proposed New Studios Estate / Studios Road Priority Junction

Junction improvement with addition of new site

access and change of priority

n/a Below capacity n/a n/a

Studios Road / New Road / Squires Bridge Road Priority Junction

Junction Improvement Scheme

Below capacity Over capacity Compact roundabout Below capacity

Charlton Road / Charlton Lane / New Road Priority Junction

Junction Improvement Scheme

Over capacity Over capacity with an

increase in queuing and delay

Compact roundabout Below capacity

B376 Laleham Road / Fairview Drive / Squires Bridge Road Roundabout

No Change Over capacity

Nil Detriment – i.e. no change in overall

capacity from “without development”

None necessary n/a

B376 Laleham Road / Littleton Lane / B376 Shepperton Road / Existing Service Access Roundabout

Junction Improvement Scheme

Over capacity Over capacity with an

increase in queuing and delay

Improvements to junction including

additional approach lane on the eastbound

approach

Below capacity and a significant improvement in the operation of the

junction compared with ‘do nothing’ (i.e. much

better than nil detriment is achieved)

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B376 Laleham Road / Littleton Lane / B376 Shepperton Road / Existing Service Access Roundabout

Junction Improvement Scheme

Over capacity Over capacity with an

increase in queuing and delay

Improvements to junction including

additional approach lane on the eastbound

approach

Below capacity and a significant improvement in the operation of the

junction compared with ‘do nothing’ (i.e. much

better than nil detriment is achieved)

B375 Chertsey Road / B375 Chertsey Bridge Road / Littleton Lane Roundabout

No Change Below capacity Below capacity None necessary n/a

B375 Bridge Road / Weir Road Signals

Junction Improvement Scheme

Over capacity Over capacity with an

increase in queuing and delay

Improvements to junction with extension of two lanes on eastern

approach

Nil Detriment – i.e. capacity returned to

“without development” levels

B376 The Broadway / B376 Staines Road Roundabout

Junction Improvement Scheme

Over capacity Over capacity with an

increase in queuing and delay

Improvements to junction including

widening of approach lanes and introduction of

central island. Junction to be designed to be implemented in a

sensitive area (i.e. appropriate surfacing

etc.)

Overall capacity benefit

Spelthorne Lane / Charlton Road / Ashford Road Roundabout

Junction Improvement Scheme

Over capacity Over capacity with an

increase in queuing and delay

Signalisation of junction Below capacity

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8.67 In summary the proposal is for improvements or alterations to six junctions within the local highway network, namely:

• Studios Road / New Road / Squires Bridge Road

• Charlton Road / Charlton Lane / New Road

• B376 Laleham Road / Littleton Lane / B376 Shepperton Road / existing secondary access to Shepperton Studios

• B375 Bridge Road / Weir Road

• B376 The Broadway / B376 Staines Road

• Spelthorne Lane / Charlton Road / Ashford Road

8.68 In respects of the tests of local planning policies the development proposals pass all three as set out below and the development therefore complies with the relevant development plan policies.

• Through the sustainable location, access strategy and travel plan to encourage and facilitate non-car travel, opportunities for sustainable travel will be promoted and delivered;

• the proposed site access arrangements will provide safe and acceptable access, and an acceptable level of car parking is proposed that will address existing overspill parking issues; and

• With the proposed mitigation package of capacity/safety improvements at local junctions, the residual traffic impact will be beneficial in that the additional traffic with the proposed highway improvements the local highway network will operate noticeably better than the ‘without development’ situation (i.e. without the extra traffic but also without any improvements to local junctions).

8.69 The analysis highlights that implementing the proposed mitigation measures will result in improvement on the local highway network such that its operation ‘with development’ will be better than it is ‘without development’.

8.70 The framework travel plan’s overriding objective is to:

“Put in place the management tools deemed necessary so that workers at and visitors to Shepperton Studios are able to make informed choices about their travel, whilst at the same time minimising the adverse impacts of their travel on the environment, surrounding highway network and local residents.”

8.71 This will be achieved by introducing a package of physical and management measures that will facilitate worker and visitor travel by sustainable modes. These may include:

Cycle parking

Additional shower, changing room and locker facilities

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Promotion of a car share scheme

Further promote the existing shuttle bus services and review the frequency of the service to ensure is it meeting demand

Layout and Design 8.72 The Design and Access Statement provides detailed information on the design

rationale for this scheme having regard to national planning policy guidance and the design policies set out within the adopted Local Plan and Supplementary Planning Document.

8.73 Policy EN1 (Design of New Development) identifies SBC’s aim to achieve high standards in design and layout of new developments.

8.74 The Design and Access Statement set out the approach to the Illustrative masterplan, highlighting that the proposals are based on a set of design themes, including:

• Studio Clusters - Increasing the capacity and efficiency of the site for film production. Delivering a defined requirement and mix of additional facilities and space to support Shepperton Studios’ future business objectives and the growth of the UK film industry. Creating a flexible studio complex. Clustering stages, offices and workshops to efficiently enable greater capacity and productivity of film-making activity.

• River Ash corridor - Responding to site constraints. Creating a range of responses that reduce the impact of the expansion of the Studios, and integrate existing features of the site within the development. Integrating landscape features, retaining their character and ecological value, and preserving them within a green framework. Establishing zones and corridors of biodiversity and ecological value, including connections to River Ash corridor.

• Movement and Connections - Access, circulation and car parking. Creating a unified access and movement network between the existing and southern areas, with satisfactory external working spaces for film production vehicles and crew, and a secure site entrance and perimeter.

• Screening and Separation - Creating green buffers around the site perimeters, to screen and set back the development from adjacent roads and houses.

8.75 The proposals represent a flexible and adaptable approach to the future development of the site, based on clear design themes, set within defined parameters. Whilst, the detailed design and external appearance of the proposal will be agreed at the reserved matters stage, parameter plans (and an illustrative masterplan) have been submitted to demonstrate how a high quality development can come forward in the future in line with the policies of the development plan.

Noise and Vibration 8.76 Policy EN11 of the CS states that SBC will seek to minimise the adverse impact of noise

by:

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“a) requiring developments that generate unacceptable noise levels to include measures to reduce noise to an acceptable level,

b) requiring appropriate noise attenuation measures where this can overcome unacceptable impacts on residential and other noise sensitive development proposed in areas with high noise levels. Development will otherwise be refused”

8.77 The accompanying Acoustic Report establishes prevailing noise levels for use in the design development. The nearest noise sensitive receptors to the development site have been identified as residential premises adjoining Studios Road (Astelham Way, Oberon Way, Lion Close, Hitchcock Close and Korda Close), Magdalene Road, Laleham Road and Cranwell Grove.

8.78 The report presents details of the noise assessment method and available guidance to assess the acoustic impact of the construction phases and operations of the proposed development site on the neighbouring area.

8.79 Predicted noise levels from construction and the operation of the proposed development are acceptable and would meet the requirements of Local Policy, and relevant guidance standards.

Effect on the living conditions of adjacent residents 8.80 Several of the topics already referred to in this chapter of the Planning Statement

describe how the proposals will limit and mitigate their effect on the living conditions and existing amenities of adjacent residents by achieving a high-quality of design and appearance to protect outlook and privacy, and minimising the potential for nuisance in terms of noise, lighting or other disturbance.

8.81 Detailed assessment of these considerations will also be undertaken where appropriate, at the reserved matters stage.

8.82 The proposed development therefore accords with Policy EN1 (Design of New Development) Point (b) by avoiding adverse impacts on local communities.

Lighting 8.83 Policy EN13 (Light Pollution) of the CS seeks to minimise the adverse impact from light

pollution on the environment. It promotes the use of measures to minimise the adverse impact of lighting on surrounding areas. It states that SBC will seek to reduce light pollution by:

• encouraging the installation of appropriate lighting including that provided by other statutory bodies,

• only permitting lighting proposals which would not adversely affect amenity or public safety and requiring the lights to be:

‒ appropriately shielded, directed to the ground and sited to minimise any impact on adjoining areas; and

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‒ of a height and illumination level of the minimum required to serve their purpose.

8.84 Lighting will be dealt with at the reserved matters stage when exact locations and sizes of buildings are proposed and will conform with SBC’s policies and best practice.

Sustainability and Energy 8.85 Policy CC1 (Renewable Energy, Energy Conservation and sustainable Construction)

outlines SBC’s support for the provision of renewable energy, energy efficiency and the promotion of sustainable development.

8.86 SSL has a proactive approach to sustainability and has in place a wide ranging sustainability strategy to reduce resource use, minimise waste and encourage sustainable travel.

8.87 The detailed Sustainability Assessment, which is submitted in support of this application, demonstrates how the proposed expansion and redevelopment of Shepperton Studios is in a sustainable location, reflects the sustainability objectives of SSL (and the Pinewood Studios Group) and will deliver a range of economic, social and environmental benefits in accordance with local and national planning policy.

Community Facilities 8.88 Strategic Policy SP5 (Meeting Community Needs) indicates that new development that

individually or cumulatively add to the requirement for infrastructure and services will be expected to contribute to the provision of necessary improvements.

8.89 The development does not give rise to any requirement for infrastructure or services for the community, being an employment proposal with facilities for its employees provided within the site itself.

Conclusion

8.90 The proposed development has been assessed against the provisions of the Development Plan and it has been shown that it is in accordance with the up to date and relevant polices. Matters in relation to Green Belt are considered in Section 9.0.

8.91 The effect upon the environment, local amenity and the living conditions and quality of life of adjacent residents will be acceptable, in design, construction and technical terms.

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B. Whether the proposals accord with the policy and guidance of the Framework

8.92 The Framework, published in July 2018, contains guidance on a number of themes. Those relevant to this application are set out below and the scheme assessed against them:

• Building a strong competitive economy • Delivering sustainable development • Promoting sustainable transport • Requiring good design • Meeting the challenge of climate change, flooding and coastal change • Conserving and enhancing the natural environment • Conserving and enhancing the historic environment • Green Belt

Building a strong competitive economy 8.93 The Framework sets out the purpose of the planning system as one of contribution to

the achievement of sustainable development, which is to be assessed on three dimensions: economic, social and environmental (paragraph 8), taking local circumstances into account (paragraph 9).

8.94 The proposed development contributes to both the local and national economy through meeting a defined unmet6 need in a sector which is highlighted for growth within the Framework (paragraphs 80 and 82).

Delivering Sustainable Development 8.95 Details on the sustainability credentials of the development are explained at Table 8.2.

The development complies with the principles of the Framework in delivering a sustainable form of development in economic, environmental and social terms.

Promoting sustainable transport 8.96 The application is supported by a full Transport Assessment and Framework Travel Plan

detailed in paragraphs 8.63 to 8.71 and is in accordance with paragraph 111 of the Framework.

Requiring good design 8.97 Paragraph 124 of the Framework identifies the great importance placed on the design

of the built environment and its contribution in making development acceptable to communities. The Design and Access Statement submitted in support of the application set out a series of design themes which have been considered through the design evolution of the scheme.

8.98 The parameters approach ensures that the framework for future development is transparent and that sensitivities in relation to design, visual appearance and the amenity of adjoining users is addressed in an acceptable way.

6 Review of the UK film and high-end TV production facility market prepared by PwC

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8.99 Whilst detailed design is a reserved matter, the parameters approach ensures that the proposed development accords with the principles of good design set out within the Framework.

Meeting the challenge of climate change, flooding and coastal change 8.100 Ensuring that development does not increase flood risk elsewhere is a key principle of

the Framework (paragraph 155).

8.101 The flood protection parameters have been designed to provide protection of the site and downstream from flooding based upon the current Environment Agency model. To this has been added a further ‘risk’ allowance to give a worst and future proof case. This will be agreed with the Environment Agency and controlled in a planning permission by a suitable condition.

Conserving and enhancing the natural environment 8.102 Paragraph 109 of the Framework states that the planning system should contribute to

and enhance the natural and local environment. A full suite of technical documents are submitted in support of the development proposals, including a Landscape and Visual Impact Assessment and Ecological Assessment. They demonstrate that the impact of the development is unlikely to be significant and that there is net gain in biodiversity as a result of the proposed work to the River Ash corridor and other parts of the site which is in accordance with the Framework.

Conserving and enhancing the historic environment 8.103 The application is supported by a heritage statement which identifies the Church of St

Mary Magdalene and Littleton House as two heritage assets (one statutorily listed and one locally listed), the conclusions of which demonstrate that the likely impact of the development on the heritage assets is acceptable as required by the Framework.

Green Belt 8.104 A full assessment of the proposals against the relevant policies of the Framework is

included at Section 9.0. It demonstrates that, whilst the development constitutes inappropriate development and there is harm to the Green Belt by virtue of impact on openness and encroachment, very special circumstances exist because all such harm is clearly outweighed by other considerations, so as to warrant the grant of planning permission.

C. Whether the proposals would amount to sustainable development as defined in the Framework

8.105 This section provides a clear outline of how the proposed development constitutes sustainable development as defined by the Framework and the weight that should be attached to it.

Approach

The Framework 8.106 The Framework identifies the purpose of planning and of the Framework as one of

achieving sustainable development (see paragraph 7). Sustainable development is

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aligned with growth and it indicates that such development should go ahead without delay.

8.107 Taken as a whole, the Framework constitutes the Government’s view of what sustainable development means in practice for the planning system. The Framework re-states the statutory test in section 38(6) of the Act.

8.108 The sustainability credentials of the proposals are a material consideration. The assessment of the proposals as sustainable development in accordance with the Framework as a whole is therefore relevant, significant and of considerable weight given the priority attached to it.

8.109 The Framework provides guiding principles for the assessment of sustainable development including economic, social and environmental discussions.

8.110 These three objectives are elaborated in paragraph 8, which notes:

• economic objective – to help build a strong, responsive and competitive economy, by ensuring that sufficient land of the right type is available in the right places and at the right time to support growth, innovation and improved productivity; and by identifying and coordinating the provision of infrastructure

• social objective – to support strong, vibrant and healthy communities, by ensuring that a sufficient number of range of homes can be provided to meet the needs of present and future generations; and by fostering a well-designed and safe built environment, with accessible services and open spaces that reflect current and future needs and support communities’ health, social and cultural well-being

• environmental objective – to contribute to protecting and enhancing our natural, built and historic environment; including making effective use of land, helping to improve biodiversity, using natural resources prudently, minimising waste and pollution, and mitigating and adapting to climate change, including moving to a low carbon economy.

8.111 These objectives should not be taken in isolation and decisions need to take local circumstances into account so they respond to different opportunities for sustainable development in different areas. There is not a fixed UK standard and therefore each proposed development has to be individually assessed in its own context. A summary is set out below against each objective.

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Table 8.2: Sustainability Objectives Summary

Economic The provision of approximately 1,470 direct and indirect jobs during construction with a contribution of £392m GVA to the wider UK economy.

Once completed the expanded studios will deliver a range of significant beneficial economic and social impacts for the UK, the M3 Enterprise LEP area and Spelthorne Borough itself, including:

2,796 gross direct FTE jobs

Indirectly 2,516FTE jobs would be supported across the UK economy (1,558 of which would be within the Greater West London area, 112 in the Enterprise M3 LEP and 28 within Spelthorne Borough)

£322.7 million GVA per annum to the UK economy of which £193.6 million would be within Spelthorne Borough

£61.1 million per annum to the Exchequer

£75.5 million to UK exports

Social Measures to enhance the health and wellbeing of Site visitors through the creation of green spaces and healthy working environments.

Sustainable transport enhancements including the continuation of existing sustainable transport plans and new sustainable travel links.

Improvements to existing junctions on the local highway network to provide an betterment to the operation of junctions.

Community benefits which may include:

Workshops for local children (drama, dance and speech) and water safety courses in relation to the River Ash

Increased access to Pinewood Cinema (at Shepperton) to include accessible screenings and holiday clubs for children

Educational support in the local area, including sponsorships and apprenticeships

Continued support for the Spelthorne Business Plan competition

Transport improvements including increased access to the Shepperton Studios shuttle buses.

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Environmental Good design which responds to the constraints and opportunities of the site including the protection of River Ash corridor.

Measures to minimise waste during demolition and construction maximising recycling and extension of the existing operational waste plan ensuring 100% of waste is recycled or used to generate energy.

Implementation of measures to protect and enhance site environments including the enhancement of the River Ash corridor creation of new wetland habitats and provision for a range of on-site species.

A commitment to mitigating and adapting to the impacts of climate change targeting a 10% reduction in embodied carbon emissions, delivering 10% of the new buildings regulated energy through renewable energy, reducing on-site water use by 12.5%, and inclusion of a 40% allowance for climate change in the surface water management system.

The Sustainability Assessment

8.112 The Sustainability Assessment demonstrates how the proposed Shepperton Studios expansion:

• will be delivered in accordance with Pinewood Group Limited’s sustainability policy,

• is in a sustainable location and

• will deliver a range of economic, social and environmental benefits

8.113 Pinewood Group Ltd. has a proactive approach to sustainability which includes a set of corporate energy, carbon reduction and waste targets. Ensuring the expansion is delivered in accordance with these targets is a key aim for the proposed development.

8.114 The Studio site and its contribution to the local economy is recognised by the SBC and enhancing the existing film and TV expertise is a key development target. In addition the Site benefits from excellent sustainable transport links which are enhanced by Shepperton’s sustainable transport plans, including shuttle bus services and on-site cycle storage and changing facilities. Extension of these measures and additional sustainable transport enhancements will further encourage sustainable travel and reinforce the sustainable location of the site.

8.115 The range of economic, social and environmental benefits to be delivered are included within Table 8.2.

8.116 In this context it is concluded the expansion reflects the sustainability objectives of the Pinewood Studios Group, is in a sustainable location, and will deliver a range of economic, social and environmental benefits.

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Conclusion

8.117 Taking the three objectives together the sustainable development status of the development proposals is demonstrated.

8.118 This status is to be given substantial weight in drawing the planning balance and given the conflict with Green Belt policy be regarded as a contributor to the very special circumstances case.

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9. Green Belt

9.1 In accordance with the Framework, this section of the Planning Statement will assess whether:

“the potential harm to the Green Belt by reason of inappropriateness, and any other harm resulting from the proposals, is clearly outweighed by other considerations” (per paragraph 144 of the Framework).

9.2 The chapter considers the degree of harm caused to openness and purposes as a result of the proposed scheme. It goes on to debate the scope of the Shepperton Studios proposals to enhance the beneficial use of land in the Green Belt. Finally it will consider whether very special circumstances exist.

Green Belt Context

9.3 The Borough covers an area of some 5,116ha, 65% of which is designated as Green Belt with a number of settlements interspersed between the main towns of Ashford, Shepperton, Staines-upon-Thames and Sunbury.

9.4 Figure 9.1 below shows the extent of Spelthorne Borough and the wider Metropolitan Green Belt:

Figure 9.1 Green Belt Plan

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Assessment of harm to the Green Belt

9.5 The fundamental aim of Green Belt is to prevent urban sprawl by keeping land permanently open (paragraph 133 of the Framework). This is achieved by protecting its intrinsic openness (the absence of built development) rather than visual amenity (experience or aspect), or the visual quality of land or a landscape. These aims are well established and set out in the Framework.

9.6 The proposals constitute inappropriate development for the purposes of paragraphs 143 and 144 of the Framework and are ‘by definition’ harmful. This is a policy harm.

Effect on the purposes of including land within the Green Belt 9.7 The Framework identifies five purposes that Green Belt serves (paragraph 134):

to check the unrestricted sprawl of large built-up areas;

to prevent neighbouring towns 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.

9.8 The proposals are assessed against these purposes below:

To check the unrestricted sprawl of large built up areas 9.9 The proposed development will clearly result in an extension of the built-up area. The

scale of this expansion on to Green Belt land is 39ha within a swathe of Green Belt of 455.5ha and it will provide clear and firm development boundaries. It is justified by exception and will not represent ‘unrestricted’ sprawl.

9.10 Conflict with this purpose is acknowledged albeit it is highly contained and restricted.

To prevent neighbouring towns from merging into one another 9.11 The location of the development site within the Green Belt and in relation to nearby

settlements is shown on the plan at figure 9.1.

9.12 The settlement of Laleham to the west of the site is separated from Staines to the north. The settlement of Littleton is contiguous with Shepperton Green to the south – east, linked by the Squire’s Bridge. Littleton/Shepperton Green is separated from Shepperton by a road bridge across the motorway. The substantial woodland belt on the boundary of Laleham Park is important in maintaining visual separation between Shepperton Green and Laleham Park.

9.13 The proposed development will clearly not result in the merging of towns in any physical sense as set out in the Framework. The existing distances and retained breadth of separation between settlements will ensure that the merging of neighbouring towns (or settlements) will not take place as a consequence of the proposed development and the Green Belt will not be fragmented.

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9.14 There is limited harm to this Green Belt purpose.

Safeguarding the countryside from encroachment 9.15 The proposed development will result in the physical encroachment onto land which

can be regarded as countryside, albeit recognition has to be given to the previous use of the expansion site for gravel extraction and in part as a nursery with associated structures. It cannot be said to be a greenfield undeveloped site. This purpose relates principally to openness and potentially a contribution to the beneficial use of land within the Green Belt (see below). There is some harm to this purpose, corresponding to the loss of openness of circa 39ha within a swathe of Green Belt of 455.5ha.

To preserve the setting and special character of historic towns 9.16 This purpose is not compromised and not relevant to the assessment. The site is not

within any proximity to a historic town.

9.17 The wording of the Framework suggests that this Green Belt purpose is only relevant to settlements of a certain size – i.e. towns – although the retention of openness within or around a smaller settlement may in some cases also contribute to the historic relationship between a larger settlement and its hinterland.

9.18 The historic part of Shepperton (which is detached from the modern town), Lower Halliford, Lower Sunbury and Staines are too distant from the application site for the proposals to be considered to have an impact on the setting and special character of the towns. Laleham is not a historic town but a small village.

9.19 There are no historic towns or settlements within proximity to the site whose setting can be harmed by this proposed development and therefore no conflict with this policy purpose.

To assist in urban regeneration, by encouraging the recycling of derelict and other urban land 9.20 The purpose will not be directly compromised because the proposed development is

geographically fixed as an expansion of Shepperton Studios. There is no alternative and it cannot be disaggregated.

9.21 There are no non-Green Belt sites that could be used as a preference and so support urban regeneration and recycling of derelict and urban land.

9.22 There is therefore no conflict with this policy purpose.

Conclusion on Green Belt Purposes

9.23 For the reasons set out above it is acknowledged that the proposals would constitute inappropriate development and give rise to some harm arising from a loss of openness and encroachment, although in a highly restricted way. The purposes related to historic town and urban regeneration are not applicable. The proposals are therefore not in accordance with the development plan in so far as it relates to Policy GB1 of the Saved Local Plan and the Framework to the purposes of the Green Belt.

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Use of Land within the Green Belt 9.24 Once Green Belts have been defined local planning authorities should plan positively to

enhance the beneficial use of the land within them (paragraph 141 of the Framework). These opportunities include:

• providing for access;

• providing for outdoor sport and recreation;

• retaining and enhancing landscapes, visual amenity and biodiversity; and

• improving damaged and derelict land.

9.25 This is an encouragement to make better use of Green Belt land once defined within the context of its principal purposes. The extent to which the proposals contribute to the beneficial use of land in the Green Belt is a material consideration and is assessed below.

To provide access, outdoor sport and recreation 9.26 Both the existing Studios site and the Expansion site area are privately owned by SSL.

The River Ash corridor, the extent to which sits within the application red line boundary, is owned by Spelthorne Borough Council.

9.27 The existing studios site is a ‘closed site’ that is not open to the public and to which access is strictly controlled through a security gatehouse and traffic barrier, given the commercial security and privacy requirements of film and television production.

9.28 There is currently no public access to the SSL-owned areas of the Site, and again no change is practical or proposed within the application by virtue of the highly commercial sensitivity of the sites proposed use.

9.29 There are no public rights of way within the site, although there is public access to the River Ash corridor.

9.30 As part of the proposals the Applicant has proposed improved pedestrian links through the River Ash corridor, providing a circular route from Squires Bridge Road.

9.31 This will add to the attractiveness of the River Ash corridor as an area for recreation for the local community in the Green Belt. The proposed circular route will balance the need for ecological enhancement, whilst ensuring safe, convenient and pleasant access for the local community.

9.32 It is proposed that the route would to be secured via condition, as would its ongoing management by SSL for public access and ecological purposes.

9.33 This proposal represents a significant access and amenity gain, when compared to the existing public access to the site. The proposals will, therefore, facilitate an enhancement of the beneficial use of Green Belt land. This benefit is real and significant and should be weighed positively in the assessment.

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To retain and enhance landscapes, visual amenity and biodiversity 9.34 The masterplanning and landscape design process which has been followed in

preparing the proposals has ensured that the likely impact of the development on local landscape character and the visual amenity of the Green Belt is minimised.

9.35 Overall the development is likely to give rise to moderate landscape and visual effects during construction which will reduce to minor in the first year of operation and after.

9.36 The work that has been undertaken in the design process around ecology and biodiversity is extensive. The scheme will deliver a net biodiversity / ecological gain (see ecological assessment).

9.37 This benefit is significant and should be weighed positively in the assessment

To improve damaged and derelict land 9.38 The Site is not damaged or derelict land having been restored post minerals extraction

works.

9.39 Parts of the Site were associated with historic landfilling operations. BGS data shows the majority of these areas were previous BGS Mineral Extraction sites. Local Authority Landfill Records show the areas associated with mineral extraction were backfilled mostly between 1991 and 2000. The landfill areas in the northwest were registered to receive industrial, commercial and household waste. The other areas of the expansion site were registered to receive waste associated with construction, demolition and dredgings.

9.40 The proposals therefore result in a negligible impact on the improvement of damaged / derelict land.

Conclusion on the use of land within the Green Belt

9.41 Overall, the development will have a positive effect upon the opportunity to secure the beneficial use of land within the Green Belt. The provision of public access to parts of the site and the provision of a new circular footpath through the River Ash corridor will provide positive benefits that are not currently available and the proposals will achieve a net biodiversity gain post completion. The effect upon the improvement of damaged land will be neutral.

Conclusion on the overall assessment of harm to the Green Belt and environmental interests 9.42 Taking Green Belt as a whole in order to provide an input to the planning balance, the

proposed development:

• is inappropriate development and, by definition, harmful to the Green Belt and by degree to some of its purposes;

• will have a limited adverse impact on landscape and visual amenity;

• will provide opportunities for public access and outdoor recreation;

• will produce a net gain in terms of biodiversity; and

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• will have a neutral effect on the improvement of damaged and derelict land.

9.43 In accordance with paragraph 144 of the Framework the identified harm arising from the proposals should be given substantial weight in the determination of the application.

9.44 The key balancing consideration is whether this harm is clearly outweighed by other considerations, such that very special circumstances exist so as to justify a grant of planning permission.

The Case in support of the Proposals - Very Special Circumstances

9.45 On the basis that the proposals for the Shepperton Studios’ proposals constitute inappropriate development within the Green Belt, material considerations are identified to justify the proposed expansion, and which individually and cumulatively comprise very special circumstances. These are:

VSC1 – Meeting Government policy ambition for growth in film and HETV inward investment

VSC2 – Shepperton is a key strategic site and its expansion is essential if the ambition of Government is to be met: there is no alternative

VSC3 – The economic benefits to the national regional and local economy

VSC4 – Community benefits

VSC5 – Other matters

9.46 The very special circumstances are examined in greater detail in the remainder of this chapter.

VSC1 – Meeting Government policy ambition for growth in film inward investment

9.47 Over the last decade the UK’s film sector has grown exceptionally. 2017 was a record breaking year for the UK film sector, with a total of £1.9 billion spent on film production, representing a 12% increase on the previous year, and the highest since the British Film Institute began monitoring in 1994. 89% of production spending comes from inward investment.

9.48 In order for the UK to be able to position itself and capture a share of this prospering sector, the UK Government has made several strategic decisions to attract further inward-investment over the past ten years which have been successful and enhanced the appeal of the UK to overseas investors. This includes the implementation of the “Creative Industries Tax Relief”, which was the first big step to encourage international production firms to the UK market. It is clear that this policy has been effective but if it is to continue to be as effective then there has to be an increase in studio floorspace to accommodate the acknowledged demand.

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9.49 The Industrial Strategy published in 2017, and the Creative Industries Sector Deal published in 2018 unequivocally state the priority that the UK Government places on growing the film and HETV sector.

9.50 The sector deal sets out the Government’s position that if more stages are provided and the crew base is sufficiently expanded, then the UK could attract an increase in inward investment from the current figure of £2.4billion per year to a target of £4bn a year by 2025.

9.51 The sector deal also acknowledges the role to be performed by the private sector studio providers including Pinewood Group Ltd with its £200m expansion at Pinewood Studios – now part complete and full, and its expansion plans at Shepperton Studios (subject of this planning application). The Warner Bros Leavesden Studios is also referenced with its £240m investment and plans for further sound stages (now commenced). Both Pinewood and part of Leavesden are development committed in the Green Belt.

9.52 This clearly demonstrates that the expansion of film production facilities in the UK including Shepperton is of national significance and should be afforded substantial weight.

VSC2 – Shepperton is a key strategic site the expansion of which is essential if the ambition of Government is to be met for which there is no alternative

9.53 There is real growth in demand for global film which is driving demand for studio space in the UK–London as a leading and preferred destination. The scale of current demand cannot be met in the UK as set out within the accompanying PwC Market Review report.

9.54 To implement Government policy intention for a significant increase in film inward investment it is critical to take into account the market in which major film operates and in particular its choice of filming locations. In the UK this means the West London cluster, of which Pinewood, Shepperton and Leavesden are the foundation.

9.55 The PwC report supporting this planning application has estimated that the scale of films potentially lost to the UK-London market through lack of studio space at around £2.8billion (2015-2017) or £950 million pa.

9.56 This is equivalent to around eight blockbuster film productions, needing around 87,300sqm (940,000 sq ft) of additional sound stage space. There is currently no capacity for this within the UK as a whole but specifically within the West London cluster, even with the planned expansions at Pinewood and Leavesden.

9.57 The reasons for the world-leading status of and demand for the West London cluster is because all of the attributes of an economic cluster are present.

Infrastructure and Skills 9.58 The West London cluster and its three world class studios all have a long heritage and

have built up a substantial technical infrastructure of facilities and technologies together with a highly skilled crew and talent base. This scale, depth and quality of

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resource makes film production at Shepperton efficient and cost effective. Such a resource is not available to the same degree at other global studios and producers’ feedback confirms that crews and facilities in the West London cluster are the most accomplished in the world. The third party letters of support accompanying this application explain the risk factors associated with film production, which include the skills level of the crew. This is minimised at these Studios.

Location 9.59 London is a world class city, highly accessible in transport terms and specifically by air

from the USA and other global locations. In particular the West London cluster of studios lies within exceedingly close proximity to Heathrow Airport, the largest airport hub in the UK and operating the most passenger services from the USA.

9.60 The West London cluster also provides easy access to a variety of “location” filming landscapes in close proximity, 11 recent Shepperton productions used locations in the South East for external location filming.

Financial 9.61 A leading factor in film world-wide is the fiscal context of support by way of tax relief,

Government support and ease of engagement and cross-party political support.

9.62 Efficiencies during production are a key factor in reducing the risk profile of film production (evidenced by the third party support letters). This includes ensuring that there is enough space in a single studio location for the entire production.

Summary 9.63 In order to successfully capture the scale of international film and HETV identified by

Government policy the majority of new provision will have to be in the globally competitive West London cluster and an early win (i.e. deliverable in the short term). This defines geography and suitability to a very limited number of existing studio sites that have the potential to attract international film and an embedded infrastructure already in place. It explains why the recent expansions at Pinewood and Leavesden have been permitted in Green Belt locations. This supports the strength of case at Shepperton for Green Belt exception.

9.64 This point is strengthened further by the practical considerations that there are no realistic alternatives to the committed expansion of Pinewood and Leavesden for the proposed expansion of Shepperton if Government policy on scale and urgency is taken into account.

9.65 The establishment of an entirely new studio site is not feasible or viable in the short or medium term to serve the large inward investment film market.

9.66 To develop an entirely new site a large site would be required within the West London cluster in an area of scarce land resource. In addition to this the cost of developing a new studio of sufficient scale to contribute materially to the need identified by Government policy in the short (to 2025) or medium term (2030) is not a feasible or viable proposition.

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9.67 In essence the case is that there is no reasonable or practical alternative to Shepperton’s expansion and the weight to be given to it is substantial.

VSC3 – The economic benefits to the national and local economy

9.68 The Shepperton Studios scheme represents a broad investment of circa £500 million.

9.69 The Economic Impact Assessment submitted with this application provides detailed evidence of the economic benefits associated with the proposals, which are significant in their own right and are not repeated in full here. They gain weight by being directly supported by and a product of Government policy.

9.70 It is clear that Shepperton Studios is already a major employer and that it makes a positive and substantial contribution to productivity at a local and national level as well as delivery a range of social and economic benefits including 1,507 full time equivalent (FTE) direct jobs and approximately 3,000 (FTE) indirect jobs.

9.71 In financial terms the Studios currently contribute:

• £181.7 million GVA to the wider UK economy per annum,

• £17.3 million per annum to the Exchequer

• £41.8 million to UK exports

9.72 Once completed the expanded studios will deliver a range of significant beneficial economic and social impacts for the UK, the M3 Enterprise LEP area and Spelthorne Borough itself, including:

• 2,796 gross direct FTE jobs

• Indirectly 2,516FTE jobs would be supported across the UK economy (1,558 of which would be within the Greater West London area, 112 in the Enterprise M£ LEP and 28 within Spelthorne Borough)

• £322.7 million GVA per annum to the UK economy of which £193.6 million would be within Spelthorne Borough

• £61.1 million per annum to the Exchequer

• £75.5 million to UK exports

9.73 The proposed expansion of Shepperton Studios will enable the UK to capture a greater share of the growing global film market, and will make a pivotal contribution to the Government’s target of increasing inward investment in the UK film sector to £4 billion per year by 2025. It will enable almost a doubling of gross employment and productivity impacts associated with Shepperton Studios, benchmarked against current levels of impact. This will generate a significant employment and productivity effect at a UK level that will also be experienced at the local level and across the wider M3 Enterprise LEP area.

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9.74 The net effects (new additional impacts arising from the growth) are estimated as:

• around 2,019 new direct and 271 in the wider economy jobs (FTE)

• a contribution to GVA of £141m pa

• a contribution to the Exchequer of around £40m pa

• an export contribution of around £30m pa

9.75 Expansion of Shepperton Studios is a prerequisite of generating the significant economic and social benefits that are set out in this Planning Statement. Should the Studios not be able to expand, then these benefits will be foregone representing a significant opportunity cost for the economies and people of Spelthorne borough, the M3 Enterprise LEP and the UK.

9.76 The impacts are direct economic impact monetary benefits and indirect ones associated with (amongst other things) education, training and well-being. The full range of benefits are powerful and of substantial weight.

VSC4 – Community benefits arising from the development

9.77 Shepperton Studios strives to maintain and build relationships with the local community by:

• Providing a direct link from the Studios via a liaison officer to the local community

• Sharing studio information with the local community via direct contact, local residents associations and social media

• Supporting and hosting community events and screenings for local residents, associations and charities

9.78 Current operations at Shepperton provide a number of community benefits, within the immediate local area and the wider Borough. They include:

• Educational support for film studies on a national level

• Support given to BAFTA, the BFI, trainee schemes & university courses

• Educational support and careers advice for local schools, colleges & universities

• Donations, support and sponsorship for local charities and events

• Studio visits for students

• Support for national charities and organisations directly connected to the film and television industries

• Film and television industry guilds

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• Attending and hosting career fairs and events within the Borough of Spelthorne

• General enquiries on the history of Pinewood and Shepperton Studios

• Contributions to local community volunteer events including the River Ash clean-up day

9.79 As part of the expansion proposals SSL are committed to retaining the above, expanding the range of benefits they offer, as well as creating new ones.

9.80 One of the most significant benefits will be the ecological enhancement of the River Ash corridor and increased public access within the corridor through the creation of new public footpaths and circular routes. This will include commitments for the ongoing maintenance and management of the corridor for the benefit of the public and the biodiversity of the area.

9.81 Other benefits could include:

• Workshops for local children (drama, dance and speech) and water safety courses in relation to the River Ash

• Increased access to Pinewood Cinema (at Shepperton) to include accessible screenings and holiday clubs for children

• Educational support in the local area, including sponsorships and apprenticeships

• Continued support for the Spelthorne Business Plan competition

• Transport improvements including increased access to the Shepperton Studios shuttle buses

9.82 These benefits have an importance locally and with neighbours and are rightly to be afforded weight in the overall balance. Details of these benefits will be the subject of further discussions with SBC (and other interested parties) and will be encapsulated within a planning condition or planning obligation.

VSC5 – Other matters

9.83 There are a range of other matters that will also weigh in support of the very special circumstances:

• the role of the West London cluster in supporting the performance of other UK studios

• UK studios spin off benefits

• the sustainable nature of the proposed development

• the contribution to the development and understanding and development of the arts and culture of film in the UK

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Spin off benefits 9.84 The growth of the film and media industry in the UK is supported by Government

policy and the supporting industry and agency bodies principally the British Film Commission and the British Film Institute. These organisations promote the UK’s film interests and in particular inward investment. Both organisations support the proposed Shepperton expansion as good for the UK-wide industry.

9.85 Attracting productions to London brings spin-off benefits to the wider film and studio industry in the rest of the UK by way of ‘on-location’ or special shooting using regional facilities and places.

9.86 This mutuality of interests is confirmed in the support letters from the BFC, BFI and Creative England. Of particular reference the letter of support from Creative England is clear that in the last 6 years there has been economic gain within the English regions of £500 million as a direct result of spin off on location filming (see Appendix 3 for letter).

Sustainability 9.87 The sustainable nature of the proposed development is set out in the submitted

Sustainability Assessment. This confirms the sustainable status of the scheme and identifies actions and standards that go beyond the minimum and which contribute to the very special circumstances case.

Arts and Culture 9.88 The cultural dimension of film and creative industries was highlighted in the Prime

Minister’s speech to its leaders at Downing Street on 8 May 2018.

“But of course, the value of culture and creativity lies not only in its economic strength. Just as important is the less tangible contribution that it makes to our national life. The work you do brings joy to millions. It fosters unity, gives us a common currency. It helps to define and build our sense of national character.”

“But our support goes beyond the financial. As we leave the European Union, we will continue to work with our European friends to protect cultural heritage and promote cultural diversity.”

9.89 The contribution that Shepperton and the Pinewood Group makes to culture and the arts in the UK is substantial in retaining, supporting and expanding all of the elements that go into film production and which supports the ‘less tangible’ referenced by the Prime Minister. The Shepperton expansion will make a direct contribution to achieving these expectations.

9.90 The support of culture and the arts is therefore a material consideration and part of the very special circumstances case.

9.91 These matters individually and cumulatively make up the case for a very special circumstances exception to Green Belt policy

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10. Third Parties

10.1 The views of third parties are material considerations although they do not all carry the same weight. Their influence is not in numbers but relevance to planning and content.

10.2 This section summarises the third party representations received directly by the applicants ahead of the submission of the application. Full copies of the letter are included at Appendix 3.

Film Studios and Production Companies

10.3 Letters of support have been received from the following:

• Eon Productions Limited (the producers of the James Bond franchise). • Lucasfilm Ltd (the producers of the Star Wars franchise). • Netflix • Marvel Studios • Walt Disney Studios Motion Picture Production

10.4 Without exception the letters all acknowledge that the support and skills available at Shepperton (alongside Pinewood) are the best: they would like to continue producing feature films at Shepperton but they are constrained by the Studios’ shortage of capacity. This has led in some cases to productions being relocated globally and others likely to have to do so unless the expansion of Shepperton Studios can be achieved.

10.5 Netflix in particular highlight that the facilities available within the Pinewood Group not only cater for feature films but are also vital for the production of high quality HETV and that they would like to be able to produce more in the UK and specifically at Shepperton.

Industry Experts

10.6 Letters of support have been received from the following:

• Creative England – the national agency dedicated to growing the creative industries and the talent that drives them, recognise that without large studio spaces such as Pinewood and an expanded Shepperton, large budget inward investment films will simply not choose the UK as the site for their productions. They highlight the impact to both the national and local economies of the spin off investment across the UK from productions in the South East filming on location (£500 million in the last 6 years).

• British Film Commission (BFC) – the BFC leads on maximising and supporting the production of major international feature film and high-end television in the UK; strengthening and promoting the UK’s film and television production infrastructure; and liaising between the government and the film and television industry to secure and maintain production-friendly policies. The BFC highlight that there are severe capacity issues, most notable for studio space and that, this has led to the loss of several major multi-million dollar feature film and TV

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projects from the UK. It is for this reason that they wholeheartedly support the Shepperton Studios project.

• British Film Institute (BFI) – notes that Shepperton Studios is rightly recognised as one of the best production facilities in the world which has seen recently film productions including Christopher Robin and Mamma Mia: Here We Go Again! However, the BFI are concerned that several global blockbusters have chosen not to use the UK’s production facilities, which is a result of a lack of space. They therefore entirely support the Shepperton expansion plans.

10.7 In summary there is genuine and strong support for the proposed development and its ability to increase sound stage and studio capacity within the UK to retain its position within the global film production industry.

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11. The Planning Balance

11.1 This section considers the overall planning balance.

11.2 As demonstrated within Section 8.0 there is compliance with many areas of the development plan. However, when read as a whole, the proposed development does not accord with the development plan due to its conflict with Green Belt policy.

11.3 In Green Belt terms paragraphs 9.23 and 9.43 deal respectively and comprehensively with Green Belt purposes and the overall assessment of harm. They demonstrate that the proposed development:

• constitutes inappropriate development and, by definition, be harmful to the Green Belt;

• would, in addition, give rise to some harm arising from a loss of openness and encroachment (having regard to Green Belt purposes), although in a highly restricted way;

• have a limited adverse impact on landscape and visual amenity;

• provide positive opportunities for public access and outdoor recreation;

• produce a net gain in terms of biodiversity; and

• have a neutral effect on the improvement of damaged and derelict land.

11.4 Substantial weight should be attached to the harm (including definitional harm) that has been identified. However, this harm is clearly outweighed by a considerable margin by other considerations (as set out below and earlier in this Planning Statement) such that very special circumstances exist so as to permit an exception to the presumption against development in the Green Belt.

Meeting Government policy ambition for growth in film inward investment

11.5 The proposed redevelopment and expansion of Shepperton Studios would make an essential contribution to the long term sustainable growth of the UK economy.

11.6 Specifically, it would assist in meeting the Government’s objectives in relation the growth of the film industry as set out within their Industrial Strategy, which acknowledges that to double inward investment in film there needs to be further studio space provided.

11.7 This additional space can be provided in two ways, through utilising existing ‘spare’ space or by providing ‘new’ space both of which are explored below.

11.8 The majority of floorspace in the West London cluster – which is of global significance and represented by Pinewood, Shepperton and Leavesden - is high quality and a significant proportion is of recent, modern construction. There is supporting floorspace

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at Longcross and Arborfield, both of which are short term re-uses pending future redevelopment for housing taking this low order floorspace out of the market.

11.9 The existing studio space at Pinewood, Shepperton and Leavesden is consistently fully booked and utilised and whilst expansion, refurbishment and new development is taking place at Pinewood and Leavesden this will not meet the additional demand that exists.

11.10 There is, therefore, no realistic prospect of providing any increase in utilisation from the existing studio stock. Meeting the acknowledged demand will have to be through the provision of new studio space.

11.11 The scale of new space can be judged by comparing the order of unmet demand and existing/committed supply. PwC’s market report accompanying the application estimates (through research) that the scale of ‘lost films’ that could not be accommodated in the UK (West London cluster) from 2013-17 is a production spend of £2.85m. This is an average spend per annum of £950m and equates to a sound stage floorspace shortfall of circa. 87,300sqm (940,000sq ft).

11.12 This ‘need’ figure can be compared to the existing and proposed pipeline of supply to identify the gap in fulfilment of market requirements, which at circa. 59,499 sq ft is significant and demonstrates that action is needed now to raise the supply particularly given the lead-in times to deliver developments of the complexity and scale of sound stages.

11.13 The PwC market report and The Case for Space (also submitted in support of the application) demonstrate that, even with the known new stage space and the proposed Shepperton expansion, there would still be a shortage of circa half the shortfall.

11.14 The contribution that the redevelopment and expansion of Shepperton Studios would make to fulfilling the Government’s own economic policy objectives is therefore critical and merits substantial weight in the planning balance in this case.

There is no reasonable or practical alternative to the redevelopment and expansion of Shepperton

11.15 In order to successfully capture the scale of international film identified by Government policy, the majority of new provision will have to be in the globally competitive West London cluster and create the means for an early win (i.e. deliverable in the short term).

11.16 This confines suitability to a very limited number of existing studio sites that have the potential to attract international film with an embedded infrastructure and talent pool already in place. It explains why the recent expansions at Pinewood and Leavesden have been permitted in Green Belt locations and supports the strength of the case at Shepperton for Green Belt exception.

11.17 This point is reinforced even further by the practical considerations that, having regard to the scale and urgency of demand identified by Government policy, there are no

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realistic alternatives to the committed expansion of Pinewood and Leavesden and the proposed expansion of Shepperton.

11.18 Having regard to the scarcity of available land in the West London cluster and the huge costs involved, the establishment of an entirely new studio site of a scale sufficient to contribute materially to the need identified by Government policy is nether feasible nor viable in the short (to 2025) or medium (to 2030) term to serve the large inward investment film market.

11.19 Shepperton has the history, reputation, support of the industry, infrastructure and skills to ensure that any expansion will meet market needs in a timely fashion. With expansions already underway at Pinewood and Leavesden there is no reasonable or practical alternative to Shepperton’s expansion and the weight to be given to it is substantial.

Wider economic benefits

11.20 The proposed development would deliver a range of substantial economic benefits at national and local level. These include:

• 2,796 gross direct FTE jobs

• Indirectly 2,516 FTE jobs would be supported across the UK economy (1,558 of which would be within the Greater West London area, 112 in the Enterprise M£ LEP and 28 within Spelthorne Borough)

• £322.7 million GVA per annum to the UK economy of which £193.6 million would be within Spelthorne Borough

• £61.1 million per annum to the Exchequer

• £75.5 million to UK exports

11.21 The net effects (new additional impacts arising from the growth) are estimated as:

• around 2,019 new direct and 271 in the wider economy jobs (FTE)

• a contribution to GVA of £141m pa

• a contribution to the Exchequer of around £40m pa

• an export contribution of around £30m pa

11.22 It would also make a significant contribution to the wider UK creative industries, to skills, education and training opportunities in the film sector.

11.23 These are major long-term benefits and carry substantial weight in favour of the proposed development.

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Community benefits

11.24 The proposed development would provide ecological enhancement to the River Ash, and improved access for the local community to its river bank and woodland corridor.

11.25 In addition, the proposed development would provide:

• A betterment to the operation of junctions in the vicinity of the site

• A package of community benefits that may include increased public access to the cinema facilities at Shepperton Studios, outreach projects with local schools and community groups and funding opportunities associated with the industry.

11.26 These are important local benefits that would not be otherwise available to the community and weigh in favour of the proposed development.

Other matters

11.27 The growth of the film and media industry in the UK is supported by Government policy and the supporting industry and agency bodies principally the British Film Commission and the British Film Institute. These organisations promote the UK’s film interest and encourage inward investment in the UK. Both organisations support the proposed Shepperton expansion, citing the positive impact it would have for the UK-wide industry. Creative England highlights their support for the scheme (as seen at Appendix 3) and the consequential benefits that the English regions enjoy as a result of film production in the West London Cluster.

11.28 The sustainable nature of the proposed development is set out in the submitted Sustainability Assessment and at table 8.2. This confirms the sustainable status of the scheme and identifies actions and standards that go beyond the minimum and which contribute to the very special circumstances case.

11.29 The cultural dimension of film and creative industries was highlighted in the Prime Minister’s speech to its leaders at Downing Street on 8 May 2018.

“But of course, the value of culture and creativity lies not only in its economic strength. Just as important is the less tangible contribution that it makes to our national life. The work you do brings joy to millions. It fosters unity, gives us a common currency. It helps to define and build our sense of national character.”

“But our support goes beyond the financial. As we leave the European Union, we will continue to work with our European friends to protect cultural heritage and promote cultural diversity.”

11.30 The contribution that Shepperton and the Pinewood Group makes to culture and the arts in the UK is substantial in retaining, supporting and expanding all of the elements that go into film production and which supports the ‘less tangible’ referenced by the Prime Minister. The Shepperton expansion will make a direct contribution to achieving these expectations.

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11.31 The support of culture and the arts is therefore a material consideration and part of the very special circumstances case.

Conclusions

11.32 The proposed development accords with both the Framework and Government policy in relation to the creative industries. It would make a significant and critical contribution to the maintenance of the UK film and HETV industry in accordance with national economic policy objectives and would deliver strong, sustainable and balanced economic growth. In weighing this contribution, the absence of any feasible or viable alternative adds further weight.

11.33 Each of these factors carries substantial weight and there exists a substantial cumulative weight of considerations in favour of the proposed development.

The overall planning balance

11.34 The proposed development is in conflict with the development plan when read as a whole. However, there are very weighty considerations that indicate that it should be determined otherwise than in accordance with the plan including that it would not give rise to adverse impacts which significantly and demonstrably outweigh the benefits when assessed against the Framework as a whole.

11.35 This Statement demonstrates that there are considerations, which individually and cumulatively, outweigh by considerable margins the harm arising from the proposed development. As such, very special circumstances exist so as to both override conflict with the development plan and justify a grant of planning permission for inappropriate development in the Green Belt.

Appendix 1: Planning History (existing and expansion site)

Application Reference

Description of Development Decision

18/00389/FUL Erection of workshop building. Granted 11.05.2018

18/00390/FUL Erection of workshop building.

15/00342/FUL Continued use of land adjacent to Shepperton Studios for temporary car parking with a capacity for 450 car parking spaces, 20 motorcycle spaces, including continued access from Studios Road, new surfacing and drainage provision, bollard lighting and a security hut.

Granted 3.07.2015

12/01288/SCC Extraction of sand and gravel; importation of inert fill materials; use of the conveyor link to transport sand and gravel to the processing plant and use of the processing plant and concrete batching plant at Shepperton Quarry, Littleton Lane; use of the existing Home Farm access to the B376; and restoration back to nursery use and use of land permitted under planning permission ref: PA/98/0078 dated 13 February 2001 without compliance with Condition 30 of planning permission ref: SP09/0720 dated 22 August 2012 to allow soil handling and movement to be carried out between the months of October and March inclusive if weather and soil conditions are appropriate.

No objection 12.11.2012

12/00360/FUL Use of land to the north of Studios Road as overspill parking for Shepperton Studios for up to 344 cars for no more than 120 days per calendar year.

Granted 30.07.2012

11/01086/SCC Extraction of sand and gravel; importation of inert fill materials; temporary use of land as outdoor film sets including backlot filming facility; use of the conveyor link to transport sand and gravel to the processing plant and use of the processing plant and concrete batching plant at Shepperton Quarry, Littleton Lane; use of the existing Home Farm access to the B376; and restoration back to nursery use and use of land permitted under planning permission ref PA/98/0078 dated 13 February 2001.

No objection 10.02.2012

11/00382/FUL Reinstatement of use of land as outdoor film sets, including new back lot facility, erection of utility buildings comprising 1858 sq.m. with assoc. parking & servicing, part demolition and part retention of existing buildings, renovate existing bridges over the River Ash, to provide access to the existing Shepperton Studios Site, and landscaping and mounding following completion of gravel extraction (as proposed under SCC/2009/0158/SW).

Granted 20.08.2012

11/00381/FUL Change of use of land for a temporary period to allow outdoor filming including backlot facility with associated parking, servicing and landscaping (for the duration of the gravel extraction and restoration of the existing backlot site as proposed under SCC/2009/0158/SW).

Granted 18.11.2011

11/00129/REN

Application for new planning permission to replace extant planning permission 09/00096/RMA in order to extend the time limit for implementation in relation to development of a building within the use class B1 for uses associated with the film and television industries, plus landscaping at Shepperton studios, studios road, Shepperton, Middlesex, TW17 0QD.

Granted 19.04.2011

10/01015/FUL Use of site as an external film set with the erection of workshop buildings, all for a temporary period of 6 months including the provision of parking in the north east quadrant of the site.

Granted 26.01.2011

10/00946/RMA Reserved matters planning application for design, external appearance, and landscaping, associated with building P2-1 of masterplan development pursuant to outline planning permission 04/00499/OUT. Building P2-1 will be B1 and B8 for uses associated with the film and television industry. This proposal will include the re-routing of the existing access road and include associated parking and landscaping following demolition of an existing building.

Granted 15.12.2010

10/00492/RVC Retention of single storey building and use of enclosed external area to provide crèche

Granted

facilities for a temporary period of 5 years. 21.06.2010

09/00720/SCC Extraction of sand and gravel; importation of inert fill materials; temporary use of land as outdoor film sets including backlot filming facility; use of the conveyer link to transport sand and gravel to processing plant and use of the processing plant and concrete batching plant at Shepperton Quarry, Littleton Lane; use of the existing Home Farm access to the B376; and restoration back to nursery use and use of land permitted under PP ref PA/98/0078 dated 13/02/2001.

No objection 08.04.2011

09/00631/FUL Retention of a workshop (building 24) for film and television use on a temporary basis of five years.

Granted 04.11.2009

09/00629/FUL Retention of a workshop (building 40) for film and television use on a temporary basis of five years.

Granted 04.11.2009

09/00096/RMA Reserved matters application for design, external appearance and landscaping, associated with building P 4 - 5 of masterplan development pursuant to outline planning permission ref. 04/00499/OUT.

Granted 06.04.2009

07/00739/ADV Erection of an externally illuminated advertisement.

Refused 22.08.2008

05/00466/RVC Renewal of planning permission PA/99/0028 for the erection of a single storey building and use of enclosed external area to provide crèche facilities for a temporary period of five years.

Granted 23.06.2005

05/00408/FUL Cladding of east elevations of B and D Stages and west elevations of A and C stages with profile metal cladding.

Granted 22.06.2005

04/00783/FUL Building 40, Shepperton Studios, Studios Road, Shepperton, Surrey, TW17 0QD.

Granted 30.09.2004

04/00602/FUL Erection of building comprising workshops and office accommodation following demolition of existing I stage and ancillary buildings.

Granted 15.09.2004

04/00499/OUT Outline planning application, including siting and access, for the partial demolition and redevelopment of Shepperton Studios to

Granted 24.03.2006

provide additional film and television accommodation including; studios/stages, workshops, offices, post production facilities, ancillary studios accommodation, a new community facility, new accesses from Studios Road, revised internal road layout, car parking, landscaping and associated development.

03/00853/FUL Erection of a workshop. Granted 12.11.2003

00/00489/FUL Erection of two entrance lobbies to studio catering block.

Granted 07.08.2000

99/00828/FUL Renewal of planning permission PA/94/0317 for the erection of a single storey building and use of enclosed external area to provide creche facilities for a temporary period of 5 years.

Granted 24.05.2000

99/00836/FUL Renewal of planning permission PA/96/0409 for the retention of a storage/workshop building for a temporary period of 3 years.

Granted 15.02.2000

99/00585/FUL Erection of a new building for use as a stage with ancillary offices, workshops and dressing areas following demolition of existing I Stage and ancillary buildings.

Granted 15.10.1999

99/00440/FUL Erection of new Orangery following demolition of existing Orangery.

Granted 15.09.1999

99/00063/FUL Demolition of existing buildings Nos 311, 311A and 312 fronting Studios Road and erection of a new building for use as workshop and offices (Amendments to Planning Permission SP/95/0579).

Granted 26.05.1999

98/00078/FUL Use of land as outdoor film sets, including new back lot facility, erection of utility bldgs comprising 1858 sq.m. with assoc. parking & servicing, part demolition and part retention of existing buildings, replacement bridges over the River Ash, to provide access to the existing Shepperton Studios Site, alterations to the existing vehicular access to Laleham Road and landscaping and mounding.

Granted 13.02.2001

98/00008/FUL Erection of an extension to the existing building on the eastern side.

Granted

97/00038/FUL Erection of toilet extension and external alterations including erection of air conditioning plant to enable conversion of stage 'P' into a Preview Theatre.

Granted 18.04.1997

96/00425/FUL Erection of film set for temporary period restored by 30 September 1998.

Granted 06.11.1996

96/00409/FUL Renewal of Planning Permission SP/93/0365. Retention of storage/ workshop building for temporary period of 3 years.

Granted 11.11.1996

95/00579/FUL Demolition and erection of buildings, internal and external alterations, change of use of workshops to form offices, reception and administrative area

Granted 08.08.1996

95/00364/FUL Elevational alterations and Change of use of buildings J & K to offices ancillary to the Studio.

Granted 8.11.1995

94/00317/FUL Erection of a single storey building and use of enclosed external area to provide creche facilities for a temporary period of 5 years.

Granted 12.10.1994

93/00363/FUL Land between Southern Boundary-of-Shepperton Studios-and-River Ash Shepperton Middlesex - Use of land as a film set for a temporary period of 9 months.

Granted 18.08.1993

93/00364/FUL Erection of a single storey building and use of enclosed external area to provide creche facilities for a temporary period of 5 years.

Granted 18.08.1993

93/00228/FUL Erection of building for film/TV production Granted 26.05.1993

92/00657/FUL Retention of a building 1904 sq ft(177 sq m)floorspace for use as dressing rooms and production offices for a temporary period of 5 years. As shown on Plans:- 311-325.305,311-325.303,311-325,304.

Granted 03.03.1993

SP/SCC/90/0241 Extraction of sand and gravel and import of infill material with restoration to agriculture. Transportation of material by field conveyor and processing through existing plant at Shepperton Pit. Installation of conveyor tunnel under Shepperton Road, construction of access from Home Farm to B376, upgrading plant,

Granted 07.02.1991

installation of weighbridge and retention of concrete plant.

SP/FUL/90/403 Erection of a single-storey workshop building measuring 18.28m (59ft 10ins) by 18.28m (59ft 10ins) overall (as shown on Drawing No. WF/04).

Granted 22.08.1990

SPE/ADV/88/969 Retention of a temporary building approved under reference E/87/1025 for an additional 12 months.

Refused 10.10.1988

SPE/EXT/89/841 Retention and continued use of single-storey reception building measuring 12 m (39 ft 4 ins) by 6 m (19 ft 7 ins) for a temporary period of 3 years (as shown on Plan Nos. 311.217/20A, and /21A).

Granted 19.12.1989

SPE/FUL/87/1025 Retention of a temporary stage set for a period of 12 months.

Granted 10.02.1988

SPE/FUL/87/918 Conversion of preview theatre into post synchronisation and dubbing theatre, to incorporate the erection of (A) a front entrance porch measuring 6m (19ft 8ins) by 1.4m (4ft 7ins) and (B) a sound lock facility measuring 2.5m (8ft 3ins) by 0.9m (2ft 11ins) (as shown on plans 311.21/100, 311.21/113, 311.21/200 and 311.21/110).

Granted 13.01.1988

SPE/FUL/87/427 Retention of a building of 1904 sq. ft. (177 sq. m.) floorspace for use as dressing rooms and production offices for a temporary period of 5 years.

Granted 01.07.1987

SPE/FUL/87/473 Erection of a detached single-storey toilet/shower building measuring 7.5 m (24.6 ft) by 4.5 m (14.75 ft).

Granted 29.07.1987

SPE/FUL/86/564 Erection of a single-storey building measuring 6.5 m (21.3 ft) by 5.6 m (18.4 ft) to enclose electrical switchgear, flanked by 2 m (6.6 ft) high close boarded fencing surmounted by barbed wire at the boundary between Shepperton Studio Centre and River Ash Open Space.

Granted 24.09.1986

SPE/FUL/86/25 Rebuilding of scene dock building, with ancillary mezzanine offices, measuring about

Granted 12.02.1986

129 m (423 ft) by 18 m (59 ft).

SPE/FUL/86/279 Erection of a single storey workshop complex (no. 1) for carpentry, plastering, painting and other associated studio activities with ancillary offices including at mezzanine level, all totalling 3,474 sq. m. (37,395 sq. ft ).

Granted 04.06.1986

SPE/FUL/86/196 Erection of a single-storey Reception Building measuring 12 m (39 ft. 4 ins.) by 6 m (19 ft. 7 ins.) for a temporary period of 3 years.

Granted 10.04.1985

SPE/FUL/85/158 Erection of a building of 1904 sq ft (177 sq gross m) floorspace for use as dressing rooms and production offices for a temporary period of 2 years.

Granted 10.04.1985

SPE/FUL/85/149 Erection of;) (a) 2 buildings comprising 4 new stages and three-storey dressing rooms, totalling 112,786 sq ft (10,482 sq m) gross floorspace; (b) 5, four-storey production and administration office buildings, totalling 81,259 sq ft (7,552 sq m) gross floorspace; (c) 10 shop units, totalling 8,073 sq ft (750 sq m) gross floorspace; (d) 2 workshop buildings with canteens, crowd dressing and art departments, totalling 83,509 sq ft (7,758 sq m) gross floorspace; (e) 1 store building with dressing room over part, totalling 32,293 sq ft (3,000 sq m) gross floorspace; (f) 1 part two-, part three-storey "film village" building comprising dubbing and preview theatres, restauranct and "public house", totalling 32,205 sq ft (2,993 sq m) gross floorspace; (g) 1 two-storey extension to building 21, totalling 3,874 sq ft (360 sq m) gross floorspace; (h) extension to existing multi storey car park, totalling 129,120 sq ft (12,000 sq m) gross floorspace, to provide a total car park for 670 cars; (i) together with new access points, circulation roads and surface parking areas for a total of 552 cars (of which 215 would be extra parking); for film and television productions including all trades and professions incidential and ancillary thereto; all following the demolition of a total of 313,546 sq ft (29,140 sq m) of existing gross floorspace.

Granted 08.05.1985

SPE/FUL/85/367 Erection of a single-storey workshop complex (No. 1) with a three storey central section

03.07.1985

comprising cafeteria, dressing rooms and art department, all totalling 50,351 sq ft (4679.5 sq m) following the demolition of 27,883 sq ft (2,591.4 sq m) of existing buildings for Shepperton Studios Ltd.

Appendix 2: Adopted Planning Policy extracts

Core Strategy Policy 2009 Policy Wording

Strategic Policy SP1: Location of Development

The extent of the existing urban area will be maintained and provision for all new development will be made within it.

The overall amount of employment development will be maintained. Larger well sited Employment Areas will be retained and increases in employment development accommodated in those locations.

Policy LO1: Flooding The Council will seek to reduce flood risk and its adverse effects on people and property in Spelthorne by:

(a) supporting appropriate comprehensive flood risk management measures within or affecting the Borough which are agreed by the Environment Agency

(b) reducing the risk of flooding from surface water and its contribution to fluvial flooding by requiring all developments of one or more dwellings and all other development over 100m² of floorspace in the Borough to have appropriate sustainable drainage schemes

(c) maintaining flood storage capacity within Flood Zone 3 by refusing any form of development on undeveloped sites which reduces flood storage capacity or impedes the flow of flood water

(d) maintaining the effectiveness of the more frequently flooded area (Zone 3b) of the floodplain to both store water and allow the movement of fast flowing water by not permitting any additional development including extensions

(e) requiring any development in Zones 2, 3a and 3b to be designed to be flood resilient/resistant,

(f) requiring all development proposals within Zones 2, 3a and 3b, and development outside this area (Zone 1) on sites of 0.5ha or 1000m2 of non-residential development or more, to be supported by an appropriate Flood Risk Assessment

Strategic Policy SP3: Economy and Employment Land Provision

The Council will maintain the employment capacity of the Spelthorne economy by maintaining well sited larger Employment Areas and supporting the renewal and improvement of employment floorspace to meet needs. It will support initiatives to improve the skills of the local workforce.

Policy EM1: Employment Development The Council will maintain employment development by:

(a) retaining the following designated Employment Areas and supporting in principle proposals in these areas for employment development:

‒ Shepperton Studios, Shepperton

(b) encouraging proposals for redevelopment and extensions that enable business needs to be met and make the most effective use of available employment land

Policy EM2: Employment Development on other land

The Council will allow further employment development on existing employment land outside designated Employment Areas where it can be demonstrated the development can take place in an acceptable way.

Strategic Policy SP5: Meeting Community Needs

The Council will ensure provision is made for services and facilities to meet the needs of the community. It will also seek to retain existing services and facilities that meet a local need or ensure adequate replacement is provided.

New developments that individually or cumulatively add to requirements for infrastructure and services will be expected to contribute to the provision of necessary improvements.

Policy CO1: Providing Community Facilities

The Council will seek to ensure community facilities are provided to meet local needs by:

(a) supporting the provision of new facilities for which a need is identified in locations accessible to the community served,

(b) supporting improvements to existing facilities to enable them to adapt to changing needs,

(c) resisting the loss of existing facilities except:

(i) where it is demonstrated that the facility is no longer needed, or

(ii) where it is established that the services provided by the facility can be provided in an alternative location or manner that is equally accessible to the community served.

Policy CO2: Provision of Infrastructure for New Development

The Council will require developers to provide or contribute in a timely way to the cost of infrastructure required as a result of any development they bring forward.

Strategic Policy SP6: Maintaining and Improving the Environment

The Council will seek to maintain and improve the quality of the environment of the Borough. It will:

(a) ensure the design and layout of new development incorporates principles of sustainable development, and creates an environment that is inclusive, safe and secure, is attractive with its own distinct identity and respects the environment of the area in which it is situated,

(b) contribute to improving air quality in the Borough,

(c) promote the improvement of poor quality environments both within the urban area and in the Green Belt.

Policy EN1: Design of New Development The Council will require a high standard in the design and layout of new development. Proposals for new development should demonstrate that they will:

(a) create buildings and places that are attractive with their own distinct identity; they should respect and make a positive contribution to the street scene and the character of the area in which they are situated, paying due regard to the scale, height, proportions, building lines, layout, materials and other characteristics of adjoining buildings and land,

(b) achieve a satisfactory relationship to adjoining properties avoiding significant harmful impact in terms of loss of privacy, daylight or sunlight, or overbearing effect due to bulk and proximity or outlook,

(c) be designed in an inclusive way to be accessible to all members of the community regardless of any disability and to encourage sustainable means of travel,

(d) incorporate landscaping to enhance the setting of the development, including the retention of any trees of amenity value and other significant landscape features that are of merit, and provide for suitable boundary treatment,

(e) create a safe and secure environment in which the opportunities for crime are minimized,

(f) incorporate measures to minimise energy consumption, conserve water resources and provide for

renewable energy generation in accordance with Policy CC1

(g) incorporate provision for the storage of waste and recyclable materials and make provision for sustainable drainage systems (SUDS).

Policy EN3: Air Quality The Council will seek to improve the air quality of the Borough and minimise harm from poor air quality by:

(a) supporting measures to encourage non-car based means of travel,

(b) supporting appropriate measures to reduce traffic congestion where it is a contributor to existing areas of poor air quality,

(c) requiring an air quality assessment where development:

(i) generates significant levels of pollution, or

(ii) increases traffic volumes or congestion, or

(iii) is for non-residential uses of 1000 m² or greater

Policy EN4: Provision of Open Space and Sport and Recreation Facilities

The Council will seek to ensure there is sufficient open space which is well sited and suitable to meet a wide range of outdoor sport, recreation and open space needs by:

(a) providing additional space where required (see also Policy CO3),

(b) maintaining and improving provision and access to open space through the design and layout of new development, encouraging owners and users of private sites to make improvements and also improving provision on Council owned land,

(c) seeking to maintain, improve and where appropriate expand networks of green space and pedestrian and cycle routes with a recreational role,

(d) retaining existing open space in the urban area used, or capable of use, for sport and recreation or

having amenity value where:

(i) there is a need for the site for sport or recreation purposes, or

(ii) the site as a whole is clearly visible to the general public from other public areas and its openness either:

makes a significant contribution to the quality and character of the urban area by virtue of its prominence, layout and position in relation to built development in the locality, or

is of particular value to local people where there is a shortage of open space in the locality.

(iii) the site is of particular nature conservation value, of at least SNCI or equivalent quality.

Policy EN5: Buildings of Architectural and Historic Interest

The Council will seek to preserve its architectural and historic heritage by:

(a) encouraging the retention of buildings of local architectural or historic interest and seeking to ensure that their character and setting is preserved in development proposals

(b) requiring development proposals for any sites affecting the setting of a listed building to have special regard to the need to preserve its setting,

(c) Applying the Council’s policies in a more flexible way where justified to ensure the preservation of a listed building.

Policy EN7: Tree Protection The Council will promote tree preservation orders wherever appropriate to safeguard healthy trees of amenity value, giving priority to the protection of those known to be under threat. Permission will not normally be granted to fell preserved trees, but where such trees are felled replacement planting will be required.

Policy EN8: Protecting and Improving the Landscape and Biodiversity

The Council will seek to protect and improve the landscape and biodiversity of the Borough by:

(a) working with partners in the public, private and voluntary sectors to develop and secure the implementation of projects to enhance the landscape and create or improve habitats of nature

conservation value, and to secure the more effective management of land in the Borough,

(b) ensuring that new development, wherever possible, contributes to an improvement in the landscape and biodiversity and also avoids harm to features of significance in the landscape or of nature conservation interest,

(c) refusing permission where development would have a significant harmful impact on the landscape or features of nature conservation value,

Policy EN9: River Thames and its Tributaries

The Council will seek to maintain and look for opportunities to enhance the setting of the River Thames and its tributaries. In considering development proposals it will:

(a) ensure the protection of landscape features that contribute to the setting of the rivers,

(b) seek to protect and enhance existing views of the rivers,

(c) pay special attention to the design of development located in riverside settings to ensure that it respects and makes a positive contribution to the setting of the rivers,

(d) ensure that the quality of the water environment is maintained,

(e) seek opportunities to improve public access to and alongside the rivers and ensure that existing public access is maintained.

Policy EN11: Development and Noise The Council will seek to minimise the adverse impact of noise by:

(a) requiring developments that generate unacceptable noise levels to include measures to reduce noise to an acceptable level,

(b) Requiring appropriate noise attenuation measures where this can overcome unacceptable impacts on residential and other noise sensitive development proposed in areas with high noise levels. Development will otherwise be refused

Policy EN13: Light Pollution The Council will seek to reduce light pollution by:

(a) encouraging the installation of appropriate lighting including that provided by other statutory bodies,

(b) only permitting lighting proposals which would not adversely affect amenity or public safety and requiring the lights to be:

(i) appropriately shielded, directed to the ground and sited to minimise any impact on adjoining areas; and

(ii) of a height and illumination level of the minimum required to serve their purpose.

Policy EN15: Development on Land Affected by Contamination

The Council will ensure that where development is proposed on land that may be affected by contamination, action will be taken to ensure the site is safe or will be made safe for its intended use. The Council will: (a) expect development proposals to be accompanied by an assessment of risk from contamination

where the development is on or adjacent to previous industrial uses or other land known to be affected by contamination, or in all cases where the proposal is for housing or other forms of development which are particularly sensitive to contamination,

(b) require applicants to provide what information is necessary to determine whether the proposed development can proceed; and

(c) impose conditions on planning permissions requiring appropriate investigation and treatment of contamination before development can proceed.

Strategic Policy SP7: Climate Change and Transport

The Council will seek to minimise the impact of climate change. It will reduce the impact of development in contributing to climate change by:

(a) promoting the inclusion of provision for renewable energy, energy conservation and waste management facilities in both new and existing developments,

(b) ensuring development is located in a way that reduces the need to travel and encourages alternatives to car use, and its design and layout takes account of climate change,

(c) supporting initiatives, including travel plans, to encourage non car-based travel,

(d) promoting the efficient use and conservation of water resources,

(e) promoting measures to reduce flooding and the risks from flooding,

Policy CC1: Renewable Energy, Energy Conservation and Sustainable Construction

The Council will support the provision of renewable energy, energy efficiency and

promote sustainable development generally by:

(a) Requiring development involving new building or extensions exceeding 100m2 to:

(i) optimise design, layout and orientation of development to minimise energy use,

(ii) Include measures to provide at least 10% of the development’s energy demand from on-site renewable energy sources unless it can be shown that it would seriously threaten the viability of the development.

(b) encouraging the installation of renewable energy equipment to supply existing buildings,

(c) encouraging appropriate freestanding renewable energy schemes,

(d) encouraging high standards of sustainable construction including the use of recycled construction material,

(e) Encouraging developments to attain high energy efficiency and minimum impact on the environment to at BREEAM ‘very good’ standard.

Policy CC2: Sustainable Travel The Council will seek to secure more sustainable travel patterns by:

(a) supporting measures and specific schemes to improve facilities for non-car based travel,

(b) requiring development needing access by a large number of people to be located where it is or can be made accessible by non-car means of transport,

(c) requiring all major development to be accompanied by a site specific travel plan to promote and achieve sustainable travel choices,

(d) only permitting traffic generating development where it is or can be made compatible with the transport infrastructure in the area taking into account:

(i) number and nature of additional traffic movements, including servicing needs,

(ii) capacity of the local transport network,

(iii) cumulative impact including other proposed development,

(iv) access and egress to the public highway,

(v) Highway safety.

Policy CC3: Parking Provision The Council will require appropriate provision to be made for off street parking in development proposals in accordance with its maximum parking standards. In considering the level of provision the Council will have regard to: (a) the anticipated demand for parking arising from the use proposed, or other uses to which the

development may be put without needing planning permission,

(b) The scope for encouraging alternative means of travel to the development that would reduce the need for on-site parking. This will be particularly relevant in areas well-served by public transport,

(c) the impact on highway safety from potential on-street parking and the scope for measures to overcome any problems,

(d) The need to make adequate and convenient provision for disabled parking.

Local Plan 2001 (Saved Policies) Policy Wording

Policy GB1: Green Belt The Green Belt shown on the Proposals Map will be permanent and within it development will not be permitted which would conflict with the purposes of the Green Belt and maintaining its openness. Subject to the above, development will not be permitted except for uses appropriate to the Green Belt, comprising:

(a) Agriculture and forestry

(b) essential facilities for outdoor sport and 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

(c) limited extension, alteration or replacement of existing dwellings

(d) appropriate re-use of buildings

(e) appropriate engineering and other operations

Policy RU11 - Sites of Nature Conservation Importance

The Borough Council will safeguard Sites of Nature Conservation Importance as shown on the Proposals Map and will only permit development proposals within these sites, where there will be no adverse effect, either directly or indirectly on their ecological interest, or where the requirements of Policy RU14 are met. The Council, in consultation with the Surrey Wildlife Trust, will keep under review the Sites of Nature Conservation Importance and will seek to protect such sites following their selection on a County-wide basis by the Surrey Nature Conservation Liaison Group”.

Policy RU14 - Sites of Nature Conservation Importance

Where a development proposal would destroy or damage the nature conservation interest of a site, the applicant will be required to demonstrate that the benefits of the proposed development outweigh the decrease in the nature conservation value of the site, that any such decrease has been kept to a minimum, that mitigation or compensation to provide for species protection and/or habitat creation or enhancement has been made within the area, and that appropriate measures to monitor the effectiveness of the mitigation have been established”.

Policy BE25: Archaeology and Ancient In considering proposals for development within areas of high archaeological potential, the Borough Council

Monuments will:

(a) require an initial assessment of the archaeological value of the site to be submitted as part of any planning application

(b) expect the applicant to arrange an archaeological field evaluation to be carried out prior to the determination of the planning application, where, as a result of the initial assessment, important archaeological remains are considered to exist

(c) have a preference for preservation in situ, and in such circumstances will impose conditions or seek a legal agreement, where appropriate, to ensure that damage to the remains is minimal or will be avoided

(d) require by planning condition or seek a legal agreement to secure a full archaeological investigation and recording of the site and subsequent publication of results in accordance with a scheme of work to be agreed in writing with the Council prior to the commencement of the proposed development, where important archaeological remains are known or considered likely to exist but their preservation in situ is not justified.

Supplementary Planning Documents Policy Wording

Flooding SPD Link to document here: https://www.spelthorne.gov.uk/media/1675/Flooding-SPD/pdf/Flooding_SPD_July_2012_FINAL_ADOPTED_DOC.pdf

Statement of Community Involvement Link to document here: https://www.spelthorne.gov.uk/media/2270/Statement-of-Community-Involvement-Adopted-October-2006/pdf/Statement_of_Community_Involvement_(Adopted_October_2006).pdf

The ‘Allocations’ and ‘South East Plan policy NRM11: Thames Basin Heaths’ policies which form the adopted Local Development Plan do not apply to this application.

An extract of the Adopted Proposals Map is provided below.

Appendix 3: Third Party Letters of Support

(a) Eon Productions Limited (the producers of the James Bond franchise)

(b) Lucasfilm Ltd (the producers of the Star Wars franchise)

(c) Netflix

(d) Marvel Studios

(e) Walt Disney Studios Motion Picture Production

(f) Creative England

(g) British Film Commission

(h) British Film Institute

(i) Lord Puttnam

Film London is a company limited by guarantee – registered in England and Wales no. 4699825. The British Film Commission is a division of Film London.

Daniel Mouawad Chief Executive Spelthorne Borough Council Council Offices Knowle Green Staines-upon-Thames TW18 1XB

2nd August 2018 Dear Mr. Mouawad, I write to you in my capacity as Chief Executive of the British Film Commission (BFC) and Film London. The BFC is the UK Government’s national organisation responsible for inward investment film and television production in the UK. Funded by the Department for Digital, Culture, Media and Sport through the British Film Institute, and the Department for International Trade, with corporate sponsorship from key UK industry partners and US film and TV clients including HBO, Walt Disney Studios, and Warner Bros., the BFC leads on:

maximising and supporting the production of major international feature film and high-end television in the UK;

strengthening and promoting the UK’s film and television production infrastructure; liaising between the government and the film and television industry to secure and maintain

production-friendly policies.

Our associate organisation Film London is the capital’s screen industries agency, funded by the Mayor of London, the National Lottery through the BFI, with support from Arts Council England and Heritage Lottery Fund.

We would like to lend our strong support to the plans to expand Shepperton Studios. An increase in the range and scale of Shepperton’s world-class studio space and sound stages would make the site substantially more attractive as a home for the blockbuster productions that the world’s leading film and TV studios and companies are keenly interested in basing in the UK.

Inward investment from the production of international feature film and high-end TV (HETV) drama reached record levels in the UK in 2017. International feature films spent £1.69bn in the UK – the highest figure since records began, and a 23% increase on 2016. UK-shot titles contributing to this stand-out year include Solo: A Star Wars Story and Mission: Impossible - Fallout. HETV production in turn generated a record £684m – 27.6% higher than 2016. 2018 is proving to be equally busy.

British Film Commission The Arts Building

Morris Place London N4 3JG

Tel +44 (0)20 7613 7675

www.britishfilmcommission.org.uk

Film London is a company limited by guarantee – registered in England and Wales no. 4699825. The British Film Commission is a division of Film London.

However, with this success come challenges: the UK’s increased popularity as a filming destination has led to severe capacity issues, most notably for studio space. By nature, our film and HETV tax reliefs encourage productions to maximise their UK-based activity, and are best suited to major high-end projects. These typically require multiple large-scale sets spread over stage space totalling an average of anywhere between 80,000 and 120,000sqft, plus associated workshop, office, backlot, and other auxiliary space. The finite amount of purpose-built studio space in the UK has led to the loss of several major multi-million dollar feature film and TV projects to competitor territories, with the resultant loss of investment, employment, and tax revenue for both local economies and for UK plc. With Lucasfilm's long-term residence set to continue at Shepperton’s sister studio, Pinewood, newer major players such as Netflix, Amazon, Apple, and Hulu entering the marketplace, a film-friendly government, the proliferation of major film and HETV projects, and the resultant capacity issues, is set to continue – if not, more likely, to increase. It is for this reason that the BFC is so encouraged to hear about Shepperton Studios’ expansion plans and why we are so keen to lend our whole-hearted support to the project. In recognition of the importance of the creative industries, which are worth £92 billion, employ two million people, and are growing twice as fast as the rest of the economy, the UK Government sustains Creative Sector Tax Reliefs to attract further business and to ensure the UK retains its position at the forefront of global production. The importance of the sector was reinforced in March 2018 when then Digital and Culture Secretary Matt Hancock announced the Creative Industries Sector Deal, one of five commissioned by the Prime Minister for sectors at the heart of the government’s post-Brexit Industrial Strategy. The Sector Deal highlights “the impact that creative anchor institutes can have on pride and economic performance in an area”, citing film and TV studios as an example of how creative businesses and local investment increase employment and share spillover benefits across the area and supply chain. Inward tourism spend is also strongly associated with the production of film and HETV – tourism as a result of British film is estimated to have brought 8,400 FTEs and £400m GVA, while more than £200m of inward tourism spend is associated with HETV.

Due to the large and experienced crew base, diverse and cinematic filming locations, easy access to the world’s leading VFX and post-production hub in Soho, and film-friendly local government, the West London cluster is probably the busiest area for high-end production in the world. As such, studio/stage space capacity is a key priority for the area. Additional stage capacity at Shepperton Studios would not only allow the region to build its already established and impressive reputation amongst international clients, and increase the level and diversity of stage space in the area, but would also provide a considerable and essential boost to the combined efforts of the British Film Commission and our public and commercial partners to market the region and the wider UK globally as a leading destination for major feature film and HETV production. Furthermore, for a globally-recognised British institution such as Shepperton Studios to undertake such significant investment and expansion plans, especially amid the uncertainty created by our forthcoming exit from the EU, inspires enormous confidence amongst other local businesses and international clients, reinforcing the message that the UK is very much open for business.

Film London is a company limited by guarantee – registered in England and Wales no. 4699825. The British Film Commission is a division of Film London.

If the BFC can provide any further support or evidence of the necessity for a significant increase in stage and auxiliary space capacity at Shepperton Studios, please do not hesitate to contact us. Yours sincerely,

Adrian Wootton OBE Chief Executive British Film Commission and Film London

Turley Office The Pinnacle 20 Tudor Road Reading RG1 1NH T 0118 902 2830