Sustainable Development Committee 23rd February 2011

Sarah Scannell e-mail: sarah.scannell@hounslow.gov.uk

References: P/2010/2878 00428/AS/P1

Address: Hatton Cemetery Faggs Road, Feltham, London, TW14 0LZ

Ward: Feltham North

Proposal: Erection of new building and associated car and coach parking for the Tropical Zoo visitor attraction and educational/conservation resource

Drawing numbers: 501 D, 502 D, 503 D, 504 D, 505 D, 506 D, 508 D, 509 D, Planning Statement and Appendix, Received 05/10/2010

Application received: 05/10/2010

1.0 SUMMARY

1.1 Planning permission is sought to relocate the Tropical Zoo from its existing location in Syon Park to the area of Green Belt adjacent to the Urban Farm in Feltham. The proposed development would involve the erection of a large glazed structure on what is now an open space. The site is green belt land and the proposal is therefore a development plan departure that would need to be formally referred to both the Mayor of London and the Secretary of State.

1.2 The application has previously been considered at the West Area Committee (Planning) for comment. It is now submitted to the Sustainable Development Committee with a recommendation for approval.

2.0 SITE DESCRIPTION

2.1 The site consists of a 0.76ha strip of land that extends from Faggs Road adjacent to the Hounslow Urban Farm. The site forms part of the Green Belt and is Council owned.

2.2 The site is currently vacant but is used occasionally for overflow parking

from the Urban Farm. The site is also used for parking during funerals at an adjoining cemetery to the rear of the site.

2.3 The site is accessed on its south side off Faggs Road, an access that is

shared with the Urban Farm and the cemetery. Opposite the site, across Faggs Road, is the Haslemere industrial estate. To the north of the site is the Hatton Farm industrial estate. There is a residential building (The Lodge) at the other side of the junction of the access road with Faggs Road.

2.4 Hatton Cross Underground station is approximately a 13 minute walk away,

and the site is also served by bus routes 490 (Richmond – Heathrow), 90 (Northolt to Feltham), 285 (Heathrow – Teddington), 941 (Bedfont – Hampton) and 116 (Ashford Hospital – Hounslow).

3.0 HISTORY

3.1 There is no relevant planning history for the site. The Urban Farm adjacent to the site have submitted a range of application for various works across the site.

4.0 DETAILS

4.1 The proposal is to relocate the Tropical Zoo from its current location within Syon Park to the application site.

4.2 The total footprint of the building would be 1830m2. The main building would have 930m2 of floor space and would take the form of a green house. It would be arranged in a cathedral 3-aisle structure with a maximum height of 12m at the apex.

4.3 The building would house a tropical forest environment to cater for all the species. It would also house an entrance lobby, shop and mezzanine café, classrooms, WCs, animal welfare facilities, an adventure play area and CHP plant.

4.4 The remaining site would be completed in hard and soft landscaping, and 180m2 of external animal habitat.

4.5 The access to the site would be widened to provide safe pedestrian and car access. Car parking would also be provided to the north of the proposed building. This parking would provide for visitors to the Tropical Zoo and overflow parking from the Urban Farm and the cemetery when necessary. The car parking would be divided into three main areas, 30 spaces for the cemetery, 30 for the Urban Farm and 27 bays for Tropical Zoo. Three coach parking bays and 3 disabled bays would be provided close to the common access road.

4.6 The applicant has also provided a detailed assessment of the special circumstances of this application and why the proposal needs to be placed on the Green Belt. This includes a detailed assessment of why this is the only acceptable site for a development of this nature, the education opportunities and the conservation benefits the Tropical Zoo brings. Details have also been provided relating to the opportunities of incorporating the Urban Farm functions into the Tropical Zoo by selling joint tickets – which will improve the economic opportunities for the existing Urban Farm.

4.7 A range of statements, supporting the proposal, has also been received from local community groups and schools who currently visit the Zoo.

4.8 A mini Combined Heat and Power (CHP) facility is proposed to be installed on site to assist with the on site renewable energy provision. This would be houses in a 1-2 storey building to the rear of the main zoo structure.

5.0 CONSULTATIONS

5.1 Letters of consultation were sent to 40 surrounding properties on 08/10/21010. A site notice was also placed on site. Two letters of objection had been received, commenting as follows:

Comment Response

The application is made without proper consideration to the main purpose of the land

See Issue 1

The Cemetery should be maintained with sufficient parking.

Parking is being provide on site for the cemetery

The application would result in overuse of the site

It is not considered that this is the case.

The structures would have a negative visual appearance.

See Issue 2.

Damage to residential amenity from increased noise and loss of outlook

Considered below

Mayor of London

5.2 The Mayor was notified of the scheme as a result of its scale and position within the Green Belt. The Mayor has noted that development in the Green Belt is inappropriate, but that in this instance he believe there are very special circumstances. He also assessed the proposal against the London Plan and national policy guidance, and made the following comments:

• Biodiversity

The proposal would retain and enrich local biodiversity within the vicinity of the site and the borough as a whole

• Education

The proposal represents a vital education resource for schools and other institutions in West London

• Leisure/tourism

At its present site, Tropical Zoo is a major leisure attraction. Its sitting close to the existing Urban Farm would increase its attraction to West Londoners.

5.3 The Major has also requested further details on:

• Urban Design

Including further justification for the size and scale of the building

• Inclusive Access

Including how the building would be inclusively accessed for all

• Transport

In line with comments from TfL

• Energy

Including the requirement for an energy statement.

• Climate Change

Including how the building has been designed to minimise the effects of climate change.

5.4 The applicant has now provided information in the ‘Planning Statement Addendum’. The information has been incorporated into the relevant sections of the report below.

Police

5.5 The police report that there have been minor crimes over the last few years at the farm and are concerned that there should be proper security arrangements at the Zoo. Also concern that the car park has no lighting.

West Area Planning Committee

5.5 The application was considered by the West Area Planning Committee on 18th November 2010. Members made the following comments:

• The scheme was a major attraction that would be welcomed in Feltham, and should be kept within the borough.

• It would have huge economic and educational benefits

• Noted the benefits of the synergy with the Urban Farm, and the proximity to Heathrow to work with animals which arrive there.

• The scheme represents no harm to the Green Belt due to the land uses that surround it, including a large Tesco’s and industrial units. However noted that Green Belt should be protected where possible.

• Concerns relating to the level of parking for cars and coaches i.e. was sufficient

• Concerns relating to the entrance into the site and out of the site given that no right turn can be made and suggested that our Highways engineers were consulted on the project and if a CPZ was required

• Suggested a possible access from the Tesco site, if this was not possible, would it be possible to remove the 24hour bus lane along Faggs Road.

• Suggested the option to have the car parking to the rear of the building rather at the front of the site

6.0 POLICY

Determining applications for full or outline planning permission

When determining applications for planning permission, the authority is required to have regard to the development plan, so far as is material, and to any other material considerations. In addition, the determination must be made in accordance with the development plan unless material considerations indicate otherwise. The Development Plan

The Development Plan for the Borough comprises the saved policies in the Council’s Unitary Development Plan (‘UDP’), the Employment Development Plan Document, the Brentford Area Action Plan and the London Plan. The London Plan (Consolidated with alterations since 2004) was adopted in February 2008. The UDP was adopted in December 2003 and was amended and saved as of 28 September 2007 by Direction from the Secretary of State. The Employment Development Plan Document was adopted on 25 November 2008 and has superseded the Employment Policies contained in UDP Chapter 7 and the following Implementation Policies contained in UDP Chapter 2: IMP.4.1, IMP.4.2, IMP.4.3, and IMP.4.4. The Brentford Area Action Plan was adopted on 27 January 2009 and has superseded the following Implementation Policies contained in UDP Chapter 2: IMP.2.1 and IMP.3.1.

Supplementary Planning Documents

Planning Obligations Air Quality These SPDs were adopted on 11/03/08, following public consultation in July and August 2007. The documents form part of the Local Development Framework. Supplementary Planning Guidance

1997 Supplementary Planning Guidance- The guidance contained within the Supplementary Guidance was subject to formal public consultation and unlike normal SPG were subject to an inquiry process and consideration by a government inspector. The Inspector’s report

recommended the appendices be removed from the plan, as they added to its bulk, cost and complexity and may well have consumed further resources at the first review of the UDP. He also considered that they could stand alone away from the main plan as SPG. This was the course of action to be taken by the Council. During the consultation process, objections were received from individual house builders and the HBF. The guidance was amended as part of the process. The Council did not therefore consider it necessary to reconsult on this proposed guidance, but simply to use the guidance in light of the suggested amendments and the Inspector’s comments. NATIONAL AND STRATEGIC PLANNING POLICIES

6.1 The relevant national planning policies are:

• PPS1: Delivering Sustainable Development

• PPG2: Green Belts

• PPS9: Biodiversity and Geological Conservation

• PPG13: Transport

• PPG17: Planning for Open Space, Sport and Recreation

• PPS22: Renewable Energy 6.2 The Circulars of relevance to this planning application are:

• 11/95: Use of Planning Conditions in Planning Permission

• 05/05: Planning Obligations UNITARY DEVELOPMENT PLAN Relevant policies of the London Plan (Consolidated with Alterations since 2004)

6.3 The following London Plan policies are of relevance to the applications:

The Mayor’s Objectives

I.1 The Mayor's Objectives The Overall Strategy

2A.1 Sustainability criteria

2A.9 The Suburbs: supporting sustainable communities

Connecting London Policies – Improving Travel in London

3C.1 Integrating transport and development

3C.2 Matching development to transport capacity

3C.3 Sustainable transport in London

3C.9 Increasing the capacity, quality and integration of public transport to meet London’s needs

3C.22 Improving conditions for cycling

3C.23 Parking strategy Enjoying London Policies

3D.8 Realising the value of open space and green infrastructure

3D.11 Open space provision in UDPs

3D.12 Open space strategies

3D.14 Biodiversity and nature conservation Climate Change and London’s Metabolism Policies

4A.3 Sustainable design and construction

4A.14 Sustainable drainage Designs on London Policies

4B.1 Design principles for a compact city

4B.5 Creating an inclusive environment

4B.8 Respect local context and communities West London Sub-Regions Policies

5F.1 The strategic priorities for West London Delivering the Vision Policies

6A.4 Priorities in planning obligations

6A.5 Planning obligations

Relevant policies of the UDP

6.4 The following UDP policies are of relevance to the applications. These policies have been ‘saved’ by the secretary of state to allow for the preparation of new development plans to replace the entire UDP.

Implementation Policies

IMP.6.1 Planning Obligations Natural Environment Policies

ENV-N.1.2 Acceptable Development in Green Belt

ENV-N.2.3 Promotion of nature conservation management

ENV-N.2.3A Species protection

ENV-N.2.4 Habitat protection

ENV-N.2.5 Habitat reconstruction

ENV-N.2.6 Landscape features

ENV-N.2.7 Trees and community woodlands Built Environment Policies

ENV-B.1.1 New development

ENV-B.1.5 Environmental improvements

ENV-B.1.9 Safety and security Environmental Protection Policies

ENV-P.1.1 Environmental sustainability: environmental impact statements and sustainability checklist

ENV-P.1.2 Water pollution and water quality

ENV-P.1.3 Surface water run off

ENV-P.1.4 Waste water management

ENV-P.1.5 Noise pollution

ENV-P.1.6 Air pollution

ENV-P.1.7 Light pollution

ENV-P.2.1 Waste management

ENV-P.2.4 Recycling facilities in new developments Transport Policies

T.1.2 The movement implications of development

T.1.4 Car and cycle parking and servicing facilities for developments

T.2.1 Pedestrian access

T.2.2 Pedestrian safety and security

T.2.3 Strategic and local cycle networks

T.2.4 Public transport infrastructure

T.2.6 Safety of public transport

T.3.1 Improvements sensitive to particular uses

T.4.2 Oppose overall increases in highway capacity for private vehicle and seeks reduction in traffic levels

T.4.3 Traffic implications of new development

T.4.4 Road safety

T.5.1 Air quality implications of traffic Supplementary Planning Guidance

6.5 Accessible London: Achieving an Inclusive Environment (April 2004) (London Plan Supplementary Planning Guidance)

6.6 Sustainable Design and Construction (May 2006) (London Plan Supplementary Planning Guidance)

Other relevant documents

6.7 Green light to clean power: The Mayor’s Energy Strategy (February 2004)

6.8 Providing for Children and Young People’s Play and Informal Recreation (October 2006) (draft London Plan Supplementary Planning Guidance)

7.0 PLANNING ISSUES

7.1 The main planning issues to consider are:

1. Principle of the proposed development

2. Design and appearance;

3. The proposal’s impact on neighbouring land uses;

4. Environmental Considerations;

5. Transport;

6. Whether sustainable building principles are applied; and

8. The potential of the proposed development to secure planning obligations

Issue 1: The principle of the proposed development

7.2 Government Policy and Guidance in the form of PPS1 and PPS3 encourage a systematic sustainable approach to the selection of land for development, with preference given, among others, to previously development land. This approach is also laid out in London Plan Policy 4B.1 and UDP Policies IMP.1.1 and IMP. 1.2.

7.3 Planning Policy Guidance Note 2 (PPG2) states that inappropriate development is, by definition, harmful to the Green Belt. Such development should not be approved except in very special circumstances. This is supported by London Plan Policy 3D.9. Unitary Development Plan (UDP) Policy ENV-N.1.2, in line with PPG2, states that there is a general presumption against inappropriate development within the Green Belt. In relation to the construction of new buildings, the UDP outlines that all building will be inappropriate, unless it is used for:

• Agriculture and forestry;

• Essential facilities for outdoor sport and outdoor recreation, for cemeteries, and for other uses which preserve the openness of the Green Belt; or

• Limited extension, alteration or replacement of existing dwellings.

7.4 The UDP further states that the Council will not permit, except in very special circumstances, any development which is not compatible with the principle purpose of the Green Belt which in Hounslow is to prevent urban sprawl by keeping land permanently open.

7.5 The proposal does not fall within any of the accepted forms of development

within the Green Belt as defined by PPG2 and as such is considered to be inappropriate. PPG2 states that ‘inappropriate’ development is, by definition, harmful to the Green Belt and that the onus is on the applicant to show why permission should be granted and to show that ‘very special circumstances’ exist to justify a departure from the normal presumption against such development. Any perceived harm must therefore be clearly outweighed by the other material considerations.

7.6 The following matters are put forward by the applicant as very special circumstancest:

• Position of the applicant

7.7 The applicant has been required to move from its current location in Syon Park as part of a wider enabling development proposal at Syon Park and House. In order to facilitate the upkeep of the Grade 1 listed house, permission was given to build a high quality hotel on the site under enabling development. However, in order for the openness of the Grade I listed park to be retained, several substandard buildings had to be removed, including the Tropical Zoo building. This enabling development for the upkeep of an important listed building in the borough therefore resulted in the loss of the Tropical Zoo site.

7.8 This is a material consideration but it can not amount, on its own, to a special consideration sufficient to justify the departure proposed. It is however worthy of note that the net amount of open green belt land lost in Hounslow is much less than the footprint of the proposed development in Faggs Road. A case could also be made for the quality of the historic park at Syon being more significant than part of the edge of an area of green belt at Faggs Road.

• Legal Agreement

7.9 Part of the legal agreement for the Syon Park hotel development outlined above was a requirement by Syon Park to assist in finding a new home for the buildings and business. This means that at the time of decision, all parties involved were aware that a new site would have to be found for the development site.

7.10 The borough has already lost the Butterfly House, which previously stood in Syon Park, as a new site could not be found. It is therefore particularly important that a new site is found for this important visitor attraction in the borough.

7.11 Again, this is material but not a special circumstance on its own.

• Sequential site test

7.12 The search for another site for the Tropical Zoo was done, by the applicants, in a sequential test. This test took into account the size and scale of the building that would be required, the level of outdoor spaced requested and charity status of the applicant.

7.13 These restrictive factors ruled out many of the vacant brownfield sites within the borough. For instance Gunnersbury Park, Hounslow Heath and Battersea Park were all considered but, due to the size of the proposal or the occupancy of the site, were not suitable. The site proposed here has been assessed and found to have many of the qualities required for the re-location, including wider open space, sufficient scale to hold the necessary footprint and an opportunity to combine elements with an existing visitor attraction in the borough.

7.14 Officers have considered the applicants sequential test and consider it to be reasonable. However the possible loss of the zoo to west London, on its own would not justify to loss of green belt open land.

Improvements to the Green Belt and wider community

7.15 The applicants have outlined a number of benefits to the wider Green Belt and community as part of this application.

- Social enterprise and benefits: it has an affordable entry price making it accessible to local people and an education attraction. The zoo’s charitable foundation will provide subsidies for nature conservation related class trips, and the opportunity for opening up the surrounding Green Belt for conservation education.

- Education: 14,000 children visit the zoo through organised trips in 2009, and an outreach programme linked to the National Curriculum.

- Biodiversity and conservation: the zoo holds a large number of rare species and the work the zoo does improves their habitats and the biodiversity of the space around the building.

- Economic Activity: although the zoo does not have a large economic footprint, it attracts around 60,000 visitors per year. This could increase local related spending. As the zoo is self-funded, it will be investing itself to improve the surrounding Green Belt.

- Transport: this site has a higher PTAL level than the existing is at Syon Park and would encourage sustainable modes of transport for both staff and visitors. The peak times of the use would also not clash with rush hour.

7.16 Officers accept that all of these benefits would be welcome but cannot recommend that they would amount to sufficient to justify the proposal. To them can be added the general contribution that would be made to leisure and tourism.

Design

7.17 The building has been designed to minimise the effect and intrusion into the Green Belt. It is placed to the front of the site, adjacent to the existing busy Faggs Road, opposite the large industrial sheds on Haslemere Industrial Estate. This position would leave the Green Belt to the rear as open as possible. The building has also been designed with a glazed exterior,

encouraging views through the site to the Green Belt beyond.

7.18 Officers agree that if there is to be a building in this part of the green belt it would be best located at its edge. The fact that this would essentially be a glass building with trees in it would also help and would, arguably, be a better ‘edge’ than the present main road with industrial sheds beyond. However the quality of the design, on its own, is not sufficient justification.

Conclusion

7.19 Although none of the matters described above, on their own, amount to very special circumstances, officers consider that, cumulatively, they meet the criteria of Green Belt policy. Members of the West Area Planning Committee agree with this cumulative approach, as does the Mayor of London.

Issue 2 Design and Appearance

Mass and Scale

7.20 The building has a large mass and scale. This is to ensure that the space created by the development is sufficient to allow the growth of the tropical forest.

7.21 The adjacent buildings are not similar in mass or scale. The Urban Farm is made up of low level buildings dispersed across the site. Opposite the site is an industrial estate with a range of ‘large box’ developments housing industrial uses. The proposed building would be closer to the scale of these buildings, but still far larger then any surrounding development.

7.22 The design would appear as a ‘greenhouse’ farm building which is intended to reflect the intended use of the building and site. It is considered that this would be an appropriate design for its location. The applicants have also submitted further details which outline that this scale provides for the necessary environment for the site to function.

Front elevation

Height

7.23 The building would be a maximum of 12m in height at the apex of the structure. This is significantly taller then any of the surrounding buildings. However, details submitted by the applicant outline that this height is required to effectively heat the space in order to gain optimum temperate for

the growing of the tropical plant life. The Planning Statement Addendum provides further details of the trees to be used to create the ‘tropical environment’ the animals require. The schedule of plans includes:

• Canopy Plants:

Trees: mature at 10-15m

Palms: mature at 10m

Bamboo: mature at 8-10m

Climbers: height depends on surrounding plants.

• Sub-canopy

Trees: mature at 4-10m

Palms: mature at 6-12m

Bamboo: mature at 6-8m

Shrubs and herbaceous: mature at 3-4m

7.24 The applicants have also provided details of other similar schemes where tropical forests have been grown successfully. Those that are the most successful usually have buildings with heights in excess of 12m, for example the Eden Project, Sheffield Winder Garden, and the Kew Palm House These examples are noted while acknowledging that this scheme is on a significantly smaller scale.

7.25 It is therefore clear that the height of building is integral for the function of the use as a forest. This is supported in the Planning Statement Addendum supporting statement completed by the Conservatories Co-ordinator at Kew Gardens who sates:

“with good height you will enable the environment to be more controllable and buoyant; it will cope with external temperature fluctuations much more easily. This not only enables a more efficient building but becomes more sustainable, attracts less carbon foot print and less CO2 emissions”

7.26 Although this proposed building is slightly taller then the existing building at Syon, it is considered that given this expert statement and the heights of the trees required by the Tropical Zoo (outlined at paragraph 7.17), that the 12m height is necessary to ensure that the environment within the zoo is appropriate for trees to grow and animals to be comfortable.

7.27 A key point is that only the apex element of the design would reach the maximum height, with the building sloping down to meet a height more similar to surrounding buildings. In this way it is considered that the scheme aims to achieve the necessary height to make the development work, whilst minimising the effect of the building on the surrounding area.

Position

7.28 The building is positioned to the front of the site, directly adjacent to Faggs

Road. This position is closest to the industrial estate opposite, whilst intruding into the Green Belt as little as possible. Although the Green Belt site to the rear is not part of the application site, and is currently owned by the London Borough of Hounslow, the applicants have submitted details of plans for creating a wildflower meadow in this area, subject to agreement by the Councils property team (Planning Statement Appendix E). The idea for this piece of land is to open it up to the public for free to provide educational and conservation services for the wider community.

7.29 The position of the building slightly to the south of the site also means that the required parking can be placed to the north of the building, which is currently predominately screened from Faggs Road by existing landscaping. Although west area members suggested the parking to be moved to the rear of the site, this would result in the loss of the proposed wildflower meadow and would encroach further into the Green Belt.

7.30 The position of the proposed development has also been dictated by the entrance to the Urban Farm. The applicants suggested that the Tropical Zoo and Urban Farm would be offering joint day tickets with the aim of encouraging more visitors. The position proposed would mean that visitors would be able to move between the two sites with ease.

Design

7.31 It is clear from the drawings that the design is not similar to that of any of the surrounding buildings. The design of the proposal is a result of the necessary functions of the scheme.

7.32 The transparent ‘conservatory’ style design would assist in retaining the openness of the Green Belt. In contrast to a brick built building, this proposal would allow views through the structure into the tropical forest and, in theory at least, to the Green Belt beyond.

7.33 The ‘closed cell’ three layer polycarbonate greenhouse materials would also ensure maximum sunlight and daylight enters the building, with minimal heat loss as polycarbonate has better light transmittance and better thermal insulation than glass. In the south facing top sections, opal material will be used to reduce excess solar gain in the summer.

7.34 The site beyond the building structure would by laid out to make the best use of the surrounding space. Car parking would be sensibly positioned screened from Faggs Road, the access for pedestrians and cars would be adequate and the internal layout would reflect the needs outlined by the applicants.

7.35 The Planning Statement Addendum also outlines details of the vegetation perimeter screen that is proposed, demonstrating that the species used will be capable of provided a barrier within 24 months, growing to reach full screening effect over a longer period of time. It is considered that this would ensure that the car parking elements are screened from the road, whilst ensuring the long term sustainability of the boundary treatment.

Street Scene

7.36 The street scene of Faggs Road is eclectic. This site is surrounded by industrial units, but further down the road, there are houses and retail units. As a result, it is not considered that there is a distinctive street scene that this development should seek to respect.

7.37 The development would be placed within the Green Belt site, retaining the footpath to the front of the site. It is considered that this would ensure the building provides its own street scene.

Issue 3 Impact on neighbouring land uses

7.38 As noted previously, the site is not directly visible from most residential properties. There is, however, a tenanted house at the junction of the joint access road with Faggs Road. These premises would be affected in that there would be a building on the other side of the access road (the new Zoo), where there is currently open land. As a result of the development there would also be increased vehicle and pedestrian activity along the access road. There is no doubt that this house will be worse off in terms of outlook and the increased activity. However, bearing in mind the main road location it is not considered to be unreasonable. No other houses would be affected in any significant way.

7.39 In relation to the Urban Farm, the applicants have submitted details of the working arrangements that would be implemented between the two sites (Appendix D). This includes an agreement signed by both companies outlining a number of joint working ventures, including:

• Tropical Zoo allowing visitors to the Urban Farm to use toilets and restaurant free of charge

• There will be a reduced price entry for people buying a combined ticket to Tropical Zoo and Urban Farm

• There will be a reduced combined ticket available for school groups that will be promoted through school talks carried out by both parties.

• The Tropical Zoo will offer classroom/educational facilities to be used by schools visiting the Urban Farm.

• The Tropical Zoo will pay half the cost of any combined marketing for the two sites – and both companies will advertise the other on their websites

• The Tropical Zoo will redevelop the car parking area, and will maintain parking for both attractions.

7.40 It is therefore considered that the location of the Tropical Zoo on this site would benefit the economic development of the Urban Farm, which is also a valued attraction in the borough.

7.41 The proposal also includes dedicated car parking on the site for the cemetery behind the Urban Farm. This consists of 30 car parking spaces within the car parking for the zoo. In addition, this proposal would involve the improvement of the existing footpath access to the site. It is therefore

considered that this would improve access opportunities to the site and visitors to it.

7.42 Due to the site’s location within the Green Belt, the applicants have proposed a range of benefits to the wider Green Belt area as a result of this development. These include details of a conservation project that would extend biodiversity improvements into adjacent Green Belt space, and engage schoolchildren in guided study programmes.

7.43 In addition, the work and education facilities provided by the Tropical Zoo will include:

• Increasing awareness of the area

• Publishing opportunities for trips, trails and picnics

• Organising nature trails

• Providing active stewardship including litter picking

• Enhancing viability of Urban Farm

7.44 It is considered that the proposal will provide a range of opportunities for improving the local communities access to, and understanding of, the green belt.

Issue 4 Environmental Considerations

7.45 The site’s location within the Green Belt results in particular attention to the Environmental effect of he development, in line with UDP policy ENV-P.1.1.

Site conditions

7.46 The site has previously been used for parking for a number of years, however this has taken place in an informal manor, with no designation of spaces. The applicants have carefully considered the materials used to reinforce the car parking area that would spread the load of the cars, without losing the green meadow character. They have chosen a geotextile grid material which allows for water infiltration into the ground whilst not harming the appearance of the area.

Air

7.47 The whole Borough was declared an Air Quality Management Area (AQMA) in March 2006. However, whilst the designation of the AQMA is indicative of a certain level of air quality, this in itself does not prevent development.

7.48 Officers have raised no objection to the proposal on the basis of the effect on air quality. It is therefore not considered that this proposal would significantly effect the surrounding air quality.

Noise

7.49 The impact of the noise environment in the surrounding area is also still undergoing assessment. However, it is not considered that the noise of the

site would harm the function of the site, or visitor’s enjoyment of it. The building would be fully glazed and sealed to prevent as much noise as possible from affecting the species.

Water

7.50 The site is not within a flood zone. It is therefore not necessary to carry out a flood risk assessment for this proposal.

Issue 5 Transport and Access

7.51 The Council’s parking standards are considered to be the maximum desirable provision, with UDP policies seeking to reduce the need to travel, reduce reliance on the private car and promote use of sustainable modes; there are no minimum standards except in relation to disabled parking.

Site plan

7.52 London Plan Policy 3C.23 also seeks to ensure that on-site car parking at new developments is the minimum necessary and that there is no over-provision that could undermine the use of more sustainable non-car modes.

7.53 The development would provide 30 parking spaces for the Cemetery (two of which would be disabled spaces), 30 spaces for the Urban Farm (two of which would be disabled spaces), and 27 spaces for the Tropical Zoo. An additional 3 disabled spaces would be provided at the entrance to the zoo, with 3 coach bays also at this entrance. The applicant has also committed to improve the access way to the site for the use of the Urban Farm and the cemetery. The new parking provision and the access improvements for the existing cemetery and farm uses are to be welcomed.

7.54 The layout includes accessible parking spaces close to the entrance of the Zoo. The applicants have also outlined that the site would be level for full access. These details will be secured by condition 11 requesting full details of levels before the development is commenced.

7.55 The applicants have submitted a transport assessment which outlines that public access to the site is possible using both the tube and bus, which is better for public access than the zoo’s current location. The report outlines that the movements to and from the site would not result in any significant increase in congestion on the surrounding roads.

7.56 The dual carriageway section of Faggs Road from which the site is accessed, is the responsibility of Transport for London who have therefore been consulted on the application They have raised no objection to the development, including the amount and layout of the parking on site, so long as a number of conditions are added to any approval. They have also requested a planning contribution of £20,000 towards bus stop improvements at the stops that service the site.

7.57 West Area Members raised concern with the access from Faggs Road into and out of the site. The layout requires vehicles approaching the site from the direction of the A30 or Hatton Cross to ‘U’ turn through the central reservation of Faggs Road to join the northbound carriageway and then turn left into the site. Vehicles leaving the site are required to turn left, northwards, only onto Faggs Road. A new opening across the central reservation of Faggs Road would give access from and egress to both directions, but was found to reduce the overall safety of the road as a whole.

7.58 Officers have also looked at the possibility of a road link from the adjacent Tesco site, but this is not practical due to the involvement of a third party land owner and the significant length of road construction that would be required for such a development within the Green Belt.

7.59 Drivers using the car park will be advised of the route to follow if they wish to travel south on Faggs Road on leaving the site and coaches will be advised to approach the site from the south to remove the need for these vehicles to ‘U’ turn through the Faggs Road central reservation.

7.60 It is therefore considered that in view of the anticipated level of vehicular visits to the site, that the access as currently exists form Faggs Road is acceptable.

Issue 6 Sustainability

7.61 Sustainability underpins many policies of the UDP and the London Plan. These require developments to be sustainable in transport terms, to minimise waste, include energy efficiency measures and promote the use of renewable energy, and not significantly increase the requirement for water supply or surface water drainage. Officers would expect developments to meet the standard of providing a minimum of 20% of the required energy for the whole site to be provided from on site renewable energy.

7.62 The Planning Statement Addendum outlines that a rainwater harvesting system would be installed in the main building. A main tank would be buried underground, which would be connected to a soakaway and the drainage systems. Due to the low level of rainwater anticipated on this site, the use of this harvested water will be in WCs in the new building with the addition

of a small amount of header tank uses to top up any shortfalls.

7.63 The applicant has also submitted a detailed energy statement which analyses the energy consumption of the existing facility, estimates the consumption of the proposed building and provides an assessment of which technologies could be used to achieve the 20% renewables target.

7.64 The report demonstrates that, due to the design of the building, the overall energy consumption over the course of a year would satisfactory.

7.65 The report also concludes that the only renewable technology that would meet the policy target is the provision of a biomass boiler with a micro CHP system. The applicants have suggested that they will pursue the biomass boiler option. It is considered that this report, in conjunction with a safeguarding condition (5), clearly demonstrates the ability to meet the requirement of 20% energy to be produced by on-site renewable technologies

Issue 7 Planning Obligations

7.66 UDP policy IMP6.1 states that the Council will seek to ensure that a developer enters into a planning obligation to secure planning benefits related to the proposed development. A payment or other benefit offered pursuant to a section 106 agreement is not material to a decision to grant planning permission and cannot be required unless it complies with the provisions of the Community Infrastructure Levy Regulations 2010 (regulation 122), which provide that the planning obligation must be:

• necessary to make the development acceptable in planning terms;

• directly related to the development; and

• fairly and reasonably related in scale and kind to the development.

7.67 Accordingly, it is mandatory that each criterion be satisfactorily addressed prior to granting planning permission subject to a section 106 agreement.

7.68 Government Circular 05/2005 provides guidance on the use of planning obligations, which may impose a restriction or requirement, or provide for payment of money from the developer to make acceptable development proposals that might otherwise be unacceptable in planning terms. The Council’s Supplementary Planning Document on Planning Obligations (which was adopted in March 2008) contains guidance on the imposition of planning obligations in compliance with Circular 05/2005. These obligations may offset shortfalls in the scheme or mitigate the impacts of the development.

7.69 If approval was to be considered and as mentioned above, TfL have requested a planning contribution towards the improvement of the facilities at two bus stops on Faggs Road that serve the site. The Head of Traffic and Road Safety has assessed the need for improvements at these stops and concluded that to mitigate the impact of the development, some £10,000 would be needed for improvement of local public transport facilities.

7.70 The heads of terms of any legal agreement will therefore cover:

• Public Transport - £10,000.00

• Travel Plan.

8.0 EQUAL OPPORTUNITIES IMPLICATIONS

8.1 The equal opportunity implications of the proposal are discussed in the body of the report.

9.0 CONCLUSION

9.1 The cumulative effect of the issues affecting this site and proposal make the development acceptable in green belt terms. The proposal would not unreasonably harm neighbours’ living conditions and would not harm the general street scene and would not be detrimental to traffic conditions in the area. The scheme is therefore recommended for approval.

10.0 RECOMMENDATION

1. That planning permission be granted subject to referring the application back to the GLA for Stage II comments and referral to the Secretary of State, and the following conditions and securing the abovementioned planning obligations by the prior completion of a satisfactory legal agreement or unilateral undertaking made under Section 106 of the Town and Country Planning Act 1990 and or other appropriate legislation, the exact terms of which shall be negotiated by appropriate officers within the Department of Environment on the advice of the Borough Solicitor.

2. The satisfactory legal agreement or unilateral undertaking outlined

above shall be completed and planning permission issued by 1 June 2011 or longer period if appropriate or such extended period as may be agreed in writing by appropriate officers within the Department of Environment or Borough Solicitor’s Office.

3. Following the grant of planning permission, where (a) requested to enter

into a deed of variation or legal agreement in connection with the planning permission hereby approved and by the person(s) bound by the legal agreement authorised in paragraph 1 above, and (b) where the planning obligations are not materially affected, and (c) there is no monetary cost to the Council, the Director of Environment or Assistant Director - Environment Department (Regulatory & Development Services) or Development Control Support Manager is hereby authorised (in consultation with the Chair of SDC and upon the advice of the Borough Solicitor) to enter into a legal agreement(s) (deed of variation) made under Sections 106 and/or 106A of the Town and Country Planning Act 1990 and or other appropriate legislation.

Reason

The cumulative effect of the specific issues relating to this development and the site amount to very special circumstances that make the development acceptable in principle. With appropriate planning conditions, the proposal would not have a detrimental effect on the appearance of the area and the development would not have a negative effect on the surrounding land uses. The application therefore complies with policy 3D.14 (Biodiversity and nature conservation) of the London Plan and ENV-B.1.1 (New Development), ENV-N.1.2 (Acceptable Development in Green Belt), ENV-N.2.3 (Promotion of Nature Conservation), ENV-B.1.5 (Environmental Improvements) and T.1.4 (Car and cycle parking and servicing facilities for development.

Conditions:

1 A1a Time Scale (commencement of development)

2 B4 Samples of Materials

3 B5 Detailed Applications

4 D5 Refuse and Recycling Arrangements

5 The building hereby approved shall not be occupied until the biomass boiler detailed in the Energy Statement submitted 07/02/2011, is installed and working as outlined within the Energy Statement.

Reason: To minimise the impact of the development and to contribute to meeting the renewable energy targets in the Mayor’s London Plan.

6 No development shall take place until details of a Sustainable Drainage Scheme, including measures for the harvesting of rainwater, the minimisation of water run-off from the building, by at least 50% of that of the undeveloped site, and the conservation and reuse as appropriate of other water supplies in the building have been submitted to and approved by the Local Planning Authority. These details shall be carried out as approved.

Reason: In the interests of sustainability, the management of surface water run off, and Policy 4C.8 of the London Plan.

7 No development shall take place until details have been submitted to and approved by the Local Planning Authority, for a sustainable construction scheme, to comply with the ”essential” standards for materials in the Mayor’s Sustainable Design and Construction SPG. These being:

• 50% timber and timber products from Forest Stewardship Council (FSC) sources and balance from known temperate sources.

• Insulation materials containing substances known to contribute to stratospheric ozone depletion or with the potential to contribute to global warming must not be used.

• Minimize the use of new aggregates.

• Reduce waste during construction and demolition phases and sort waste stream on site where practical

• Specify use of reduced or recycled construction materials.

Reason:

In the interest of sustainability and comply with essential standards in the London Plan and in the London Plan Policy 4B.6

8 G5 Cycle Parking

9 G7 Parking Maintenance

10 F5 Access

11 J1 Disabled Access

12 E1 Hard and Soft Landscaping

13 E5 Boundary Treatment

Background papers

The contents of planning file ref. 00428/AS/P1save for exempt or confidential information as defined in the Local Government Act 1972, Sch. 12A Parts 1 and 2.