BOSTON BOROUGH COUNCIL

Planning Committee – 24th July 2018

Reference No: B/18/0224 Expiry Date: 03-Sep-2018 Application Type: Full Planning Permission Proposal: Erection of two storey Engineering, Manufacturing and Training

(EMAT) Centre and associated landscaping works Site: Boston College, Skirbeck Road, Boston, PE21 6JF Applicant: Ms Janet Hemmant, Boston College Ward: Skirbeck, Trinity Parish: Boston Town Area Committee Case Officer: Stuart Thomsett Third Party Reps: None Recommendation: Grant

1.0 Reason for Report

1.1 This application is of public importance and should be determined by Planning Committee.

2.0 Application Site and Proposal 2.1 Boston College has three campuses in Boston: Sports Studies (Peter Paine

Sports Centre situated at the foot of Rosebery Avenue), The Sam Newsom Music and Performing Arts Centre on South Street and the main Rochford Campus situated between Rowley Road and Skirbeck Road.

2.2 The Rochford Campus has grown significantly over the last 50 years and the

number and design of buildings on the site reflects the College’s evolution and modernisation. This continued development and expansion has created a wide range of academic and vocational courses which caters for a diverse range of educational needs and courses. Those responsible for the College’s premises have tastefully renovated and re-designed a very functional and tired original building internally and externally to provide a modern, clean and professional environment that promotes learning and excellence. The more modern extensions and new buildings also reflect this approach resulting in a campus that is almost unrecognisable from the former Boston College of Further Education (c. 1970 -2000).

2.3 The Rochford Campus stretches from its original access on Rowley Road, covers approximately 4 hectares and incorporates many large buildings: - Construction Centre and Motor Vehicle Workshop Main College Building Two student residential buildings comprising eight individual blocks or ‘Houses’ (Brewster, Clifton, Winslow, Aiden, Standish, Bradford, Carver and Mullens). Boston College Sixth Form Block The Goodliffe Centre Boston Conference and Management Centre

2.4 The proposed development site is a section of the existing car park at the

southern end of the Rochford Campus accessed directly from Skirbeck Road. The campus is situated on the edge of the town centre, around a kilometre south east of the primary shopping frontages, and circa 500 metres from the General Business Area boundary as defined in the adopted Local Plan.

2.5 The site is adjacent to, but outside the Boston Conservation Area and there are

grade II listed buildings close to the site – St John’s Building and front boundary wall (70m to the east) and houses No. 33 Skirbeck Road (150m), No. 2&4 Skirbeck Road (200m) and South Terrace (250m). The grade II* listed Scheduled Ancient Monument (SAM) Hussey Tower is located approximately 180m from the proposed building. Considering that the Royal Mail Sorting Office and the Tower Gardens residential development which were both constructed on sites immediately adjacent to the Norman keep, it was considered that the proposed EMAT facility would not affect the setting of the SAM. Subsequently, it was neither specifically publicised as affecting the SAM and Historic England and the amenity societies were not consulted.

2.6 This planning application seeks permission to construct a 1457m² Engineering,

Manufacturing and Technology (EMAT) Centre on the corner of an existing car park opposite the Boston Conference and Management Centre. This facility will provide purpose-built accommodation for advanced technical skills training in manufacturing, engineering and technology. The number of students expected to use the facility are anticipated to be approximately 150.

3.0 Relevant History 3.1 A number of applications have been submitted over the years for various

developments at the Boston College. The most recent being:

B/18/0120 - Erection of single storey side extension to existing construction centre, erection of new detached motor vehicle workshop, and realignment of boundary wall – granted B/10/0416 - Construction of a teaching block plus associated external works - granted

B/09/0157 - Erect a two storey, pitched roofed extension to the front of the building (on the south elevation) to provide accommodation for a lift. New entrance lobby with hipped roof over to be provided. New pedestrian footpath also to be provided – LCC application, BBC consultee only. B/03/0325 - Construction of new two storey teaching block at Rochford Campus, Skirbeck Road, Boston – granted.

4.0 Relevant Policy

Boston Borough Adopted Local Plan 4.1 The development plan consists of the saved policies of the Boston Borough Local

Plan (Adopted 1999). S.38(6) of the 2004 Act requires that determination must be made in accordance with the plan unless material considerations indicate otherwise.

4.2 Rochford Campus is designated within the Local Plan as ‘college and associated

development’ where Policy CF1 applies. This policy resists development that is likely to prejudice expansion of any Boston College facilities. The site is within an area of known archaeological interest, however, Policy C12 is not a saved policy.

4.3 The saved Local Plan Policies of relevance to this application are as follows:

G1: Amenity G3: Foul and surface water disposal G6: Vehicular and Pedestrian Access CF1: Proposed Community Facilities CF3: New Community Facilities (this policy indicates that permission will be

granted for the establishment of new community facilities subject to provisos)

National Planning Policy Framework

At the heart of the National Planning Policy Framework is a presumption in favour of sustainable development. For decision taking, this means approving development proposals that accord with the development plan without delay.

Chapters 7 (Requiring good design) and 8 (Promoting healthy communities) are

also relevant in the broader policy intention of supporting the use of the site. Other matters

In the determination of this application, consideration and due regard has been given to Section 149 of the Equality Act 2010 which seeks to: -

Eliminate unlawful discrimination, harassment, victimisation and other conduct

prohibited by the Act; Advance equality of opportunity between people who share a protected

characteristic and those who do not; and Foster good relations between people who share a protected characteristic

and those who do not.

5.0 Representations

As a result of publicity, no letters of representation were received.

6.0 Consultations

6.1 The Environment Agency does not wish to raise objections subject to conditions which have been attached.

6.2 Witham Fourth District Internal Drainage Board has no assets in the area and has

made comment regarding the disposal of surface water through sewers. 6.3 BBC’s Consultant Archaeologist had not responded to the consultation request at

the time this report was written. 6.4 Lincolnshire County Council Highways and SUDs does not wish to restrict the

granting of planning permission. 6.5 Anglian Water (AW) has submitted comments which were forwarded to the

applicant. This consultation response included only one planning condition, namely that no drainage works shall commence until a surface water drainage strategy has been submitted to and approved in writing by the LPA. Upon receipt of this initial AW response, the applicants submitted further surface water drainage strategy information including a bespoke plan (Preliminary Surface Water Drainage Proposals created by Alan Wood & Partners). The County Highways and SUDs body considered that this information sufficiently demonstrated that the surface water strategy was acceptable and that no further conditions were necessary. AW provided no further response.

6.6 BBC’s Environmental Health Department wishes to raise no objection.

7.0 Planning Issues and Discussions 7.1 The site is located within the built up part of the town, within easy walking distance

of existing facilities and amenities within the town and within an area of mixed use. The principle of college development on this site is acceptable subject to the objectives of the relevant saved Local Plan policies and the NPPF being met.

7.2 The key issues in the determination of this application are:

Interpretation of planning policy Impact on residential amenity and nearby businesses Design and impact on the character of the area Impact on nearby listed buildings, Scheduled Ancient Monument and the

adjacent Boston Conservation Area Impact on highway safety and loss of parking spaces Flood risk Landscaping External Lighting Scheme Sustainability Interpretation of planning policy

7.3 Whilst all Local Plan Policies as set out at Para 4.3 of this report are relevant in

the determination of this application, Policies CF1 and CF3 are of primary importance.

7.4 The purpose of adopted Local Plan Policy CF1 is to protect certain named sites

(including the application site) as the presence of the necessary community facilities is as important to the wellbeing of a settlement as the availability of jobs and houses, and can contribute to reducing the need for car-borne journeys, i.e. can contribute to sustainability. The proposed facility encapsulates this policy’s raison d’être.

7.5 ALP Policy CF3 states that ‘planning permission will be granted for the

development of new community or social facilities within settlements, provided that the proposal: 1) will not cause unacceptable traffic or parking problems, and will not cause unacceptable harm to the amenities of neighbouring land users and residents; and 2) is compatible with the existing character of the area in terms of its scale, layout, design and materials.’

These issues are discussed below.

Impact on residential amenity and nearby businesses 7.6 The impact that the proposed building may have on the amenity of residents and

nearby businesses has to be considered in the determination of this application. 7.7 The proposed two storey building will be a maximum of 9.88m high (although the

vast majority of the building will be 7.89m high). The building’s footprint will be 30m x 28m.

7.8 Due to the operating hours of the proposed facility being in line with the rest of the

overall site, namely Monday to Fridays 07.30 - 21.30 and the proposed building being located a considerable distance from any neighbouring residential properties, the amenities of those residences will not be significantly affected. The small retail development comprising a small number of businesses and a Co-Op convenience store are highly likely to welcome the construction of this facility on the opposite side of Skirbeck Road.

Design and impact on the character of the area

7.9 The NPPF indicates that ‘Good design is a key aspect of sustainable

development, is indivisible from good planning, and should contribute positively to making places better for people’ . The NPPF indicates that decisions should not attempt to impose architectural styles or particular tastes and they should not stifle innovation, originality or initiative through unsubstantiated requirements to conform to certain development forms or styles. It goes on to say that ‘it is, however, proper to seek to promote or reinforce local distinctiveness. (para 60)’

7.10 However, paragraph 64 also says that ‘permission should be refused for

development of poor design that fails to take the opportunities available for improving the character and quality of an area and the way it functions’.

7.11 There are three elements to design: -

1. Functionality – will it work? 2. Longevity – will it last? This applies to functionality and timeless appearance. 3. Beauty – this is subjective.

7.12 The design of the dwellings surrounding the area is a mixture of Victorian /

Edwardian properties along South End and Skirbeck Road with a very high quality contemporary interpretation of that era in the form of the three storey new-builds adjacent to the Sorting Office. The acceptable but unremarkable modern housing estate (Tower Gardens) and the modern red brick residences on the opposite side of Skirbeck Road result in a fairly eclectic housing stock.

7.13 The Skirbeck Road entrance to the Rochford Campus is currently a car park with

open views over the Boston Grammar School playing fields, Hussey Tower and the rear of the houses on Rowley Road. Particularly when travelling from South End along Skirbeck Road, the predominant buildings are the Sixth Form Block, The Goodliffe Centre and The Boston Conference and Management Centre, all modern brick buildings of more than acceptable design.

7.14 The design, mass, scale and overall appearance of the proposed building represents outstanding design practice. Whilst it will assimilate within the pattern and character of the surrounding built environment, if not being contradictory, the building will also be a beacon of good design which should inspire future users of the facility. The proposed building will be positioned on the corner of the existing car park and will share the same access onto Skirbeck Road.

7.15 Although the proposed building represents highly contemporary design

incorporating different design elements and materials compared to other properties in the vicinity, it may also be argued that its unique appearance would add to the architectural styles in the area and would not result in the character or appearance of the area being substantially harmed. Indeed, it is the Case Officer’s opinion that the building would represent a significant uplift in the standards of design in the area.

7.16 An explanation of the design concept is included in the submitted Design and

Access Statement. Two of the most pertinent sections are reproduced below: - ‘The organisational concept has been developed around the College’s strategic

aspiration to present itself in a strong, confident and forward-thinking manner. As described above, the location of the new EMAT Centre has been specifically chosen to maximise this potential, and the design concept arranges the new innovative engineering spaces to be showcased on the prominent public frontages to the Skirbeck Road junction.’

‘The proposed EMAT Centre is an investment for current and future generations;

the architectural design is simple and elegant, whilst using a robust palette of materials that will stand the test of time, in particular within the coastal environment of Boston. The design also integrates passive environmental design principles to enhance the building’s performance and reduce energy consumption in use. The proposals aim to balance provision of a best value solution across capital costs, running costs, and maintenance costs, without compromise to architectural quality.’

Impact on nearby listed buildings, Scheduled Ancient Monument and the adjacent Boston Conservation Area

7.17 As explained earlier at Para 7.13 of this report, whilst the car park is absolutely

essential in order for the College to function without having a detrimental impact upon highway safety, it also results in a significant and stark gap between Tower Gardens and children’s nursery and The Boston Conference and Management Centre on Skirbeck Road. The proposed EMAT facility represents a design that is a deliberate departure from the existing modern brick-built adjacent buildings and will result in a building that encompasses the innovative nature of the College now and in the future. In much the same way as South Square was redeveloped over ten years ago, contemporary materials were juxtaposed with the historic built environment rather than trying to emulate by reproducing a poor standard pastiche building. That is an accepted approach to the conservation of our built heritage and in this instance will result in a development which will not harm the setting of nearby listed buildings or the adjacent Boston Conservation Area.

7.18 In terms of the nearby Hussey Tower which will be some 180m distant from the

proposed facility, whilst the building will restrict certain limited views of the Scheduled Ancient Monument from certain narrow angles on Skirbeck Road, this is not considered to represent any significant level of harm.

Impact on highway safety and loss of car parking spaces

7.19 The Transport Statement states ‘Primary vehicular and pedestrian access to the

site is to be provided via the existing Rochford Campus access point off Skirbeck Road, whilst a secondary vehicular and pedestrian access route will be provided via the existing college entrance off Rowley Road to the north of the site. It is understood that the college currently provides approximately 360 car parking spaces, however as part of the proposals approximately 35 car parking spaces will be lost.’

7.20 A full and complete analysis of all transport issues including vehicular and pedestrian accesses, pedestrian provision and road casualty appraisal is included in the submitted Transport Assessment at Section 3 and 4. This report concludes that the proposed development would not be expected to have a detrimental impact in road safety, traffic and highway terms. County Highways does not wish to raise any objections.

7.21 A comprehensive traffic and car parking appraisal is included in the submitted

Transport Assessment at Section 5. As can be seen earlier in this report above, whilst the proposed facility will be located on part of the existing car park which will result in the loss of 35 spaces, this amounts to only 10% of the overall provision. Whilst there will undoubtedly be very isolated occasions when there is considerable pressure on the available parking spaces, over the course of the working week, the applicants are confident that the site can still offer the required number of parking spaces: -

‘Given the fact that there is expected to be no increase in staff and student numbers, it is considered to be reasonable to expect that the small loss of car parking spaces would not have a detrimental impact on the overall car parking provision.’

7.22 Local Plan G6 resists development where the proposed means of pedestrian and

vehicular access are unsatisfactory and paragraph 32 of the NPPF indicates that ‘development should only be prevented or refused on transport grounds where the residual cumulative impacts of development are severe’.

7.23 The County Highways Authority does not wish to raise any objections and does

not wish for any conditions to be attached in the event of planning permission being granted.

Flood risk 7.24 The site is with a high risk flood area and the application is accompanied by a

Flood Risk Assessment which concludes that the proposed development will include the following flood risk mitigation measures: -

1. Finished floor levels shall be set no lower than 3.80mAOD.

2. Flood resilient and resistant construction techniques should be used to a minimum height of 500mm above the finished floor level (as outlined in section 7.5 of the FRA).

3. External doorways to the building should incorporate a proprietary flood barrier system up to 600mm.

7.25 The Environment Agency has raised no objections subject to conditions requiring

the development to be constructed in accordance with the measures included in the submitted Flood Risk Assessment see above).

Landscaping and Tree Protection

7.26 As the proposed EMAT building represents such a good and innovative design on

a prominent site, it is vital that the landscaping provides further enhancement to the development. Section 3 of the submitted DAS provides an explanation of the landscaping scheme. The site is a car park to serve the Rochford Campus bounded by a low level wall and railings. There are three ornamental trees and low level shrubbery adjacent to the car park entrance which provide a negligible amenity and it is intended to remove these. A new hard-paved apron to the new principal entrance, plus new pedestrian footways running the length of the north and south elevations are proposed to provide dedicated pedestrian links to the retained car parking areas.

7.27 The submitted arboricultural report provides a full assessment of the trees within

and adjacent to the site and an appropriate scheme of maintenance to ensure the health of those trees and the amenity they provide are not harmed: -

‘All works on tree protection, removal and management would follow BS 5837:2005 ‘Trees in Relation to Construction & Recommendations’ (BSI 2005). Vegetation clearance would be undertaken outside of the bird breeding period (March to September). Mitigation during works includes avoiding the RPR of each retained tree to prevent damage to the root structure. ‘

External Lighting Scheme 7.28 The site is adjacent to the Boston Conservation Area and not too distant from

listed buildings including Hussey Tower which is a Norman keep and Scheduled Ancient Monument. The proposed facility will be highly visible from public vantage points including Skirbeck Road and from various points across Boston Grammar School’s playing field. The design, mass and scale are discussed elsewhere in this report and these issues are considered to comply with relevant local and national policies and guidance. The sole remaining issue in terms of design is external lighting and the provision of functional lighting to the building entrances, and also illumination of the paths/building perimeter.

7.29 Lighting control including photocells and timers are to be provided to allow alteration to operation times and should also incorporate a manual override facility. The whole of the external lighting installation shall be installed so as to comply with the recommendations detailed within CIBSE (Chartered Institute of Building Services Engineers) Lighting Guide LG6, BS EN 13201, BS 5489 and BS 7671 17th Edition of the IEE Wiring Regulation (the national standard to which all domestic and industrial wiring must conform).

7.30 The lighting levels of 10 Lux (standard lighting level for street within urban

environment) are considered to provide appropriate lighting levels which will neither detract from the overall design and appearance of the proposed facility or impact significantly upon the character of the area, any heritage assets, highway safety or the amenities of neighbouring land users. Environmental Health wishes to raise no objections.

Sustainability

7.31 The NPPF indicates that there are three dimensions to sustainable development

which must be considered – these are economic, social and environmental. Paragraph 7 and 8 of the Framework explain that these three roles should not be undertaken in isolation because they are mutually dependent.

7.32 With regard to the economic role, it is likely that the construction of this

development will create significant levels of short, medium and long term employment and therefore support growth in the local economy. If constructed, the proposed EMAT facility will result in significant economic development for Boston which will result in a substantial up-skilling of the workforce which might well encourage businesses of all sizes to relocate here, and possibly enable the expansion of existing local businesses. The continued development, improvement and expansion of Boston College will also result in major social benefits for Boston and particularly this area of town which has become neglected over recent history. The site is close to existing facilities within the town, certainly within walking or cycling distance and it is likely that these facilities would be supported by students and staff. On this basis the proposed development meets the economic and social threads of sustainable development.

7.33 It is considered that the design of this scheme is outstanding. Given the nature

and current appearance of the area and the flagship building that is proposed, this development will greatly improve the surrounding environment and will provide a significant environmental benefit. Thus it is considered that the development meets the environmental thread of sustainability.

8.0 Summary and Conclusion 8.1 The principle of college development within this area and sustainable location is

acceptable subject to other development control criteria being met. The primary issues in the determination of this application will be the impact on residential amenity and nearby businesses; design and impact on the character of the area; nearby listed buildings, Scheduled Ancient Monument and the adjacent Boston Conservation Area, highway safety and loss of parking spaces, flood risk; landscaping; external lighting; and sustainability. All of these issues are discussed above.

8.2 It is therefore considered that the proposed EMAT development would result in a building of innovative and outstanding design that will greatly enhance the built environment including the nearby heritage assets. The facility will provide social and environmental benefits whilst resulting in significant economic development for Boston and the surrounding areas.

9.0 Recommendation

It is recommended that Committee GRANT Planning Permission subject to the following condition(s) and reason:-

1. The development hereby permitted shall be begun before the expiration of three

years from the date of this permission.

Reason: Required to be imposed pursuant to Section 91 of the Town and Country Planning Act 1990.

2. The development hereby permitted shall be carried out in accordance with the

submitted application forms and following approved plans;

Site location plan ref 8404-CPMG-01---A-0001 (1/11) Ground and first floor plan ref 8404-CPMG-01-ZZ-DR-A-0001 (2/11) GA Plan Level 0 ref 8404-CPMG-01-00-DR-A-2001 Rev. P3 (3/11) GA Plan Level 1 ref 8404-CPMG-01-01-DR-A-2002 Rev. P3 (4/11) GA Plan Roof Level ref 8404-CPMG-01-02-DR-A-2003 Rev. P2 (5/11) Elevations ref 8404-CPMG-01-XX-DR-A-2004 Rev. P1 (6/11) Sections ref 8404-CPMG-01-00-DR-A-2006 (7/11) Landscaping ref 8404-CPMG-01-ZZ-DR-A-7001 Rev. P1 (8/11) External Work Plan ref 8404-CPMG-01-ZZ-DR-A-7002 Rev. P1 (9/11) External Lighting Design Site Plan ref CPW-180219-E-EXT-03 Rev. P1

(10/11) Preliminary Surface Water Drainage Proposals (Alan Wood & Partners) ref

40817-AWP-ZZ-XX-DR-D-0001

And the submitted: - Design and Access Statement created by cpmg dated June 2018 Transport Statement created by Alan Wood & Partners dated June 2018 Arboricultural Report created by Bond Bryan Architects dated Mar 2009 External Lighting Statement created by crouchperrywilkes dated 25.05.18

Reason: To ensure the development is undertaken in accordance with the approved details and to accord with Adopted Local Plan Policy G1.

3. The development hereby approved shall be carried out in accordance with the approved Flood Risk Assessment created by Alan Wood & Partners dated June 2018 along with the following mitigation measures:

1. Finished floor levels shall be set no lower than 3.80mAOD.

2. Flood resilient and resistant construction techniques should be used to a minimum height of 500mm above the finished floor level (as outlined in section 7.5 of the FRA).

3. External doorways to the building should incorporate a proprietary flood barrier system up to 600mm.

Reason: To reduce the risk and impact of flooding on the development and future occupants and to accord with the objectives of Local Plan policy G1 and the NPPF (2012)

In determining this application the authority has taken account of the guidance in paras 186 – 187 of the NPPF (2012) in order to seek to secure sustainable development that improves the economic, social and environmental conditions of the Borough. Lisa Hughes

Development Manager