Baildon

 

(i)         Application No: 16/06606/MAF

 

The Assistant Director - Planning, Transportation and Highways will present a report (Document “E”) in relation to a planning application for the conversion and alteration, including partial demolition, of existing buildings and the replacement of a garage block with a new building to form 42 residential units at Baildon Mills, Northgate, Baildon.

 

Recommended –

That the application be approved for the reasons and subject to the conditions set out in the Assistant Director - Planning, Transportation and Highways’ technical report.

                                                          

(ii)        Application No: 16/06607/LBC

 

A report will be submitted by the Assistant Director - Planning, Transportation and Highways in respect of an application for Listed Building Consent for works to convert a listed building to residential use at Baildon Mills, Northgate, Baildon (Document “F”). The listed building is one of the buildings proposed for residential conversion under planning application 16/06606/MAF.

 

Recommended -

That the application for Listed Building Consent be approved for the reasons and subject to the conditions set out in the Assistant Director - Planning, Transportation and Highways’ technical report.

 

(iii)       Application No. 17/00921/MAF

 

The Assistant Director - Planning, Transportation and Highways will submit a report (Document “G”) in relation to a planning application for the development of 14 residential dwellings on land within the site of Baildon Mills, Northgate, Baildon, which is currently covered by a large warehouse.

 

Recommended –

 

That the application be approved for the reasons and subject to the conditions set out in the Assistant Director - Planning, Transportation and Highways’ technical report.

                                                          

(John Eyles – 01274 434380)

The Assistant Director - Planning, Transportation and Highways presented three reports in respect of the following applications at Baildon Mills, Northgate, Baildon:

 

(i)            Planning application for the conversion and alteration, including partial demolition, of existing buildings and the replacement of a garage block with a new building to form 42 residential units – 16/06606/MAF (Document “E”).

 

(ii)          Application for Listed Building Consent for works to convert a listed building to residential use (Document “F”). The listed building being one of the buildings proposed for residential conversion under planning application 16/06606/MAF ((i) above).

 

(iii)         Planning application for the development of 14 residential dwellings on land within the mill site currently covered by a large warehouse (Document “G”) – 17/00921/MAF.

 

The Assistant Director reported on the substance of a further objection, from a local resident, received since the publication of his technical report.  He also reported the receipt of additional comments from the Council’s Conservation Team and Historic England.  He proposed that, if Members were minded to approve the applications, Condition 3 in each case should be amended to specify the need for certain design details to be approved by the Local Planning Authority.

 

In response to questions from Members he explained that:

 

·         There were currently 58 small business units on the site.

·         The use of the main mill for spinning had ceased a number of years ago.

·         Most of the units were small offices which accommodated a wide range of uses.  The majority of these uses employed one or two people and did not generate a lot of visitors.  25 units were in use with 33 being vacant and a number having given notice.

·         The retention of the mill pond was considered to be ecologically beneficial but it had become very overgrown and the margins around it were quite narrow. In addition it had been advised that the existing vegetation did not provide the optimum setting for it.  The proposed scheme included some planting in this area, of a scale more fitting for the space available, so there would be some screening for adjacent properties.

·         Consideration was also being given to the use of raised level windows or the use of obscure glass in some units to minimise any impact in terms of overlooking of existing properties, although it was noted that the separation distance was in excess of 21 metres.

·         80 parking spaces were currently proposed to serve 56 units which was close to the standard of an average of 1.5 spaces per dwelling; the shortfall was not significant enough to give rise to any concerns given the location of the site . He did not have the figures for the existing provision which was all surface parking.

·         The scheme would provide a range of units including a number suitable for first time buyers; there was a shortage of this type of property in Baildon.

·         There would be footfall into Baildon town centre from the existing commercial units but it would be difficult to argue that this would be greater than that which would occur from the new residential units.  Thus in terms of vitality it could not really be said to be detrimental to the town centre.

·         The requirement for affordable housing provision was now established in the Core Strategy and the usual requirement for this area would be for 20% of the units which would equate to 11 in this case.  The applicant had said, however, that this commitment would render the scheme unviable. A viability assessment had been submitted and the Economic Development Service had reviewed this document and accepted that it was robust.

·         New Homes Bonus was still being awarded but it was not clear at this point how long the scheme would continue.

·         The applicant may be able to confirm how long the vacant units had been so.  The objectors had stated that a number had only become so recently as a result of uncertainty/insecurity associated with these proposals.

 

The Assistant Director, Economy and Development Services also answered questions from Members:

 

·         A survey of alternative business accommodation had been undertaken in the Aire Valley and a number of alternatives identified; there was also space a bit further away in Shipley.

·         There were a number of alternative premises for anyone wishing to run/set up a small business.

·         An overarching analysis of the economic impact had been undertaken. The calculation was that £1 spent with a local business had a multiplier effect and thus became worth £3 to the local economy.

·         In terms of loss of income, most of the existing units only had a low rateable value and no rates were paid in respect of the empty units.

·         It was acknowledged that there would be an impact from the loss of the existing businesses at this location but alternative premises were available and some of the new residents may choose to work from home; this was an increasingly common situation.

 

Two of the Ward Councillors were in attendance at the meeting and made the following comments:

 

·         There were a number of concerns about the scheme including; the impact on a Grade II listed building; the effect upon existing businesses; the impact on the centre of Baildon and the effects on the wider community.

·         Baildon Mills was still used for commercial purposes and had the potential to be used as such in the future.  It was considered that the best way to conserve this site was to use it for a purpose as close as possible to its original use.

·         There was a demand for accommodation for small businesses; was the identified alternative accommodation affordable and conveniently placed?

·         Relocation may not be viable for these businesses.

·         There had been no investment in local infrastructure such as roads, schools and local amenities and it was questioned how Baildon would cope?

·         The existing businesses on the site were customers for other businesses located in the town centre.

·         The new residents may shop outside Baildon or even outside the district.

·         A thriving company needed a balance between housing and employment.  There was a concern that Baildon would become a dormitory village for Leeds and Bradford.  The sense of community would be lost.

·         There had been objections from the Victorian Society, Historic England and the Council’s Conservation Team and the Committee was urged to reject the development proposals.

 

·         In the EU Referendum approximately 50% of Baildon’s electorate had accepted that population growth should be uncontrolled so the growth in housing provision had to be accepted.

·         This application could be considered to be an early test of a key policy in the emerging Core Strategy, which was being submitted to full Council for approval the following week. Policy EC4 (Sustainable Economic Growth) stated that the Council would refuse permission for alternative development, including piecemeal development, of land and buildings currently or last in use for business or industrial purposes within both urban and rural areas unless it can be demonstrated that a site is no longer suitable in terms of (amongst other things) market significance; where it can be shown to have been continuously marketed for at least two years.  This application clearly failed those tests and this point was conceded in the Assistant Director’s technical report.

·         There had already been some significant loss of footfall to the town centre and if this application was approved the situation would worsen.

·         The Supply and demand report submitted in May 2017 provided  information about alternative local accommodation.  This referred to premises at Briar Rhydding with fifteen potential units of different sizes, but it was not known how many were available or if they were suitable, and also Express Buildings on Otley Road which was available as a whole or on a floor by floor basis with no indication that any smaller units were available. It was considered that this information was misleading.

·         No affordable housing was proposed to be provided and little or no Community Infrastructure Levy.

 

The Assistant Director gave the following responses:

 

·         The original spinning use had ceased and the present uses were materially different.

·         Historic England had welcomed the proposed residential use as a sustainable solution and a way to retain the buildings in the long term.

·         Although affordability and convenience of alternative premises was a consideration it was believed that the benefits offset any harm in terms of economic impact. It was also noted that the site was not safeguarded for employment use in the Replacement Unitary Development Plan (RUDP).

·         His technical report also identified a number of other potential premises for relocation.

·         It was considered that it would be hard to argue that footfall around the town centre would be reduced by the introduction of residential properties and, even if this was accepted, there was no policy basis which would allow refusal of an application on that basis.

·         The district’s housing targets were set out in the emerging Core Strategy which had been subject to public examination and was close to adoption.  They were therefore to be accorded substantial weight.  Baildon had a target of 350 new units in the period up to 2030 and the Authority considered it likely that some deletion of Green Belt would be necessary to fulfil this quota. The delivery of 56 units not requiring incursion into the Green Belt and in a sustainable location was therefore of significant benefit.  This had been balanced against the proposal being contrary to Policy EC4 which also carried considerable weight.

 

In response to a question from a Member of the Committee, the Ward Councillor explained that the evidence of a reduction in footfall was anecdotal obtained from one of the local food retail businesses. He considered that the sort of development that would result from this permission would retain minimal footfall for the locality; it would house young professionals who would leave the area in the morning and return in the evening.

 

The Assistant Director responded to further questions:

 

·         The Community Infrastructure Levy (CIL) had replaced Section 106 agreements in respect of education and recreation infrastructure contributions and the only discretion in terms of its payment was in exceptional circumstances.  In this locality the CIL rate was £50 per square metre of new floor space but the total amount payable would be reduced as a result of some current floorspace being retained/converted. The calculations were complex and had yet to be finalised for this development but the figure was expected to be in the region of £200,000.

·         Viability testing had been a critical element of the analysis undertaken in the development of the CIL charging structure and this had included consideration of elements such as land values and sales values.

 

An objector to the development made the following comments:

 

·         She had been a tenant of Baildon Mills for ten years and it had been a thriving business community.

·         As at 14 April 2016, 61 of 76 units had been in use by a wide variety of businesses, some small and some larger.

·         She employed three people and had been unable to find any similar accommodation, in terms of size and facilities, in the Baildon area.

·         She and her staff used all the local facilities/shops and did not have to leave the village.

·         The suggestion that these units were not needed was not valid.  They had not been marketed and due to the need for security and the uncertainty caused by these development proposals people had chosen to go elsewhere.

·         It was very sad that a vibrant community would be lost on the basis of an ill founded plan.  Re-development could have been an opportunity to provide an exciting mixed plan including existing businesses and retail and been part of a thriving Baildon.

·         It was apparent that the village was quieter on a day to day basis and local retailers reported not being as busy.

 

The agent was present at the meeting to answer any questions from Members.  He said that he did not have any different figures to those quoted in respect of the number of units being in use/vacant and did not have any additional information to that contained in the Assistant Director’s technical report.

 

Members made the following comments:

 

·         It was unfortunate that no-one from the Parish Council was in attendance to speak about the Local Plan, the effect on the Green Belt and the availability of employment space locally.

·         The Authority needed to be mindful of the effect on local businesses and the impact on the local community.

·         The suggestion that the people moving into the residential units would replace the people from the existing businesses in using local businesses was questionable.

·         The levels of CIL were disappointing; this was an affluent area; there must be better ways to find money for local infrastructure.

·         A breakdown of the viability issues should be provided and more information in terms of the analysis of the economic impact.

·         It was not considered that the change to residential use would be beneficial.

·         The amount of CIL was a concern.

·         This development would provide 56 of the allocated number of residential units for Baildon (in the Core Strategy) and thus there would be less pressure on the Green Belt.

 

Further to which it was:

 

(i)         Application No: 16/06606/MAF

 

Resolved –

 

That the application be approved for the reasons and subject to the conditions set out in the Assistant Director - Planning, Transportation and Highways’ technical report, further to the amendment of Condition 3 to read as follows:

 

3. No ‘built development works’ shall be begun until full details of all facing materials, including samples of facing walling stones and roof tiles and details of the cladding, pointing, eaves and windows and doors including reveals have been submitted to and approved in writing by the Local Planning Authority. Details shall also be provided of proposals for alterations to the windows to the mill elevation facing Providence Row to minimise the potential for overlooking. Thereafter the development shall be constructed and maintained in accordance with the approved details.

 

Reason: In the interests of visual amenity and to ensure that the development is sympathetic to the built and natural environment in the locality, in accordance with saved policies D1, BH7 and NE3 of the replacement Unitary Development Plan.

 

 

 (ii)       Application No: 16/06607/LBC

 

Resolved –

 

That the application for Listed Building Consent be approved for the reasons and subject to the conditions set out in the Assistant Director - Planning, Transportation and Highways’ technical report.

 (iii)      Application No. 17/00921/MAF

 

Resolved –

 

That the application be approved for the reasons and subject to the conditions set out in the Assistant Director - Planning, Transportation and Highways’ technical report, further to the amendment of Condition 3 to read as follows:

 

3. No ‘built development works’ shall be begun until full details of all facing materials, including samples of facing walling stones and roof tiles and details of the cladding, pointing, eaves and windows and doors including reveals have been submitted to and approved in writing by the Local Planning Authority. Details shall also be provided of proposals for alterations to the windows to the mill elevation facing Providence Row to minimise the potential for overlooking. Thereafter the development shall be constructed and maintained in accordance with the approved details.

 

Reason: In the interests of visual amenity and to ensure that the development is sympathetic to the built and natural environment in the locality, in accordance with saved policies D1, BH7 and NE3 of the replacement Unitary Development Plan.

 

ACTION: Assistant Director - Planning, Transportation and Highways