planning brief - aylesbury vale · planning brief was publicised in the council’s customer...

PLANNING BRIEF Territorial Army Centre & Bearbrook House Sites

July 2003

The Council approved this Supplementary Planning Guidance on 21st July 2003

Contents Page Statement of Consultation ii Introduction 1 Site Map 1 Site Description Location and Physical Description, Neighbouring Uses &

Accessibility 2

Ownership and Site History The Ministry of Defence, Aylesbury Vale District Council & Klockner Moeller

3

Planning Context Local Planning Policy & National Planning Policy 4 Constraints and Opportunities Heritage, Nature Conservation, Archaeology, Water &

Sewerage Infrastructure, Gas Holder, Access, Sustainability 4

Site Appraisal Plan 7 Development Requirements Territorial Army Centre, Housing, Supported Housing,

Employment, Open Space, Landscaping and Tree Planting, Accessibility, Urban Design

8

Comprehensive Development 9 Development Characteristics 10 Land Use Layout Map 11 Planning Obligation Agreements 12 The Planning Application 12 Contacts List 12 References 12 Appendix 1 Policies AY.9 and AY.10 13 Acknowledgements Buckinghamshire County Council Highways Development Control Engineers, Health & Safety Executive, Mike Edwards, Environment Agency, Territorial Army Centre, Transco

Aylesbury Vale District Local Plan Supplementary Planning Guidance July 2003 i

STATEMENT OF CONSULTATION i) The public consultation period ran from 13th January 2003 to 21st February 2003. A public notice advertising the

consultation appeared in the Bucks Herald on 15th January 2003. During the public consultation period, the draft planning brief was publicised in the Council’s customer service centre and also on the Council’s website.

ii) Various groups and individuals were sent copies of the draft planning brief and were asked for comment. These

included: AVDC Councillors, Heads of Service at AVDC, statutory consultees, and local residents and businesses.

iii) During the consultation period, 21 representations were received. 3 made no comment, and the others were a

mixture of supporting comments and objections. Various options were proposed for site AY.9; 52% of the respondents did not express a preference for any option, and option A (100% residential) was the option most favoured by those who did express a preference.

iv) The Council’s response to these representations were approved and the planning brief (amended accordingly)

was adopted as Supplementary Planning Guidance on 21st July 2003.

Aylesbury Vale District Local Plan Supplementary Planning Guidance July 2003 ii

Introduction 1 This planning brief has been prepared by Aylesbury Vale District Council. 2 The Territorial Army (TA) Centre and former Bearbrook House sites are allocated for development in the

Aylesbury Vale District Local Plan as two separate development sites (See Policies AY.9 and AY.10 in Appendix 1). The Local Plan encourages a comprehensive approach to the development of the two sites arising from the need to reduce the number of access points along Oxford Road.

3 The objectives of the brief are:

To clarify the application of local plan policies • • • • •

To provide guidance on acceptable forms of sustainable development To allow for a phased approach whilst ensuring that the sites come forward comprehensively To highlight site specific constraints and opportunities To promote high standards of layout and design

4 The brief will be used by the Council as a material consideration when determining planning applications. It

will also guide developers by setting out what the District Council considers to be appropriate and sustainable development on the site.

5 The land uses on the TA centre site (AY.10) will include a new TA centre on the southern part of the land

with housing to the north. Views on the most appropriate land use mix for the Bearbrook House site (AY.9) were sought through the public consultation process, and the draft planning brief set out a range of options. As detailed in paragraph 38 below, it was subsequently decided that the Bearbrook House site should be used solely for housing.

Site Map

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Map showing the shared boundary of the TA Centre and Bearbrook House sites © Crown copyright. All rights reserved. Aylesbury Vale District Council LA077046 2003. Not to a specified scale

Aylesbury Vale District Local Plan Supplementary Planning Guidance July 2003 1

Site Description Location and Physical Description 6 The 4 hectare site is situated to the west of Aylesbury town centre. The centre of the site is approximately

500 m from the town centre boundary. It is classified as previously developed land as it comprises the site of a demolished warehouse, a demolished office building, a Red Cross centre and surplus MoD land. The site is generally flat, with a slight fall in levels towards the south where the Bear Brook passes under Oxford Road.

Neighbouring Uses 7 Two-storey terraced housing is located along the north eastern boundary. Opposite the site’s frontage on

the Oxford Road is a row of terraced housing and to the south of this is a new development of houses on the site of a former mill, comprising two-storey terraced houses in an attractive brook-side environment.

8 The southern boundary of the site is defined by the Bear Brook, which was originally part of the mill race servicing a mill located south of Oxford Road. A second channel associated with the mill joins the Bear Brook just north of the Oxford Road, and the California Brook also joins slightly further downstream. The confluence of the three watercourses supports natural riverbank flora and fauna. A railway line lies to the south of the Bear Brook and on the other site of the railway line are the Vale House flats, comprising five blocks of 3-4 storeys. The railway line is at present only used for occasional freight journeys, this may change to more regular passenger journeys if the East-West Rail project goes ahead.

9 The Gatehouse Close employment area adjoins the site along its north west boundary. It includes factory,

warehouse and office buildings dating from the 1960s with later additions. Also located on the industrial estate is a gas holder, which dominates the north western boundary of the site, and was erected in 1961.

Accessibility 10 The site is well connected for both public and private transport. The site lies between the A418 Oxford

Road, the main route into the town from the south west and the A41 Gatehouse Road. The A418 has recently been improved and widened as part of a programme of works which includes the addition of a bus lane along the north western side of the road. The A41 serves the Gatehouse Industrial Estate which backs onto the site, and the Broadfields retail park. Both the A418 and A41 are busy at peak periods.

11 The bus station, railway station and town centre are all approximately 500 m from the site and are easily

accessible by foot or bike. The site is served by 7 bus routes, serving both local and regional travel needs. A cycle lane runs along the north western side of Oxford Road as far as the Toucan crossing adjacent to the Bearbrook House site, and links up with a network being developed throughout the town. A footpath currently runs between the TA and Bearbrook House site connecting Oxford Road and Gatehouse Close, and provides a route from the Industrial Estate towards the station and town centre.


Ownership and Site History 12 The site has three owners, the Ministry of Defence, Aylesbury Vale District Council and Klockner Moeller. A

site history for each parcel of land is given below.

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Map showing the parcels of land ownership over the site

© Crown copyright. All rights reserved. Aylesbury Vale District Council LA077046 2003. Not to a specified scale

The Ministry of Defence (MoD) 13 The area of land owned by the MoD was originally developed in 1935 as military buildings and a training

area. The Territorial Army now uses the site and their intention is to rationalise the use of their site, to develop new buildings that meet their current and future needs and to release the remaining land for redevelopment. A notification was submitted in March 2002 to erect a new garage and storage building, develop a parking area, erect a new bungalow and to demolish the buildings to the south and release the land for development. The Council raised no objections in principle and made observations on details. Also within the site is an electricity sub station.

14 Historically, the MoD has leased 0.2 ha of their site to the Red Cross. The lease has now expired and the

Red Cross buildings have been demolished. Aylesbury Vale District Council (A.V.D.C.) 15 The former District Council office, Bearbrook House, was demolished in 2001 and is now cleared

hardstanding. To the rear of the Bearbrook House site is the car park to the former offices, which was accessed from Gatehouse Close. Along the Oxford Road frontage is an attractive landscaped area around the Bear Brook including several mature weeping willows and other trees.


Klockner Moeller 16 The Klockner Moeller land parcel is the site of a demolished warehouse. The site is also accessed from

Gatehouse Close. There are no landscape features of significance. Planning Context Local Planning Policy 17 The Buckinghamshire County Structure Plan (1991-2011) encourages development that is within or

adjacent to Aylesbury Town (Policy H2). It also makes provision for new housing to be located on brownfield sites (Policy H7). New employment provision should meet shortfalls in employment opportunities and should be located in built up areas to reduce the need to travel. The Structure Plan sets the policy framework to ensure that nature conservation and archaeological interests are protected from development.

18 Policies AY.9 and AY.10 of the emerging Aylesbury Vale District Local Plan provide for development across

the TA and Bearbrook house site. Appendix 1 details the policies as proposed to be modified. Criterion (g) of draft policy AY.10 requires that the existing playing fields on the site are retained. Following correspondence and discussions with Defence Estates the Council is now satisfied that the grassed area is not in fact a playing field but a military training area and has never been used as a playing field for public use. The Council thus considers that the criterion requiring the retention of the playing fields is unnecessary and will amend the Local Plan at the earliest opportunity.

National Planning Policy 19 The government has made clear its commitment to maximising the re-use of previously developed land in

urban areas in its Planning Policy Guidance Note 3 (PPG3) on Housing. PPG 3 advocates that the minimum density on such sites should be between 30-50 dwellings per hectare. The current series of PPGs promote a mixed use approach to development.

Constraints & Opportunities Heritage 20 The Aylesbury Old Town Conservation Area is located to the east of the site, centred on the old town and

with its boundary following that of the town centre, (excluding the pub on the corner). The nearest part of the Conservation Area is 250m from the site, and it is therefore considered that development of these sites should not harm the character and appearance of the Conservation Area.

21 There are no listed buildings that would be affected by development at the site. Nature Conservation 22 The Bear Brook may be a habitat for water vole and is likely to be ecologically rich at its confluence with the

California Brook and the Mill Stream. The Environment Agency requires a buffer zone of 10m along the boundary with the Bear Brook. This buffer strip has many functions, to act as a wildlife corridor, to prevent diffuse pollution and to prevent shadows from buildings falling across the brook. If development were to take place within 8m of the brook, then consent would be required from the Environment Agency. Any scheme should indicate how this area will be managed and maintained in the future and should also show how vehicular access will be provided to the Bear Brook.

23 There are no Tree Preservation Orders (TPOs) within the site. However, the existing mature willow trees

along the banks of the Bear Brook should be retained as a prominent amenity feature along the Oxford


Road frontage. Care should therefore be taken to integrate this area into any proposed development, and to enhance its potential for nature conservation and public access. A tree survey in accordance with BS5837 is to be undertaken on Site AY.9 to assess which trees should influence development layouts and to provide and implement a suitable tree protection scheme for all retained trees. The site should also be assessed for the presence of protected species.

Archaeology 24 The Bucks Archaeological Society and County Archaeological Service advise of the possible presence of a

medieval leper hospital and associated cemetery across the site. The wider area has produced Late Iron Age and Medieval deposits to the south of the Oxford Road (CAS6739 & 6738). Furthermore, two Roman coins are recorded from the Bearbrook site (CAS1934).

25 An appropriate archaeological evaluation is required of the whole site which will in turn inform any further

requirements for mitigation, including potentially further archaeological recording, or the preservation in situ of important archaeological remains. The applicant / developer should arrange for this to be undertaken in consultation with the County Archaeological Service who will be able to advise what constitutes an ‘appropriate evaluation’.

Water and Sewerage Infrastructure 26 Early contact with Thames Water is recommended in order to ascertain the existence of sewers or rising

mains across the site. It will also be necessary to determine the magnitude of spare foul drainage capacity and a suitable connection point. It is the responsibility of the developer to make proper provision for drainage to ground, water courses or surface water sewers. Trees and shrubs should not be planted over the route of the sewers.

Gas Holder 27 In 1961, a gas holder was erected 10m from the north western boundary of the site. The Institute of Gas

Engineers advises that within 18m of the gas holder nothing should be built that could cause a risk to the gas holder, e.g. by emitting a spark. This is likely to preclude any building within this distance. Transco and the Health and Safety Executive will be consulted on any development within 60m of the gas holder and they may require a risk assessment to be undertaken within the consultation zone.

28 Also associated with the gas holder is a 350mm gas main which runs within the north western boundary of

the TA approximately 8.5m away from the boundary. Any development or landscaping along this boundary should be designed to have no impact on the main. A 3m strip above the gas main along the northern boundary must remain free from development or tree planting as the main must not be damaged and should be accessible.

Access 29 There are three existing access points to Oxford Road. As part of the development of the site, the number

of access points from Oxford Road should be reduced to two. Buckinghamshire County Council has advised that these should be left in / left out junctions. The first junction should be between the existing access to the Red Cross site and the westernmost access to the TA centre. The second junction should be in the vicinity of the existing Bearbrook House access. The TA centre will continue to be served by the existing access point until it is redeveloped. The approximate route of the access roads is shown on the land use map on page 11. The roads should be laid out and constructed to Buckinghamshire County Council’s Specification – “Roads for Adoption, 2000”.

30 An emergency access to Gatehouse Close from the Bearbrook House site, and an emergency access from

the TA centre site to Oxford Road, would also be required.


31 There is a footpath that runs through the site, connecting Oxford Road to Gatehouse Close and this

connection should be retained. However, the footpath should be diverted to follow the line of the new access road and emergency access to Gatehouse Close, and should link to the Oxford Road at a point close to the existing toucan crossing. This will solve an existing community safety problem and offers the opportunity to provide a safe route through the site. This connection should also include a cycle path.

Sustainability 32 A sustainable development can only be created if sustainability principles are applied to all aspects of

development including, site layout, infrastructure, building design, construction and management of buildings and open space. The principles that are particularly relevant to this development are:

• A recycling centre close to the Oxford Road entrance.

• Advice should be sought from the Environment Agency and Aylesbury Vale District Council on the sustainable urban drainage concept for the site including flood alleviation.

• A safe and secure environment (Secured by Design)

• Minimise impact on natural systems and habitats

• Low energy and locally sourced materials

• Indigenous species / local provenance

• Application of BREEAM standards (higher insulation standards, low energy materials, efficient controls, locally sourced or recycled materials etc)


Territorial Army Centre & Bearbrook House Sites ~ Appraisal Plan

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© Crown copyright. All rights reserved. Aylesbury Vale District Council LA077046 2003

18 m Zone

60 m Consultation ZoneGas Main

Shared footpath / cycleway

Tree Preservation Orders

Unattractive neighbouring use (gas works)

Views from the rear of the site across towards St. Mary’s Church

AY.10

Buffer strip to protect the Bear Brook ~ currently contains vegetation important for wildlife and screeing. Any open space provision on site AY.9 should link into the buffer strip.

Significant treesAY.9 Points of access from Oxford Road

Route of existing footpath

Steep slope down to the Bear Brook from the Oxford Road

Emergency access and shared footpath / cycleway out onto Gatehouse Close


Development Requirements

Territorial Army Centre 33 The Territorial Army plan to redevelop part of their existing site for a new Territorial Army Centre. The new

purpose-designed buildings will have a prominent main road frontage in the centre of the site. Housing 34 Housing should be developed at a high density of at least 50 dwellings per hectare, to ensure efficient use

of the land. The housing types should be mixed, with a minimum of 10% low cost market housing and 20-30% affordable housing (see ‘Supported Housing’ section below).

Supported Housing 35 Aylesbury Vale District Council’s Housing Division has identified a need for supported young single person

accommodation. This should be in the form of 22 bedsits, 4 x 3 bedroom cluster homes and a communal building for ancillary uses. The scheme will also require a communal garden with drying facilities, secure cycle storage for approximately 15 bikes, bin storage and parking facilities for approximately 20 cars. This level of car parking is significantly lower than the Council advocates in its car parking standards, but is considered acceptable due to the nature of the development.

36 It is estimated that the land required for this development is 0.36 hectares. The supported housing is for the

re-provision of two existing schemes in Aylesbury. The new scheme will be owned and managed under existing arrangements with partner housing associations. This scheme will be developed as part of the affordable housing requirement. The supported housing / affordable housing should be integrated into rest of the development.

Employment 37 The Aylesbury Vale District Local Plan allocates part of site AY.9 for employment uses. The public

consultation on the draft planning brief proposed a number of options for site AY.9 comprising 100% residential, 100% employment, or a split/mix between residential and employment. The most favoured option was 100% residential. Emerging results from the Bucks Economic Prospects Study by Roger Tym and Partners show a substantial surplus of employment land in Aylesbury Vale. In the light of these results we are likely to be conducting a strategic employment study at Aylesbury. It is likely that site AY.9 will not be identified as a key employment site. Bearing in mind this issue of oversupply of employment land, and the comments received during the public consultation, site AY.9 should not include any employment uses.

Open Space 38 The housing areas should include play space in accordance with the NPFA standards (see policies GP.120-

GP.122 of the Aylesbury Vale District Local Plan). The provision should be concentrated in one area, rather than multiple smaller areas, and should take the form of a LEAP (locally equipped area for play). The best location for the LEAP is on the Bearbrook House site, linked to the buffer zone amenity space that will be created alongside the Bear Brook. Amenity space should also be provided between the TA centre site access road and Oxford Road, and this space could provide an opportunity to incorporate some form of public art reflecting Aylesbury’s links with the military.


Landscaping & Tree Planting 39 Vegetation should be used to provide screening between the existing employment areas and the proposed

housing sites. Vegetation should not be planted along the boundary with the TA centre as this could pose a security risk. Careful attention should also be given to the planting regimes along the northern boundary of site AY.10 due to the presence of the gas main. Large stature trees should be incorporated throughout the housing development together with landscaping within the site (see Policies GP.54-GP.57 of the Aylesbury Vale District Local Plan).

Accessibility 40 The requirements of the Highways Authority have been outlined above. However, pedestrian and cycle

movement throughout the site should also be considered. There should be cycle and pedestrian access to Gatehouse Close from the site and this should follow the same line as the emergency vehicle route. New routes should connect with the existing network and attempts should be made to establish routes through the amenity area along the Bear Brook.

Urban Design 41 Policy GP.48 of the Aylesbury Vale District Local Plan illustrates the Council’s commitment to high quality

and locally distinctive design. There cannot be a single design response to the development of this site. The surroundings of the site are diverse and provide few design cues for its redevelopment. The site is given its design context from a number of neighbouring features. Some of these features are positive, eg. the Bear Brook, and others are negative, eg. the gas holder. Two or three storey development would be appropriate throughout the site.

42 High quality design can be achieved by applying sound urban design principles to the site. These include a

permeable layout, connections to the surrounding area, buildings fronting streets and the enclosure of private space. These principles should all be demonstrated in the design strategy. Reference should be made to the Council’s Design Guides and SPG on ‘Safety through design’.

Comprehensive Development 43 It is a policy requirement that the two sites are developed comprehensively. The primary reason for this

requirement is to allow the access points along Oxford Road to be reduced. The approximate route of the access roads is shown on the land use map on page 11. A further reason for developing the two sites comprehensively is the consolidation of the play space requirement into the one LEAP on the Bearbrook House site. Whilst the Council is keen to secure the comprehensive development of the two sites, it is recognised that the sites may be developed by different land owners at different times.


Development Characteristics 44 The map on page 11 indicates the layout of land uses required on the two sites. The characteristics are

summarised as follows: • A new purpose built Territorial Army centre • Residential uses on the north east portion of the site including affordable and low cost market housing.

A minimum density requirement of 50 dwellings per hectare equates to a minimum of 65 dwellings. • Residential use on the south west portion of the site including 0.36ha of supported housing as part of

the affordable housing requirement. A minimum density requirement of 50 dwellings per hectare equates to a minimum of 83 dwellings.

• Two left-in, left-out access roads • An alternative emergency access from the TA site to the Oxford Road, and from the Bearbrook House

site to Gatehouse Close • A cycleway and footpath linking Oxford Road and Gatehouse Close • Landscaped amenity space between the TA site access road and the Oxford Road • A 10m wide amenity space buffer strip along the Bear Brook • Play space provision in the form of a LEAP, with linkages to the Bear Brook buffer strip


Not to a specified scale

© Crown copyright. All rights reserved. Aylesbury Vale District Council LA077046 2003.

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KeySite of the new TA CentreRedevelop land for housingAccess from Oxford RoadOpportunities for military themed public artAmenity space buffer strip along the Bear BrookAmenity spaceIndicative location for play space (LEAP)Route of cycleway/footpath link (diagrammatic)Site boundary

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Territorial Army Centre & Bearbrook House Sites: Land Use Layout


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KeySite of the new TA CentreRedevelop land for housingAccess from Oxford RoadOpportunities for military themed public artAmenity open space

© Crown copyright. All rights reserved. Aylesbury Vale District Council LA077046 2003.

Site AY.10 - Not to a specified scale

Planning Obligation Agreements (POAs)


45 It is likely that the Council will require POAs for a number of issues at this site. These issues may include:

amenity and play space provision; management of the amenity space and riparian environments; affordable housing; low cost housing and securing the supported housing in perpetuity.

46 Further to this, the Council has adopted supplementary planning guidance on developer contributions for

non-MDA developments at Aylesbury (SPG4). This sets out thresholds for transport based contributions in Aylesbury. These contributions will also be secured through a POA.

The Planning Application 47 The planning application should be accompanied by the following documents:

A tree survey in accordance with BS5837 (Site AY.9 only) • • • • • • • •

A survey and analysis of the site for possible contamination An archaeological evaluation A transport assessment An assessment of the presence of protected species A design statement setting out design principles A noise assessment A landscape management scheme

Contacts List 48 Forward Plans Aylesbury Vale District Council 01296 585481

Development Control Aylesbury Vale District Council 01296 585180 Arboriculturalist Aylesbury Vale District Council 01296 585368 Urban Design Aylesbury Vale District Council 01296 585361 Archaeologist Buckinghamshire County Council 01296 392927 Highways Advice Buckinghamshire County Council 01296 382419 Safety Through Design Thames Valley Police 01296 621933

References 49 Aylesbury Local Plan (1991) AVDC

Aylesbury Vale District Local Plan (AVDLP) Deposit Draft (1998) AVDC AVDLP Inspector’s Report Part 1 (2002) Buckinghamshire County Structure Plan (1991-2011) BCC Better Places to Live DTLR & CABE By Design (2000) DETR & CABE Designing for Accessibility (1999) CAE Places, Street and Movement (1998) DETR Planning Policy Guidance Note 3: Housing (2000) SPG1: Parking Guidelines (2002) AVDC SPG3: Safety Through Design (2001) AVDC SPG4: Transport Contributions from non-MDA Developments at Aylesbury (2002) AVDC Sustainable Construction Good Practice Guide (2002) AVDC Tree Management Strategy (2002) AVDC Urban Design Compendium (2000) English Partnerships


Appendix 1 Policy AY.9 The Council proposes the development of Bearbrook House and surrounding land at Oxford Road, Aylesbury (as defined on the Proposals Map) for housing and employment subject to the following: a) the development being in accordance with a comprehensive plan to be prepared for the whole of the site; b) an equitable contribution being made to the Category 2 transport infrastructure improvements to public transport

and facilities for walking and cycling; c) improvements to the existing cycle and pedestrian network beyond the site including the provision of new or

enhancement of existing crossing facilities across the Oxford Road; d) vehicular access being from Oxford Road serving this site and the TA Centre site to allow rationalisation of

existing access points; e) providing for a mix of housing types and sizes, including in particular at least 10% as low cost market housing,

and providing for a minimum of 20% and up to 30% as affordable housing. The Council will assess the circumstances of the site and of the particular proposed development, taking into account the considerations set out in GP.2 above. The Council will also wish to ensure that the affordable dwellings are occupied initially by ‘qualifying persons’ and are retained for successive ‘qualifying persons’.

f) protecting the amenity of residents of existing adjoining houses; g) retaining trees on the Oxford Road frontage and utilising the stream as a feature; h) provision of public open space at the equivalent of 2.4ha per thousand people; and i) an appropriate archaeological evaluation shall be made of the entire site prior to the submission of any

proposals which should secure mitigation of the impact of development on archaeological remains. Policy AY.10 The Council proposes that land at the Territorial Army Centre on Oxford Road, Aylesbury (as defined on the Proposals Map) be developed for housing subject to the following: a) the development should be in accordance with a comprehensive plan to be prepared for the site; b) an equitable contribution to the Category 2 transport infrastructure improvements to public transport and facilities

for walking and cycling; c) vehicular access from Oxford Road serving this site and the Bearbrook House site to allow rationalisation of

existing points of access; d) providing for a mix of housing types and sizes including in particular at least 10% as low cost market housing,

and providing for a minimum of 20% and up to 30% as affordable housing. The Council will assess the circumstances of the site and of the particular proposed development, taking into account the considerations set out in GP.2 above. The Council will also wish to ensure that the affordable dwellings are occupied initially by ‘qualifying persons’ and are retained for successive ‘qualifying persons’.

e) protecting the amenity of residents of existing adjoining houses; f) provision of public open space and associated equipment at the equivalent of 2.4ha per thousand people; g) the existing playing fields on the site being retained (this shall not count against the open space requirement

identified above); and h) an appropriate archaeological evaluation shall be made of the entire site prior to the submission of any

proposals which should secure mitigation of the impact of development on archaeological remains.


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