Planning and Environment Department
Report
Application Number RP/2008/1362
Site Address Le Perquage Car Park, Route de la Haule, St. Lawrence
Applicant Dandara (Jersey) Ltd
Description Relocation and redesign of above ground structures associated with the provision of a Surface Water Pumping Station in accordance with the surface water drainage requirements set out in the Planning Obligation Agreement for the above permit.
Type Revised Application for Planning Permission
Date Validated 23/6/08
Zones Built-Up Area, Shoreline Zone
Policies G2 – General Development Considerations
G3 – Quality of Design
G10 – Planning Obligations
G13 – Buildings and Places of Architectural and Historic Interest
BE11 – Shoreline Zone
H2 – Sites to be Zoned for Category A Housing
Reason for Referral The Minister decided to personally determine the original application for Category A Housing, which included provision for the surface water pumping station. In the circumstances, he has called in this revised application.
Summary/ Conclusion This is an application to revise the design and siting of a previously approved surface water pumping station and associated structures at the Le Perquage public car park in St. Lawrence. The pumping station is a requirement of the application to develop the Category A housing site to the north at Bel Royal [IP Policy H2(1)] and its primary function is to reduce the existing risk of fluvial flooding to existing properties in the area. The revised proposals follow a detailed assessment of technical and design matters by the developers in consultation with TTS and the Planning Department. Under the current proposals, the pumping station itself will remain underground. However, the control housing has been redesigned as a traditional granite structure with a double-pitched slate covered roof and has been relocated to the eastern end of the car park (to overcome property restrictions affecting the western end). The other significant change is a new above ground granite-clad ‘discharge chamber’ to meet TTS’ requirements in relation to pump selection, operation and future maintenance. Although the car park is in the ‘Shoreline Zone’, where there is a policy presumption against filling in gaps, careful attention has been paid to the siting, massing, design and use of materials for the above ground structures. This, together with certain design modifications to the control housing, should serve to raise the quality and standard of design in this location (which currently presents an unsatisfactory appearance), reduce the impact of parked vehicles and prevent any undue impairment of public views to the sea. There are no objections from formal consultees and no written representations have been received. Officer Recommendation Approve subject to conditions |
Site Description This is a public car park administered by TTS comprising 31 spaces. It is situated along the shoreline of St. Aubin’s Bay between Beaumont and Bel Royal, which is extensively developed with predominantly residential properties. The development pattern and present day character of the area stem largely from pre-war housing which first occurred with the advent of the railway and then later the private motor car. This pattern has been consolidated by some modern infill development.
The car park measures approximately 55m x 13m and is situated on the south side (seaside) of the busy coastal road (Route de la Haule), which is fronted by a terrace of 19th century houses and two later houses. It is enclosed on both its eastern and western sides by the flanks of existing dwellings. To the south, the site is bounded by the coastal cycle track, promenade and concrete German sea defences.
Notwithstanding its functional significance, the car park itself generally presents a harsh, unpleasant and unsatisfactory appearance, dominated by a sea of tarmac and shiny metal, which detracts from the character of the area. Other than the low granite roadside wall, there are no features of interest, nor is there any vegetation to provide visual relief. However, the car park does have a value as a window out of the built-up area, affording fine panoramic views of St. Aubin’s Bay.
Relevant Planning
History In July 2002, as part of the Island Plan debate, the States decided to rezone land at Bel Royal for Category A housing purposes, to help meet identified requirements. It did so, on the understanding that there was likely to be a need for flood relief measures such as a pumping station.
The approved development brief called for a flood risk report to demonstrate, among other things, that the development would not result in future flooding of existing properties north of Route de la Haule.
Flood risk reports were duly prepared in support of subsequent applications, which demonstrated how a surface water pumping station would significantly reduce the risks of fluvial flooding to existing properties and, as such, would represent a considerable public benefit / planning gain.
On 21st March 2007, the Minister decided to grant planning permission for the development of inter alia 102 Category A homes and a surface water pumping station on Le Perquage Car Park. The permit was issued on 8th May 2007 (P/2006/2489).
The approved plans showed an underground pumping station at the western end of the car park with a building above to house the control panels. This was a flat roofed block and render building measuring 4.980m long by 3.455m wide by 2.900m high. The proposals involved the permanent loss of 4 parking spaces. The pumping station proposals were supported in principle by TTS, but it was recognised that technical and design details would need to be worked out and agreed.
The permit carries a condition recognising that the pumping station was to be designed (and operated) by TTS and requiring that it be satisfactorily put in place and operational prior to the completion of the housing development to the satisfaction of the Minister in consultation with TTS.
More recently, TTS agreed that the developers could take responsibility for designing the pumping station and associated works, provided they use TTS’ framework consultants (Grontmij) and submit the designs for TTS approval. The developers would ultimately have responsibility for procuring this work in contract terms.
The above mentioned planning condition is reinforced by the associated Planning Obligation Agreement, which requires the developer to prepare an ‘offsite drainage design specification’ for the approval of TTS involving the disposal of surface water by means of a pumping station.
Grontmij have looked at the various options for the design of the pumping station in consultation with TTS and this Department. The options were effectively boiled down to two.
Option 1 (the “pressurised chamber” option) is as per the current revised application. This involves an underground pumping station, using conventional submersible pumps with a high level above-ground discharge chamber. The chamber provides a “constant head” for pumping and allows for the surface water to be pushed out of the outfall by gravity, whatever the state of the tide. It is a standard tried and tested system, which is preferred by TTS and Grontmij.
Option 2 (the “canned vertical” option) is more in line with the
original approved scheme. This involves an underground pumping station with an underground discharge chamber (complete with pressure tight covers) constructed adjacent to the wet well. The system requires different types of pump that can deliver pressurised discharge of surface water to sea against varying head conditions, ranging from zero head, to rapidly varying head under storm conditions (e.g. on an ebb tide where the outfall pipe would be subject to wave action).
TTS has previously indicated that it does not support Option 2 because it:
- is not standard practice;
- negates the selection of more suitable pumps;
- increases the potential risks to pumps and motors having to handle “head variation” (e.g. poorly designed systems could result in vibration and burn out);
- could lead to long-term maintenance problems; and
- could lead to difficulties in operability.
The Director of Waste Management at TTS has also previously made it clear that he will not approve a design with a submerged discharge, which is subject to tidal conditions (i.e. As per Option 2).
Existing use of
Land/Buildings Public Car Park with 31 spaces.
Proposed use of
Land/Buildings Public Car Park with 6 less spaces and a surface water pumping station with associated structures.
The current revised plans represent the preferred design approach for the pumping station of Grontmij and TTS. They also reflect a legal constraint on the placing of above ground structures at the western end of Le Perquage Car Park.
The main revisions from the approved plans include:
- Relocation of control housing from the western end to the eastern end of the car park;
- Redesign of the control housing from a low profile, flat-roofed render-finished box, to a traditional pitched-roof, granite and slate clad structure with a raised floor level;
- Relocation of the underground pumping station from the western end of the car park to a central location adjacent to the vehicular access point;
- A new above ground ‘discharge chamber’ enclosed by a 1.920m granite wall, designed as an extension to the existing roadside wall, and topped by a galvanised steel grille;
- Modifications to the vehicular access to the car park;
- The loss of 6 parking spaces as opposed to 4 in the original proposals;
- The specification of granite to clad the required outfall.
The proposals restrict themselves to above ground works and do not show the location of the underground pumping station. It is likely that this will be located centrally within the car park, between the existing drainage culvert and the proposed discharge chamber on land leased to the States and currently in the ownership of Jersey Water.
Consultations
PSD(Highways) in their e-mail dated 23rd July 2008 state “Following a recent meeting at which Dandara showed the proposals for a pump station at the above, TTS will require the pump station to be set back to ensure a visibility splay of 2.4 by 50m to the west. The tabled drawings allowed for this. Visibility to the east would be unaffected. My other concern would be if the plans impeded vehicles entering or exiting the car park. The plans indicated enough room for two vehicles to pass at the entrance to the site. On that basis, TTS has no objection to the proposals.”
The Parish in their letter dated 7th July 2008 state “My Roads Committee has examined the plans and is perfectly happy with them.”
TTS(Drainage) in their letter dated 2nd July 2008 state “The Department is in on-going negotiations with the developer in regard to this pumping station. An external JEC meter kiosk needs to be incorporated in accordance with previous comments submitted to the developer. There may be scope to reduce the plan area of the proposed control housing once detailed design of the associated pumping station is complete.”
Jersey Water in their letter dated 30th June 2008 stated “We have no comments to make on this particular application.”
The Environment Department in its letter dated 24th July 2008 stated “We have now had a chance to review the proposals submitted as part of the above application and have, based on the information provided, identified no significant environmental issues.”
The HM Receiver General in his letter dated 28th July 2008 stated “Thank you for sending me details of the proposed new outfall to be built as part of the infrastructure provision for this development. I am pleased to give the necessary approval on behalf of the Crown.”
All consultations are attached with the background papers
Summary of
Representations
No written representations have been received.
Planning Issues -
Policy Considerations
H2; Sites to be Zoned for Category A Housing. The pumping station is a requirement of the planning permission for Category A Housing at Bel Royal.
G10; Planning Obligations. The pumping station is also a negotiated infrastructure requirement under the terms of the associated Planning Obligation Agreement, primarily to achieve flood mitigation for existing properties to the south of the housing site.
BE11; Shoreline Zone, presumes against new buildings where such development will fill gaps, or obstruct public views to the foreshore and sea. It calls for particular attention to be paid to the siting, massing and height of any proposed developments. It also looks to protect and enhance public access and raise the quality and standard of design in this zone.
G2; General Development Considerations. Applied in all cases.
G3; Quality of Design. Seeks a high standard of design that contributes positively to the built context.
G13; Buildings and Places of Architectural and Historic Interest. The property known as “Seaside” situated immediately to the east of the site is included as a ‘Building of Local Interest’ on the ‘Register of Buildings and Sites of Architectural, Archaeological and Historic Interest’. The policy presumes in favour of the preservation of the architectural and historic character and integrity of registered buildings. More specifically, it presumes against external works which would adversely affect the character and setting of a registered building.
Land Use Implications
Notwithstanding the general presumption against new buildings in the Shoreline Zone, this site is capable of accommodating relatively small structures that are well designed and sited.
The pumping station infrastructure is a legally binding requirement of the approved Category A housing development.
Planning permission has already been granted for a below ground pumping station, control housing and outfall at this car park site, so establishing the principle.
This is the preferred location of TTS for the pumping station for practical and technical reasons, although there are good planning reasons also. Pumping stations only have an effect on upstream areas and so Le Perquage Car Park, being nearest to the outfall, is the most beneficial location (N.B. If the station were to be located adjacent to the Category A housing site, it would be ineffectual, because all the marsh area to the south would have to be flooded before the water level would be sufficient to trigger the pumps. If the station was located at the bottom end of the marsh, it would have to be similar in size to a house to achieve the height / pressure necessary to pump water to sea. It is considered that this would detract significantly from the character of its immediate environs).
Size, Scale and Siting
There are only two above-ground structures proposed in the car park.
The location of the control housing is not critical in terms of the operation of the pumping station. However, its proposed re-siting is made necessary by a property restriction (codicil) affecting the western end of the site, which prevents the construction of above ground structures. The new location is immediately adjacent to the gable end of the property known as ‘Seaside’ and is opposite a residential driveway, so it is likely to have less impact in impairing the views of frontage properties along Route de la Haule and of passers by.
The proposed control housing is more substantial than that originally approved. It measures 5m long x 3.5m wide x 4.4m high to the ridge. The overall height increase stems from the incorporation of a pitched roof and a raised floor level (0.5m) so that the electrical panels are better protected against any flooding in the car park from sea water overtopping the defences in the area due to wave action. In any event, this remains a relatively small structure, which is designed in a traditional form and is in scale with its surroundings. As such, it could make a positive contribution to the quality and character of the area. However, it is considered appropriate that proposed slate-covered roof be redesigned as a hipped and pitched roof to reduce the building mass and improve the visual relationship with ‘Seaside’.
That said, TTS has previously expressed optimism that the plan footprint of the control housing structure can be reduced, although they are reluctant to agree to any such reduction until the final pump selection has been made. Clearly, there would be advantages in reducing the scale of the building where practicable. This might also allow for a further improvement in the visual relationship with ‘Seaside’ (e.g. by allowing for a smaller square-plan structure with the ridge running parallel to that of ‘Seaside’).
The proposed above ground discharge chamber is a new feature to comply with current TTS requirements for the pumping station, which are aimed at assisting long-term maintenance and operability. Attempts have been made, at the request of the Planning Department, to reduce the height and footprint of this structure as far as is technically and practically feasible, so as to minimise the visual impact and the potential loss of parking spaces. The proposed enclosure measures approximately 6m long x 4m wide x 1.920m high and is located adjacent to the car park access point. The proposal is to clad the enclosure in random pink granite cladding, topped by granite coping stones and to design it so that it appears visually resolved as an extension to the existing roadside granite wall. Although it will obstruct at-grade public views to the sea over a fraction of the car park frontage, the degree of obstruction would not be dissimilar to that if a commercial van were parked in the existing space. It could also be argued that the quality of the materials and the impairment of open views of parked vehicles as a result of the structure will serve to improve the general appearance of the car park.
Design and Use of Materials
The Control housing has been designed using traditional building form, detailing and materials. It comprises a single storey granite clad structure with a double pitched slate roof. Traditional detailing features include granite quoins, brick dressing around the doors and Jersey verges. Recommended changes to the roof design, alluded to above, should remain in keeping with the traditional design approach.
The discharge chamber is designed as an extension of the roadside wall in random pink granite topped by granite coping stones.
Where the new 1200mm diameter pressurised secondary discharge pipe passes through the sea wall, it will also be clad in granite to match the existing outfall on the beach.
Impact on Neighbours
The frontages of properties opposite to the car park along Route de La Haule currently enjoy views across the car park to the Bay beyond. Their will be some impairment of views at ground floor level, but this is not considered unduly prejudicial, given the scale and siting of the structures involved. This is especially so when one considers the degree of visual impairment arising from vehicles (including commercial vehicles) parked on the site and the seemingly constant stream of vehicles travelling along Route de la Haule.
Some concerns have previously been expressed (informally) by the owner of the property known as ‘Seaside’ about locating the control housing at the eastern end of the site. This stemmed from fears that the building works would potentially pose a risk to the structural integrity of the property. Although not strictly a planning matter, arrangements were made (at the behest of the Planning Department) for representatives of the developer to visit the owner in May and provide assurances about the nature of the construction. It is anticipated that the building will only require conventional footings and the developers have previously indicated that these will be hand dug to avoid any vibrations that might otherwise be caused by heavy machinery.
Access, Car Parking and Highway Considerations
The access arrangements and visibility splays are acceptable to TTS (Highways).
As part of the Planning Obligation Agreement, the developers have agreed to compensate the Public of the Island for the loss of any car parking spaces to accommodate the pumping station (including any temporary loss during construction).
Other Material Considerations
Consideration has been given to the impact of the proposed development on the setting of the property known as “Seaside”. It might be argued that the building’s setting is already marred by the appearance of the existing car park. The proposed development, including the control housing (as amended by the recommended changes to the roof design), by virtue of its scale and use of traditional design and materials, should not have any adverse impact on this setting. Indeed, the visual relationship with ‘Seaside’ might yet be improved further if, as alluded to above, TTS eventually agree to a smaller building footprint.
Officer
Recommendation Approve subject to the following conditions and informatives.
Conditions
- Design of Control Housing
The roof design of the Control Housing is not approved. Revised drawings showing a hipped and pitched structure covered in natural slate shall be submitted to and approved by, or on behalf of, the Minister for Planning and Environment, prior to the commencement of construction.
- JEC Meter Box
An external JEC meter shall be incorporated into the pumping station design, as required by Transport and Technical Services. Revised drawings showing the siting and design of the meter shall be submitted to and approved by, or on behalf of, the Minister for Planning and Environment, prior to the commencement of construction.
- Weir Plate Level
The weir plate level for the surface water pumping station shall be set to comply with the level of water to be maintained in the Marsh to the north, as agreed by the States Ecologist at the Environment Department. (N.B. anticipated to be in the region of 6.0m aOD, as indicated in the ‘Flood Risk and Drainage Issues’ report submitted in October 2006 in support of the associated application for Category A housing at Bel Royal).
Reasons
- To reduce the mass of the proposed Control Housing, lessen its visual impact in the ‘Shoreline Zone’ and improve the visual relationship with the adjacent ‘Building of Local Interest’.
- To meet the operational requirements of Transport and Technical Services and ensure a satisfactory visual appearance.
- To help ensure that there will be no detrimental impact on the existing wetland ecology and character of the Marsh to the north.
Informative 1
This permission must be read in conjunction with the Planning Permission relating to the development of Category A housing on Fields 848, 851, 854, 861, 862A and 863A, Bel Royal, St. Lawrence (P/2006/2489) and the associated Planning Obligation Agreement. This permit does not convey any authority to vary or waiver any of the terms or provisions of that Permit and/or Agreement.
Informative 2
If TTS conclude that there is scope to reduce the plan area of the proposed Control Housing, once detailed design of the pumping station is complete, the Minister for Planning and Environment will expect the submission of revised drawings accordingly. In addition to reducing the mass of the building, the amended design should look to further improve the visual relationship with ‘Seaside Cottage’ (e.g. a square plan with a ridge line running parallel to that of Seaside Cottage).
Background Papers
- 1:2500 Location Plan
- Letter from Applicant in support of the application
- Consultation responses from TTS(Highways), Parish of St. Lawrence, TTS(Drainage), Jersey Water, Environment Department and the Office of the Lieutenant-Governor.
Endorsed by: Peter Thorne, Director of Planning and Building Services
Date: 19 August 2008
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