Planning Statement 02122019

Planning Statement

Outline Planning Application Phases 4-7, Omega South, Warrington

Omega (Warrington) Limited December 2019

Phases 4-7, Omega South Omega (Warrington) Ltd Planning Statement

December 2019 Page | 1

CONTENTS Page

1. INTRODUCTION 3

2. THE APPLICATION SITE AND SURROUNDINGS 5

3. PLANNING HISTORY 8

4. B1 OFFICE MARKET DEMAND 12

5. MASTERPLAN DEVELOPMENT STRATEGY 13

5. DEVELOPMENT PROPOSALS 14

6. PRE-APPLICATION CONSULTATION 17

7. PLANNING POLICY REVIEW 18

8. PLANNING ASSESSMENT 34

9. CONCLUSIONS 48



Executive Summary

This application, submitted by Progress Planning on behalf of Omega Warrington Ltd, seeks outline planning permission for:

“Outline Planning Permission for the development of up to 617 residential units with details of access, drainage and landscaping only (detailed matters of appearance, layout and scale are reserved for subsequent approval).”

The development will herald the final stage in the redevelopment of Omega South and will realise the long standing ambition of Omega Warrington Limited, in partnership with Warrington Borough Council, to bring the Omega site forward as a focus for economic, social and environmental regeneration within the area.

It is considered that the proposed development does not fully accord with the adopted Development Plan allocation for this site. However, due to the fact that the Council do not have a 5-year housing land supply for the Borough it is considered that the policies of the development plan are out-of-date and therefore policies and guidance in the Framework take precedence.

In this regard the report has demonstrated that the proposed development will deliver clear economic and social benefits and there are no significant environmental risks or impacts arising from the development that cannot be adequately mitigated for. In this regard the main reports submitted along with this application conclude:

• that ecological interests can be appropriately mitigated; • that the development will not create a greater risk of flooding elsewhere; • that noise mitigation will ensure that acceptable noise levels are achieved; • that the proposals will tie in with the establish landscape framework on the site; and • that there is adequate highways capacity already provided to ensure that the

development will not affect the free and safe flow of traffic.

Consequently, whilst the proposals may not fully accord with the Development Plan, the policies within the Development Plan are out-of-date. This Planning Statement has demonstrated that the proposals comply with the provisions of the Framework and represent sustainable development, for which there is a presumption in favour and that any potential adverse impacts of granting permission would not significantly or demonstrably outweigh the benefits of the development. It is considered therefore that the proposals should be granted without undue delay.



1. INTRODUCTION

1.1 This Planning Statement has been prepared by Progress Planning Ltd on behalf of Omega Warrington Ltd (OWL), who in partnership with the landowner, Homes England (HE) and Warrington Borough Council (the Council) have brought forward the development of Omega, Warrington.

1.2 In June 2007, initial outline planning permission was granted for business space for Phase 1 and 2 of Omega, which allowed for up to 1.6m sq.ft of logistics space (Omega North) and 1.5m sq.ft of office accommodation (part of Omega South). The grant of this permission coincided with the start of the global recession which saw the development of regeneration schemes across the UK slow down due to exceedingly low occupier demand and reduced investor confidence, Omega was no exception. However, following an improvement in market conditions. OWL along with HE and the Council have worked hard to secure investment and occupiers for the site, which has led to the delivery of over 3.5m sq.ft of B2 Manufacturing and B8 Logistics employment floorspace as well as planning permission for a further 1m sq.ft of warehousing and of more relevance up to 1,100 homes on the site.

1.3 The Omega development is supported by a Masterplan which, in response to the global recession, has revised the original plans for Omega, as a prestigious global headquarters location for business development, to create a more viable mixed-use employment, residential and commercial regeneration opportunity. The Masterplan has been further revised following the decision to remove the B1 Office development element and an up to date version is submitted with this application.

1.4 The Proposed Development forms the final significant stage in the regeneration of the south site, on areas previously identified as Zones 1 & 2 and Zones 3-5, which currently benefit from extant outline planning permission for employment, commercial and residential development. The proposals now referred to as Phases 4-7 comprise:


1.5 This Statement forms only one part of the application submission. The Statement makes cross reference to a series of other documents submitted as part of or alongside the application. Those other documents should be considered in full, albeit this document identifies the principle conclusions of each and provides a useful single point of reference. For clarification, the full submission comprises the following:

Documents

• Covering letter, Application Form and Certificates; • Planning Statement (Progress Planning); • Design & Access Statement (Chetwoods);



• Transport Assessment (WSP); • Environmental Noise Assessment (WSP); • Drainage Strategy Report(WSP); • Flood Risk Assessment (WSP); • Phase 1 Environmental Report (WSP); and • Ecology Assessment (The Ecology Practice).

Drawings / Plans

• Location Plan (Ref. 4531-CA-00-XX-DR-A_00-051); • Site Plan (Ref. 4531-CA-00-XX-DR-A_00-052); • Landscape General Arrangement Plan (Ref. POE_221_001); and • Detailed Access/Infrastructure Plans

• General Arrangement Plan(Ref. 5958-P4-P7-GA-100-A); • Pavement Construction Plan (Ref. 5958-P4-P7-GA-101-A); • Kerbs and Edging Plan (Ref. 5958-P4-P7-GA-102-A); • Road Markings and Signage Plan (Ref. 5958-P4-P7-GA-103-A); • Proposed Contours Plan (Ref. 5958-P4-P7-RP-100-A); • Highway Longitudinal Sections (Ref. 5958-P4-P7-RP-101-A); • Cross Sections Sheet 1 of 4 (Ref. 5958-P4-P7-RP-102-A); • Cross Sections Sheet 2 of 4 (Ref. 5958-P4-P7-RP-103-A); • Cross Sections Sheet 3 of 4 (Ref. 5958-P4-P7-RP-104-A); • Cross Sections Sheet 4 of 4 (Ref. 5958-P4-P7-RP-105-A);

• Omega South Masterplan (submitted for information purposes only).



2. APPLICATION SITE AND SURROUNDING AREA

Site and Surroundings

2.1 The Omega site lies within the north-west quadrant of the Borough of Warrington, immediately adjacent to the M62 Motorway, at Junction 8. Warrington Town Centre lies approximately 3.5km to the south-east. Omega South is bounded to north by the M62, to the east by Burtonwood Road and by Lingley Green Avenue to the South. The Borough boundary with St Helens defines the site’s western boundary.

2.2 The Omega site is surrounded by a mix of uses, including commercial, residential, light industrial, retail and open countryside. To the north and west lies predominantly open agricultural land and designated Green Belt. To the southwest lies the business headquarters for United Utilities, known as Lingley Mere. To the south and east lie the predominantly residential areas of Great Sankey and Westbrook, served by schools, health facilities, local shops and recreational open space. To the east lies Gemini Retail and Business Park.

2.3 A short distance to the south east, between Great Sankey and Westbrook, lies the regeneration site known as Chapelford Urban Village. This site extends to approximately 92 hectares (227 acres) and following the grant of planning permission has been the subject of a major residential-led mixed use development which has delivered over 2,000 dwellings and various facilities including a small district centre and a new railway station, Warrington West.

2.4 The wider Omega site is traversed east to west by the M62 Motorway, creating two definitive land parcels - Omega North and Omega South. Omega North extends to 47.89 hectares and is now fully complete and home to over 1 million sq.ft of B8 logistics floorspace. The overall Omega South site extends to about 185 hectares, of which some 31 hectares are covered by the OPP for Zones 1 & 2 (2017/30371). A further 77ha to the west (Zone 7) is covered by a separate OPP for B2 / B8 development (2016/28337) whilst detailed planning permissions for an ASDA Logistics development and a new Barrow Hall Primary School cover a further 25ha and 3ha, respectively. To the south lie Zones 3-6, which extends to approximately 49 ha and benefits from outline permission for up to 1,100 residential units (2015/26469).

The Application Site

2.5 The application site itself (the Site), which comprises parts of both the Zones 1 & 2 and Zones 3-6 OPPs, equates to approximately 23.8ha (58.87 acres). See below Figure 1: Site Location Plan and Figure 2: Extant OPP Redlines Plan, which illustrate the application redline boundary and the redline boundaries for the extant outline planning permissions that this application will supersede, those being Zones 3-6 OPP 2015/26469 and Zones 1&2 OPP 2017/30371.



Figure 1: Site Location Plan

Figure 2: Extant OPP Redlines Plan



2.6 The Site is situated on the eastern side of Omega South, immediately west of Burtonwood Road and south of the remaining employment land in Zones 1 & 2 for which Reserved Matters consent (2019/35646) has recently been granted for B2 / B8 development. To the South the site is defined by the landscape feature referred to as the “Green Finger”, an extension of the 35 acre public open space that has been created as part of the Omega development, which is known as the “Green Heart”, which also forms the western boundary of the application site.

2.7 To the east across Burtonwood Road lies the residential areas of Kingswood and Westbrook, whilst to the south of the “Green Finger” lie the emerging residential phases being developed as part of the Omega development.

Access

2.8 Omega has strong connections to the strategic highway network with Junction 8 of the M62 motorway, situated on its eastern boundary. The construction of this junction was promoted and funded by HE (then English Partnerships), in order to facilitate the development of Omega. The junction comprises a grade separated interchange and provides access to the eastbound and westbound carriageways, whilst slip roads also provide access to the existing Burtonwood Service Area (eastbound) on the north side of the motorway.

2.9 As part of the junction development and in order to facilitate the development of the Omega site, a dedicated access point was created from the roundabout to serve Omega South. In addition, the carriageway of the motorway was improved between Junction 8 and 9, involving a widening of both carriageways to four lanes plus hard shoulder.

2.10 As part of the redevelopment of Omega South, a series of financial contributions have been made by OWL to fund improvements to Junction 8, including the installation of an intelligent traffic light system known as MOVA and a major redesign of the junction itself brought forward by the Council as part of its Strategic Growth Fund allocation. To date OWL’s contributions to Junction 8 have totalled £1.47m and to the wider network almost £8m.

2.11 In terms of the local highway network, the Omega site has also delivered a new major infrastructure connection from Lingley Green Ave, via Omega Boulevard, to Junction 8 known as Skyline Drive. This road has recently been classed as an A-road and has been successful in drawing traffic (particularly HGVs) off the surrounding, more minor road network. Omega South also benefits from several points of access created via roundabout junctions on Burtonwood Road, Whittle Avenue and Lingley Green Avenue, which offer multiple route options for traffic accessing and egressing the site.

2.12 Omega also lies close to three major rail corridors. Within 3km of the site lie two Liverpool – Manchester and Trans-Pennine routes and the west coast main line. The nearest mainline stations are found in Warrington Town Centre, namely Warrington Central and Warrington Bank Quay and there remain proposals to create a third railway station at Chapleford (Warrington West), which would be within easy access of the site.



3. BACKGROUND AND PLANNING HISTORY

3.1 The most relevant planning history which directly affects the application site are the extant outline planning permissions for Omega Phases 1 and 2 (Ref. 2003/01449), Omega South Zones 3-6 (Ref. 2015/26469) and Omega South Zones 1 & 2 (Ref. 2017/30371).

3.2 OPP 2003/01499 was the first planning permission to be granted on Omega (June 2007) and has been the basis for development on Omega North and the catalyst for the wider development of Omega South. Although only one reserved matters application has come forward on the South under this consent; the Dominos Manufacturing/Distribution hub (Ref. 2016/27588).

3.3 This original OPP has been amended several times as development on the site has come forward and as market demands have changed. One amendment to the OPP (Ref. 2015/26475) secured approval for a change in the land use mix on Phase 2 (now referred to as Zones 1 & 2), for which permission had been granted for up to 1.5 million sq.ft of B1 office accommodation. The 2015 variation reduced the amount of B1 floorspace (900,000 sq.ft) and introduced 600,000 sq.ft of B2/B8 (split 30%/70% respectively) floorspace.

3.4 The original OPP has been varied a further time, through approval of S73 application 2016/28246, however the mix of land uses remains unchanged.

3.5 The Omega South Zones 3-6 OPP (2015/26469) was granted in June 2016 and represented a significant change in the regeneration strategy for the site with a move away from B1 employment uses to a residential led mixed-use development that reflected the revised Masterplan for the site. Three phases of residential development (Phases 1, 2A & 2B) have already been granted reserved matters consent pursuant to this OPP, with a fourth RMA currently under consideration with WBC for Phase 3A.

3.6 A further OPP, granted in September 2017, also affects the application site (Ref. 2017/30371), which built upon the previously approved B2/B8 floorspace approved under 2015/26475, by increasing the amount of approved B2/B8 floorspace (69,675 sq.m/749,975 sq.ft), whilst retaining an element of B1 (59,456 sq.m/639,979 sq.ft). This was all within the parameters of the original OPP’s 1.5m sq.ft, albeit at a lesser overall amount due to the exclusion of the Dominos site from the OPP application boundary.

3.7 The Table 1 below highlights the most pertinent planning permissions granted across the site, including reserved matters where relevant:

Table 1 – Omega Planning History Timeline

Application Number

Description Decision

2003/01449

Outline application for Omega Phases 1 & 2 involving phased redevelopment for primarily employment uses (offices,



industrial, storage & distribution) with associated development for subsidiary uses (retail, food & drink, non-residential institutions & hotel), and associated car parking, landscaping and infrastructure, including demolition of existing structures on site. (Access was a detailed matter for consideration as part of this planning application).

Application Approved:

05/06/2007

2015/25467

Full Planning (Major) - Proposed construction of a three form entry primary school, siting of mobile unit, sports pitches and sprinkler tank with new north-south access road including a pedestrian and cycle way.


15/05/2015

2015/26469

Outline Planning (Major) - Outline Planning Application for the creation of up to 1100 residential units and mixed-use zone to include retail/ food and drink uses (Use Classes A1; A2; A3; A4 and A5), Hotel (Use Class C1), Extra Care Facility (Use Class C2) and Non- Residential Institution (Use Class D1) with associated access, parking, landscape and infrastructure proposals (all other detailed matters are reserved for later approval). (The application is accompanied by an Environmental Impact Assessment)


01/06/2016

2015/26475

Variation of Conditions (Major Application) - Proposed variation of conditions 3, 4, 6 and 8 attached to outline planning permission 2013/22086 to refer to a new development parcels plan & schedule and to revise maximum floor space levels (including the introduction of B2 and B8 (general industrial/ logistics & distributive) floorspace, and a reduction in the previously permitted B1 office floor space); variation of condition 25 to reflect current parking standards; deletion of original conditions 26 (automated system to monitor vehicle trips); 35 and 36 (B1 floorspace triggers); addition of new condition (34) to require a legal mechanism to link to original S106 agreement.


21/12/2015



2016/27588

Reserved Matters - Application for approval of reserve matters - Manufacturing (B2) and Logistics (B8) facility with associated car parking, landscaping and site access, creation of new infrastructure road and secondary substation (following Outline Planning Permission 2015/26475) (As amended by 2016/27338).


01/06/2016

2016/28246

Variation and removal of conditions (major application) - Proposed amendment to conditions 27 & 28 attached to planning permission 2015/26475 to provide for a revised layout of works relating to junction 8, M62 including revisions to the previously approved alignment of Charon Way. Removal of conditions 27; 28; 30; 31; 32; 33 and 34 (design & construction details and triggers for approval and completion of highway improvement works); attached to planning permission 2015/26475.


21/03/2017

2017/29537

Reserved Matters (Major) - Proposed Reserved Matters Application for the erection of 200 dwellings with associated landscaping and infrastructure (following Outline Approval 2015/26469)


04/04/2017

2017/30371

Outline application (major development); Proposed development consisting of manufacturing (B2) and distribution/ logistics (B8) (in a 30 per cent B2 to 70 per cent B8 ratio) and Office (B1a) floorspace with associated car parking, landscaping and infrastructure (detailed matters of appearance; landscaping; layout and scale are reserved for subsequent approval).


13/09/2017

2017/30387

Reserved Matters Application (Major) - Proposed erection of 158 dwellings and associated works details including appearance, landscaping, layout and scale pursuant to outline permissions 2015/26469).


28/11/2017

2018/32124

Reserved Matters (Major) - Proposed development of 86 dwellings with associated works (details of appearance, landscaping, layout and scale pursuant to Outline permission 2015/26469)


04/07/2018



3.8 In addition to the above planning history, it is important to highlight the proposals currently under preparation for Omega West, which is a proposed extension of the existing Omega south site across the Warrington Borough boundary into St Helens. The proposals will form a Hybrid planning application for the following development:

‘Hybrid Planning Application for the following development (major development);

(i) Full Planning Permission for the erection of a B8 logistics warehouse, with ancillary offices, associated car parking, infrastructure and landscaping; and

(ii) Outline Planning Permission for Manufacturing (B2) and Logistics (B8) development with ancillary offices and associated car parking, landscaping and infrastructure (detailed matters of appearance, layout and scale are reserved for subsequent approval).’

3.9 Whilst there is no direct link between the Phase 4-7 application and the Omega West proposals, which are for a different land use and are situated in a different local planning authority area, it is worth noting that both sets of proposals rely on the same trip-offsetting and reduction in previously approved trips that comes from the loss of the B1 floorspace on Omega South (Zones 1&2) to support their scheme. The Omega West proposals have been able to rely on this ‘transfer’ of trips in the same way as Phase 4-7 because access to the Omega West site will be via Junction 8 and the existing highways infrastructure already created by the Omega development.

3.10 The Hybrid application for Omega West is due to be submitted to St Helens before the end of 2019. Clearly, given that that the proposed access arrangements will be mean that all of the traffic impacts are felt by Warrington, not St Helens, the applicant has engaged in pre-application discussions with both St Helens and WBC regarding the proposals and the principle of development. For their part, WBC will be a statutory consultee on the hybrid application and will also be a part to the s106 legal agreement that will be required as part of the development. Any off-site highways mitigation work required as part of the Omega West proposals will be secured through this s106 and agreed in advance with WBC.



4. B1 OFFICE MARKET DEMAND

4.1 As discussed above, the application proposals are predicated, in part, on the loss of the B1 element of the extant Zones 1&2 OPP (2017/30371) allows for up to 59,456 sq.m/639,979 sq.ft of B1 floorspace. As referred to already, this represents a much lower B1 offer on the site (originally set at 1.5m sq.ft in the 2007 OPP), the reduction of which has coincided with a lack of market demand for out-of-town B1 sites and a rise in logistics sector with the boom in online retailing. The lack of demand is now so acute and long-term that the decision has been taken to remove the B1 altogether and focus on alternative uses for this part of the site. Avison Young, marketing agents for Omega, have provided a brief commentary on the Warrington office market as below.

4.2 The Warrington office market in recent years has been robust but somewhat localised with the vast majority of enquiries and agreed transactions being significantly below 20,000 sq.ft and located either in the town centre or at Birchwood Park.

4.3 Birchwood is the established preferred location within the Warrington market place and accounts for a significant amount of take-up. This is due in part to Birchwood’s proximity to both the M62 and M6 motorways, but also and perhaps more importantly due to the well-established infrastructure and amenity provided within the business park. This places Birchwood at a distinct advantage over Omega where the infrastructure and amenity needed to create a desirable office location has been lacking.

4.4 Gemini has experience some office development and subsequent demand but this has been at smaller level.

4.5 The marketing of Omega, in an office context, has been focused on seeking pre-let opportunities from larger floorplate occupiers looking to take advantage of the scale of the scheme, accessibility to the motorway junction and ability to provide high levels of car parking. The upfront infrastructure associated with creating B1 office plots on the site has also driven this need for a significant pre-let opportunity, on the basis that smaller floorplates or speculative schemes could not support the scale of investment required.

4.7 The marketing process began in 2007, around the time of the original planning approval on the site and continues to the present day. During this period there has been very few true pre-let opportunities of this nature. A full and varied marketing campaign has been undertaken and the opportunity has been exposed to both potential indigenous and inward moving occupiers.



5. MASTERPLAN DEVELOPMENT STRATEGY

5.1 The Masterplan Development Strategy document was most recently presented to and approved by the WBC Executive Board on 13 January 2014 and was also subject to public consultation in conjunction with the Zone 7 planning application during January and February 2014. The document was prepared to provide a framework for future development on Omega South (Omega North having been completed in line with the original OPP and Masterplan proposals) and to provide an introduction to the revised development zones and land use which formed the new Omega Masterplan.

5.2 The development plot areas, green infrastructure and overall masterplan layout were created following analysis of key drivers such as ecological, landscape and drainage strategies, including extensive consultation with key statutory stakeholders and consultees.

5.3 The revised Masterplan Development Strategy comprised the following:

• Creation of distinct development zones: • Zones 1 & 2 – B1 Office (extant planning permission) • Zones 3/4/5/6E – Mixed Use (to include commercial uses such a

supermarket, local shops, restaurants and other amenities to serve the site and wider community)

• Zone 6 – C3 Residential • Zone 7 – B2 Manufacturing and B8 Logistics

• Provision of comprehensive transport and pedestrian infrastructure within the site and an Access Strategy that will ensure connectivity within the local and wider area.

• A high quality, sustainable landscape strategy that will create a safe and attractive environment for users and residents of the site, whilst also protecting and enhancing key ecological factors that affect the site.

• Creation of a ‘Green Heart’ that will not only provide a focal amenity point for the site as a whole but also deliver significant on-site ecological/biodiversity benefits to offset any loss resulting from the development;

5.4 This Masterplan concept is now nearing fruition with Zone 7 substantially complete and three phases of residential development now approved and under construction in Zone 6. Where Omega South has been unsuccessful is in attracting interest in the B1 Office and Mixed-Use areas and it is these areas of the Masterplan that this application is seeking to address.

5.5 To address the lack of take up in B1 Office and the Mixed-Use commercial areas, a further revision of the Masterplan has now been agreed in principle between OWL and the Council which illustrates the proposals subject to this application, the recently granted reserved matters consent (2019/35646) for B2/B8 floorspace in Zones 1&2 and the proposals for Omega West. The revised Masterplan also reduces the scale of the mixed-use zone to more accurately reflect market demand for these uses.



6. DEVELOPMENT PROPOSALS

Description of Development

6.1 This outline planning application is for:


6.2 The application is made in outline, in order to establish the principle of development, following the revision of the Masterplan for Omega South. Notwithstanding this, full details of all off-plot access and highways, landscaping and drainage proposals have been brought forward and are submitted for approval as part of this application.

6.3 Details of individual siting of buildings within the development parcels and their landscaping are to be submitted as reserved matters, along with details of external appearance and design. This flexibility is essential because OWL intend to dispose of individual development plots to a variety of housebuilders who will have their own design and development principles. Given that the application is made in outline, and that sufficient detail is provided to assess the likely impacts of the development, this approach is considered entirely appropriate.

Proposed Development

6.4 The proposed development represents the final phases of planned development on Omega South and follows the revision of the Omega South Masterplan to remove the B1 Office zone. The application site, which already benefits from a number of extant outline planning permissions, is identified as Phases 4-7, Omega South and will effectively form an extension of the current Zone 6 residential proposals, comprising Phases 1-3.

6.5 The proposals comprise primarily residential development, up to 617 units and a separate

mixed-use zone that will contain some or all of the retail and commercial uses previously granted as part of the Zones 3-6 OPP (2015/26469). In reality, the proposals are for net 300 new residential units, with the other 317 units and the mixed-use zone being ‘transferred’ from the Zones 3-6 OPP. These ‘transferred’ elements have already been assessed and approved, so whilst they form part of the overall development proposals, their impact and acceptability are not the subject of this application. Accordingly, any impact, associated mitigation and calculations regarding developer obligations should be based solely on the new 300 residential units that comprise the reminder of the development proposals.

6.6 The Masterplan broadly identifies the site as being situated between the “Green Finger” to

the South and the landscape buffer to the north that will be created as part of the proposed B2/B8 development currently subject to a reserved matters application (2019/35646) pursuant to the Zones 1&2 OPP 2017/30371. With the “Green Heart” forming the western boundary of the site this means that the site is bounded on three sides by substantial



landscape infrastructure and even to the east there will be an opportunity through this application to introduce new structure planting between the site and Burtonwood Road.

6.7 As discussed above, the variety of housebuilders likely to be involved with development on the site means that there is no certainty over the final form that development on the site will take. However, it is reasonable to assume that proposals will follow a similar pattern to those brought forward for reserved matters approval on Phases 1-3. Irrespective of the final form, the development will complement and interact with the sustainable business community that has been established on Omega, as well as the wider area and should provide the catalyst for completion of the Omega vision.

6.8 The proposals also retain an element of mixed-use development, which it is envisaged will be

situated on the eastern periphery of the site, close to the Burtonwood Road/Westbrook Way roundabout. This location is consistent with that previously approved as part of the Zones 3-6 OPP and provides easy access opportunities with the ability separate private vehicles and service vehicles, whilst offering high levels of visibility for potential occupiers.

6.9 The Zones 3-6 OPP defined the maximum floorspace figures for the mixed-use zone as set out in the table below:

Planning Use Class Gross Floorspace (sq.m) A1 (foodstore) 2,000 A1 (non-food) 1,500 A2, A3, A4 and A5 2,000 C1 2,850 C2 80 beds D1 1,000

6.10 The Mixed-Use zone will be subject to further detailed approval through the submission of

reserved matters in due course and it is considered unlikely that all of the above development will come forward as part of any proposals for the site. However, until such time as OWL have been able to identify which components will comprise the mixed-use zone it is proposed that the above, approved floorspace maximums are included with the current proposals.

6.11 By bringing forward details of the proposed off-plot access and highways, landscaping and drainage proposals, the site has been split into four clear phases of residential development (Phase 4-7) as shown in the submitted drawings. These details show the proposed accesses, the primary roads and the location of the proposed pedestrian and cycle routes. As illustrated, Phases 4-7 will be accessed via the existing roundabout junction serving Burtonwood Road, Westbrook Way and Whittle Avenue and via a new access junction to be created on Burtonwood Road. To the south the application site will be connected to residential Phases 1-3 via a bus gate and shared pedestrian and cycle routes.

6.12 The Proposed Development includes the creation of new pedestrian and cycle routes which will link into the existing network and provide new opportunities for walking and cycling



through the site, with connections to the rest of the Omega site and the wider cycle network. These new routes will encourage a reduction in car dependency through the creation of a mixed-use and integrated urban neighbourhood with interconnected streets that are conducive to walking and cycling. On the more lightly trafficked streets i.e. within the residential development plots, walking on footway and cycling on street will be encouraged in line with latest best practice and in particular the principles within Manual for Streets.

6.13 Within the site, key walking and cycling desire lines will be satisfied using segregated walking and cycling routes, conforming to latest best practice in terms of design and security. These routes will be marked and surfaced according to local and national standards, and will be arranged to include natural surveillance from local houses and areas of activity. Where appropriate, routes will be lit in accordance with the relevant British Standards.

Consistency with the Masterplan Development Strategy

6.14 The proposed development is entirely consistent with the revised Masterplan, which has been devised in discussion with WBC as an appropriate vision/framework for the wider site and which is submitted alongside this application for information purposes.

6.15 It is not considered appropriate for the Masterplan itself to comprise part of the application and therefore subject to formal approval, as this represents only a vision of the site at this moment in time. The identification of development parcels and the off-plot infrastructure details submitted for approval as part of this application enables the principle of development to be established, in a framework form that is generally consistent with the current approved Masterplan.

6.16 It is envisaged that the development proposed within this application will be constructed over a 5-10 year period, based on current market demand and the performance of other phases on Omega. The development has been split into four distinct phases although some flexibility is required to allow the site to respond to market demands and ensure a successful, commercially viable development. Phased development in this manner will mean that several housebuilders could be on site at any one time, as phases overlap. This should engender healthy competition between selected housebuilders ensuring a strong choice of housing product, within high quality developments at attractive prices.

6.17 The proposed land uses for the site directly reflects the new Masterplan vision, whilst the overall design and landscaping principles, access arrangements and environmental principles contained within the application proposals are also all consistent with the development framework already established on site.



7. PRE-APPLICATION CONSULTATION

7.1 Pre-application consultation has been undertaken with Warrington Borough at various stages during the preparation of the application, most recently at a meeting with WBC Planning and Highways on 13 November 2019.

7.2 The focus on pre-application consultation with Planning and Highways, reflects the outline nature of the proposals and the fact that the key issues to addressed by the application are the principle of the change from B1 office to residential and the trip-offsetting resulting from loss of B1 that has been used to justify the residential proposals.

7.3 In addition to these key issues, a number of other matters were been briefly discussed, including detailed aspects of the access and circulation, landscaping and drainage.

7.4 Unfortunately, because the landowner (Homes England), whom OWL work with under a development agreement for the site, is an executive non-departmental public body sponsored by the Government (Ministry of Housing, Communities & Local Government) it has not been possible to undertake any pre-application consultation with the local community.

7.5 Like all other Government organisations, Homes England are currently subject to ‘purdah’, which restricts their activities and means that they are duty bound not to enter into any form of publicity that may have a bearing on local or national politics. Publicity is defined as “any communication, in whatever form, addressed to the public at large or to a section of the public.” Unfortunately, public / community consultation for the proposed development would fall into this definition and has therefore been avoided.



8. PLANNING POLICY REVIEW

8.1 The main national, regional and local planning policies which are relevant to consideration of this application are summarised below. This section sets out key policy considerations which should be taken into account in considering this application.

National Planning Policy Framework

8.2 The most recent version of the National Planning Policy Framework (the Framework) was published in February 2019 setting out the Government’s planning policies for England and how these are expected to be applied.

8.3 Planning law requires that applications for planning permission must be determined in accordance with the development plan unless material considerations indicate otherwise. The Framework does not change the statutory status of the development plan as the starting point for decision making. Proposed development that accords with an up-to-date Local Plan should be approved, and proposed development that conflicts should be refused unless other material considerations indicate otherwise.

8.4 The primary objective of the Framework is the desire to achieve sustainable development and the policies contained within the Framework, taken as a whole, constitute the Government’s view of what sustainable development in England means in practice for the planning system. The Framework states that:

“At a very high level, the objective of sustainable development can be summarised as meeting the needs of the present without compromising the ability of future generations to meet their own needs.”

8.5 The Framework clearly identifies that the planning system has three overarching objectives, which are interdependent and need to be pursued in mutually supportive ways:

• an economic objective – to help build a strong, responsive and competitive economy, by ensuring that sufficient land of the right types is available in the right places and at the right time to support growth, innovation and improved productivity; and by identifying and coordinating the provision of infrastructure;

• a social objective – to support strong, vibrant and healthy communities, by ensuring that a sufficient number and range of homes can be provided to meet the needs of present and future generations; and by fostering a well-designed and safe built environment, with accessible services and open spaces that reflect current and future needs and support communities’ health, social and cultural well-being; and

• an environmental objective–to contribute to protecting and enhancing our natural, built and historic environment; including making effective use of land, helping to improve biodiversity, using natural resources prudently, minimising waste and



pollution, and mitigating and adapting to climate change, including moving to a low carbon economy.

8.6 So that sustainable development is pursued in a positive way, at the heart of the Framework is a presumption in favour of sustainable development (Para. 11), which should be seen as a golden thread running through both plan-making and decision-taking. For decision-taking this means:

• approving development proposals that accord with an up-to-date development plan without delay; or

• where there are no relevant development plan policies, or the policies which are most important for determining the application are out-of-date, granting permission unless:

i. the application of policies in the Framework that protect areas or assets of particular importance provides a clear reason for refusing the development proposed; or

ii. any adverse impacts of doing so would significantly and demonstrably outweigh the benefits, when assessed against the policies in this Framework taken as a whole.

8.7 Chapter 5 deals with the delivery of a sufficient supply of homes and confirms that to “support the Government’s objective of significantly boosting the supply of homes, it is important that a sufficient amount and variety of land can come forward where it is needed, that the needs of groups with specific housing requirements are addressed and that land with permission is developed without unnecessary delay.”

8.8 The Framework also establishes that where a need for affordable housing is identified, planning policies should specify the type of affordable housing required, and expect it to be met on-site unless:

a) off-site provision or an appropriate financial contribution in lieu can be robustly justified; and

b) the agreed approach contributes to the objective of creating mixed and balanced communities.

8.9 Where major development involving the provision of housing is proposed, planning policies and decisions should expect at least 10% of the homes to be available for affordable home ownership, unless this would exceed the level of affordable housing required in the area, or significantly prejudice the ability to meet the identified affordable housing needs of specific groups.

8.10 Transport is addressed in Chapter 9, which identifies an expectation that transport issues will be considered at the earliest stages of development proposals, so that:



• the potential impacts of development on transport networks can be addressed; • opportunities from existing or proposed transport infrastructure, and changing

transport technology and usage, are realised – for example in relation to the scale, location or density of development that can be accommodated;

• opportunities to promote walking, cycling and public transport use are identified and pursued;

• the environmental impacts of traffic and transport infrastructure can be identified, assessed and taken into account – including appropriate opportunities for avoiding and mitigating any adverse effects, and for net environmental gains; and

• patterns of movement, streets, parking and other transport considerations are integral to the design of schemes and contribute to making high quality places.

8.11 The Framework states that the planning system should actively manage patterns of growth in support of these objectives. Significant development should be focused on locations which are or can be made sustainable, through limiting the need to travel and offering a genuine choice of transport modes. This can help to reduce congestion and emissions and improve air quality and public health.

8.12 The Framework provides that in assessing sites that may be allocated for development in plans, or specific applications for development, it should be ensured that:

• appropriate opportunities to promote sustainable transport modes can be - or have been - taken up, given the type of development and its location;

• Safe and suitable access to the site can be achieved for all users; and • Improvements any significant impacts from the development on the transport

network (in terms of capacity and congestion), or on highway safety, can be cost effectively mitigated to an acceptable degree.

8.13 Development should only be prevented or refused on highways grounds if there would be an unacceptable impact on highway safety, or the residual cumulative impacts on the road network would be severe.

8.14 Within this context, applications for development should:

• give priority first to pedestrian and cycle movements, both within the scheme and with neighbouring areas; and second – so far as possible – to facilitating access to high quality public transport, with layouts that maximise the catchment area for bus or other public transport services, and appropriate facilities that encourage public transport use;

• address the needs of people with disabilities and reduced mobility in relation to all modes of transport;

• create places that are safe, secure and attractive – which minimise the scope for conflicts between pedestrians, cyclists and vehicles, avoid unnecessary street clutter, and respond to local character and design standards;



• allow for the efficient delivery of goods, and access by service and emergency vehicles; and

• be designed to enable charging of plug-in and other ultra-low emission vehicles in safe, accessible and convenient locations.

8.15 Chapter 11 promotes the effective use of land to meet the need for homes and other uses, while safeguarding and improving the environment and ensuring safe and healthy living conditions.

8.16 To achieve this, Chapter 11 provides that decisions need to reflect changes in the demand for land and that where the local planning authority considers there to be no reasonable prospect of an application coming forward for the use allocated in a plan:

• they should, as part of plan updates, reallocate the land for a more deliverable use that can help to address identified needs (or, if appropriate, deallocate a site which is undeveloped); and

• in the interim, prior to updating the plan, applications for alternative uses on the land should be supported, where the proposed use would contribute to meeting an unmet need for development in the area.

8.17 In this regard the Framework also states that local planning authorities should take a positive approach to applications for alternative uses of land which is currently developed but not allocated for a specific purpose in plans, where this would help to meet identified development needs. In particular, they should support proposals to:

• use retail and employment land for homes in areas of high housing demand, provided this would not undermine key economic sectors or sites or the vitality and viability of town centres, and would be compatible with other policies in this Framework; and

• make more effective use of sites that provide community services such as schools and hospitals, provided this maintains or improves the quality of service provision and access to open space.

8.18 Planning decisions should support development that makes efficient use of land, taking into account:

• the identified need for different types of housing and other forms of development, and the availability of land suitable for accommodating it;

• local market conditions and viability; • the availability and capacity of infrastructure and services–bothexistingand proposed

– as well as their potential for further improvement and the scope to promote sustainable travel modes that limit future car use;

• the desirability of maintaining an area’s prevailing character and setting (including residential gardens), or of promoting regeneration and change; and

• the importance of securing well-designed, attractive and healthy places.



8.19 With regard to Flood Risk (Chapter 14), when determining any planning applications, local planning authorities should ensure that flood risk is not increased elsewhere. Where appropriate, applications should be supported by a site-specific flood-risk assessment50. Development should only be allowed in areas at risk of flooding where, in the light of this assessment (and the sequential and exception tests, as applicable) it can be demonstrated that:

• within the site, the most vulnerable development is located in areas of lowest flood risk, unless there are overriding reasons to prefer a different location;

• the development is appropriately flood resistant and resilient; • it incorporates sustainable drainage systems, unless there is clear evidence that this

would be inappropriate; • any residual risk can be safely managed; and • safe access and escape routes are included where appropriate, as part of an agreed

emergency plan.

8.20 Chapter 15 of the Framework goes on to state that planning decisions should contribute to and enhance the natural and local environment by:

• minimising impacts on and providing net gains for biodiversity, including by establishing coherent ecological networks that are more resilient to current and future pressures;

• preventing new and existing development from contributing to, being put at unacceptable risk from, or being adversely affected by, unacceptable levels of soil, air, water or noise pollution or land instability; and

• remediating and mitigating despoiled, degraded, derelict, contaminated and unstable land, where appropriate.

8.21 Chapter 15 also confirms that the presumption in favour of sustainable development does not apply where the plan or project is likely to have a significant effect on a habitats site, unless an appropriate assessment has concluded that the plan or project will not adversely affect the integrity of the habitats site.

8.22 In terms of ground conditions and pollution Chapter 15 also states that planning decisions should ensure that a site is suitable for its proposed use taking account of ground conditions and any proposals for mitigation including land remediation. Adequate site investigation information, prepared by a competent person, will be required to inform these assessments.

8.23 Planning decisions should ensure that new development is appropriate for its location taking into account the likely effects (including cumulative effects) of pollution on health, living conditions and the natural environment. In doing so they should mitigate and reduce to a minimum potential adverse impact resulting from noise from new development and limit the impact of light pollution from artificial light on local amenity. Decisions should also ensure that new development can be integrated effectively with existing businesses and that existing



businesses should not have unreasonable restrictions placed on them as a result of development permitted after they were established.

8.24 The planning system is plan-led. Planning law requires that applications for planning permission must be determined in accordance with the development plan, unless material considerations indicate otherwise. The Framework is a material consideration in planning decisions which is founded upon the mandate that local planning authorities should apply the presumption in favour of sustainable development assessing and determining development proposals.

Warrington Local Plan Core Strategy

8.25 The Warrington Local Plan Core Strategy was adopted in July 2014 and provides the overarching strategic policy document at the heart of the Council’s Local Planning Framework. It sets out the planning framework for guiding the location and level of development in the borough up to 2027. It also contains more detailed development management policies in respect of specific issues for use in determining individual planning applications. Policy CS8 (Strategic Proposal - Omega and Lingley Mere) establishes the Council’s vision for Omega and is dealt with in more detail below.

8.26 The Council’s Overall Spatial Strategy forms the basis of the Local Plan Core Strategy document and is predicated a series of over-arching objectives, which include:

• CS1 – Delivering Sustainable Development; • CS2 – Quantity and Distribution of Development; • CS3 – Maintaining a 10 Year Forward Supply of Housing Land • CS4 – Transport

8.27 Policy CS1 states that throughout the Borough, development proposals that are sustainable will be welcomed and approved without delay.

8.28 It goes on to state that to be sustainable, development must accord with national and local planning policy frameworks, taking into account other material considerations, and must have regard to a number of factors including:

• the planned provision made for economic and housing growth; • the requirement to provide for recognised and identified development needs; • the need to develop sites, services and facilities in appropriate locations accessible by

public transport, walking and cycling; • the need to make the best use of existing transport, utility, social and environmental

infrastructure within existing settlements, and ensure additional provision where needed to support development;

• the need to address the causes of and be resilient to the effects of climate change; • the need to sustain and enhance the Borough’s built heritage, biodiversity and

geodiversity;



• the importance of prudently using resources and maximising re-use, recovery and recycling where possible;

• the need to safeguard environmental standards, public safety, and residential amenity; and

• the need to improve equality of access and opportunity.

8.29 Policy CS1 also confirms that the Council's approach will always be to work proactively with applicants jointly to find solutions which mean that proposals can accord with the Development Plan and be approved without delay wherever possible, and to secure development that improves the economic, social and environmental conditions in the area.

8.30 In line with the Framework, Policy CS1 also provides that where there are no policies relevant to the application or relevant policies are out of date at the time of making the decision then the Council will grant permission unless material considerations indicate otherwise - taking into account whether:

• Any adverse impacts of granting permission would significantly and demonstrably outweigh the benefits, when assessed against the policies in the National Planning Policy Framework taken as a whole; or

• Specific policies in that Framework indicate that development should be restricted.

8.31 Policy CS2 confirms that up to 277 hectares of land for business, general industrial and storage/distribution uses (principally Use Classes B1, B2 & B8) is available over the period 2006 to 2027, to support growth of the local and sub-regional economy. This land supply figure includes the land at Omega for which planning permission has already been granted for B1, B2 & B8 uses.

8.32 Policy CS2 confirms that the town of Warrington will continue to function as the primary settlement in the Borough and establishes the principles that will determine the detailed distribution of development through the Local Plan Core Strategy period. Of these founding principles the following are of most relevance to this planning application:

• The re-use of previously developed land within defined settlements will be prioritised and at least 80% of all new homes within the Borough will be delivered on previously developed land;

• Around 60% of new residential development should be delivered in the defined Inner Warrington area. The remainder will be delivered in the town's suburbs and to a lesser extent within the borough's defined settlements

8.33 The policy dealing with the Quantity and Distribution of Development would normally also establish the housing implementation strategy for the Local Plan area, however as a result of the High Court challenge, elements of the housing land policies were initially removed from the Local Plan. Specifically, the parts of the Plan which were overturned were:



• The housing target of 10,500 new homes (equating to 500 per year) between 2006 and 2027; and

• References to 1,100 new homes at the Omega Strategic Proposal

8.34 Following the High Court ruling, the Council sought to update its housing policies and have subsequently been working on a new Warrington Local Plan, which is at the ‘Submission Draft’ stage and is discussed in more details below.

8.35 Policy CS3 establishes the Council’s plans to maintain a 10-year forward supply of housing land. The Council will monitor housing land supply and where it is indicated that an on-going, deliverable and developable 10 years’ supply of housing land can no longer be sustained or where it can be demonstrated that housing need cannot be met within the Mid-Mersey SHMA, the Council will review its housing land provision, and bring on-stream additional housing sites as required, with priority given to encouraging the re-use of previously developed land and avoiding sites in the Green Belt where possible.

8.36 Policy CS4 is the Councils overall transport strategy. It outlines that in order to support Warrington’s role as a regional transport gateway/interchange, the Council and its partners will seek links through Warrington to the wider region and sub-region. Using the principles set out in Policy CS2, development will be located to reduce the need to travel, especially by car, and to enable people as far as possible to meet their needs locally. The policy highlights that early consultation with the Highways Agency is necessary for any proposal that may affect the Strategic Road Network.

8.37 Policy CS8 (Strategic Proposal - Omega and Lingley Mere) allocates the whole of the 267ha wider Omega site as shown in Figure 3.1 (incorporating Omega North, the wider Omega South site and Lingley Mere) as the primary location for ongoing economic development within the borough, and a focus for business, general industrial and storage / distribution development (class B1/B2/B8). The site is also expected to contribute to economic opportunity and growth in the wider sub region. The supporting text to Policy CS8 identifies that Omega could accommodate between 12,000 and 20,000 jobs when fully built out.

8.38 Policy CS8 recognises the need to provide ancillary uses to support to the scale and nature of intended employment development at Omega and ensure a sustainable development, stating that:

‘In the interests of creating a sustainable business community, ancillary uses of an appropriate scale and nature to provide a business services hub to serve the development as a whole, such as retail, leisure, hotel and conference facilities will be supported. Retail development may also be acceptable.’

8.39 The supporting text to Policy CS8 explains that:



‘The introduction of any further uses which do not directly support the resident workforce at Omega would only be supported where it can be demonstrated that proposals would in no way undermine any aspect of the Overall Spatial Strategy’.

8.40 Figure 1 below illustrates the strategic opportunity at Omega and Lingley Mere, which is split into three distinct phases/areas namely; Dark Purple - Omega Phases 1 & 2 (which is formed by the extant B1, B2 & B8 OPP), Purple - the remainder of Omega comprising approved B2 & B8 development in Zone 7 (north of the Royal Mail Depot and Lingley Mere) and the current application site, and Light Purple - Lingley Mere Business Park.

Fig. 1 CS8 - Strategic Proposal - Omega and Lingley Mere

8.41 Paragraph 6.38 of the supporting text to Policy CS8 states that:

“The evidence base supports that whilst the primary focus at Omega should be employment land related development, the Plans overall target of up to 277 hectares can be met without relying entirely on the site in this regard”.

8.42 Despite the outcome of the High Court challenge, the ruling did not quash every reference or policy relating to housing delivery within the Development Plan. Policy SN 1 deals with the Distribution and Nature of New Housing within the Borough and states, in accordance with Policy CS2, that 80% of new homes to be delivered within the borough will be focused on



previously developed land. This figure is based upon the table contained within the explanatory text for Policy CS2.

8.43 In terms of distribution, 60% of new homes will be delivered within Inner Warrington with the remaining 40% of new homes will be achieved primarily through development within the suburban areas of the town of Warrington and development within the Borough’s defined outlying settlements. Outside of Inner Warrington, within the suburban areas of the town of Warrington, the Council will support proposals which;

1. provide a solution to environmental or social problems associated with a site; or

2. present an opportunity to widen the type, size and affordability of available housing, through reference to need evidenced by the Council, in sustainable locations which are well served by existing infrastructure; or

3. support the delivery of or help create the density of population to support the operation of neighbourhood hubs and local shops and services.

8.44 Policy SN2 seeks to secure Mixed and Inclusive Neighbourhoods and establishes a 30% affordable housing provision target for proposals situated on previously developed/brownfield land for 15 or more dwellings where that site is located outside of Town Centre and Inner Warrington. The preference is for this to be an on-site provision unless circumstances preclude this. In each case the provision to be made will be based on negotiation and agreement on a site by site basis. A lower proportion and/or a different tenure split may be permitted where it can clearly be demonstrated to the satisfaction of the Council that development would otherwise not be financially viable, and affordable housing provision is nevertheless being maximised.

8.45 Policy MP1 highlights the Councils general transport principles. It states that the Council and its partners will support development where it meets a set of criteria such as it reduces the need for private car use through its location, travel planning and marketing and is in favour of public transport, pedestrians and cyclists.

8.46 Policy MP4 seeks to secure improvements to public transport infrastructure and services (including bus, rail and taxi/ private hire) in partnership with operators and delivery partners and confirms that in accordance with the Overall Spatial Strategy, development should be located in areas with easy access to public transport.

8.47 Policy MP6 states the Council will support priorities and improvements set out in the Local Transport Plan and other delivery documents by ensuring development will not prejudice the implementation of proposed transport schemes and projects that require land beyond the limits of the public highway.

8.48 Policy MP7 states that applications for major developments, developments that are not consistent with the local planning framework or developments that raise specific issues in a



locality that consist of housing, employment, retail, leisure, and service uses must be accompanied by a Transport Assessment, Transport Statement, and Travel Plan in accordance with national planning policy and national guidance on transport assessments.

Draft Warrington Local Plan 2017 – 2037 (Proposed Submission Version)

8.49 The Council have been preparing a new Warrington Local Plan, which is at the Proposed Submission Version consultation stage and which will provide the statutory planning framework for the entire Borough for the period 2017 to 2037.

8.50 The Proposed Submission Draft Local Plan (emerging DLP) was published for a nine week period of consultation between Monday 15th April 2019 and Monday 17th June 2019 and the Council are currently reviewing all the representations prior to submitting the Plan for “Examination in Public”. As such, whilst no yet adopted, it could be argued that the Draft Local Plan should be afforded reasonable weight in the Council’s decision making process due to the fact that it represents the Council’s most up-to-date policy position.

8.51 In general terms the DLP aims to deliver 18,900 new homes in the Plan period and provides support for Warrington’s ongoing economic growth by providing 362 hectares of employment land. The Plan also aims to create varied, vibrant neighbourhoods that are shared places to live, work and enjoy.

8.52 The DLP confirms that Omega has been one of the most successful economic development areas, with logistics and manufacturing led regeneration on this site creating in excess of 8,000 new jobs over the last 4 years. However as the DLP highlights Omega site is nearly built out and the Council’s Economic Development Need Assessment (EDNA) concludes there is an insufficient existing employment land supply to meet Warrington’s long term needs.

8.53 In terms of Warrington’s Town Centre the DLP identifies it as a sub-regional centre which serves the Borough and surrounding areas, whose catchment is limited by the three regional centres which surround it, those being Chester, Liverpool and Manchester. The Town Centre is also identified as being under threat from the New Town approach to the decentralisation of retailing to district centres and Gemini Retail Park, which compete directly with the Town Centre and pose a significant threat to the vitality and viability of the Town Centre. To counter this there has been a gradual improvement in terms of leisure and visitor facilities and a limited evening economy, but the DLP confirms that the catering and Town Centre office sectors are underrepresented to the extent that the overall diversity of the town, for a sub-regional centre, is not good.

8.54 The Bridge Street Development, which is nearing completion, will make a major contribution to addressing some of these issues. It will provide a wide range of leisure, retail and office accommodation as well as extensive public realm improvements. However, the DLP and the Warrington City Centre Masterplan seek to further strengthen the role of the Town Centre by promoting it as a focus for living, working, travel, culture and leisure at the heart of the town.



8.55 The DLP also identifies that over recent years there has been a fall in housing completions, with only 359 net completions in 2017/18 and whilst forecasts point to an increase over the short term due in part to the residential development already being built at Omega, the Council’s Strategic Housing Land Availability Assessment shows that land supply will become increasingly constrained over the longer term.

8.56 Policy DEV1 deals with Housing Delivery and establishes a housing requirement over the 20 year Plan period of 18,900 new homes at an average target delivery rate of 945 homes per annum (Local Housing Needs Assessment 2019). The DLP’s intention is that majority of new homes will be delivered within the existing main urban area of Warrington, the existing inset settlements and other sites identified in the Council’s Strategic Housing Land Availability Assessment (SHLAA), which together have identified deliverable capacity for a minimum of 13,726 new homes. The remainder will delivered through sustainable urban extensions to the main urban area and the allocation of smaller scale sites to be removed from the Green Belt.

8.57 To allow for market choice and in the event that specific sites do not come forward the DLP includes provision for flexibility on top of the overall land supply. The Council has used a benchmark of 10% which it considers provides sufficient flexibility in the context of the Plan’s proposed housing land supply. Table 2 below identifies the land requirement to meet the DLP housing target over the Plan Period.

Table 2 - Land Requirements over the Plan Period

Annual Target 945 Plan Period (2017 to 2037) 18,900 Flexibility 10% 1,890 Total Requirement 20,790 Urban Capacity 13,726 Green Belt Requirement 7,064

8.58 Policy DEV2 sets out how the Council will meet the Borough’s housing needs with reference to Affordable Housing, Optional Standards and Housing for Older People.

8.59 Under Policy DEV 2 residential developments of 10 dwellings or more will be required to provide the following:

• Affordable Housing a) 20% on sites within Inner Warrington, inclusive of the Town Centre; and b) 30% elsewhere in the Borough and on all greenfield sites irrespective of their

location. • Optional Standards

a) Up to 20% to be provided to Building Regulation Standard M4(2) ‘Accessible and Adaptable Standards’; and



b) Up to 5% to be wheelchair accessible in accordance with Building Regulation Standard M4(3) ‘Wheelchair user dwelling’, where an identified need has been demonstrated.

• Housing for Older People a) 20% provision to accommodate the needs of older people, nature and type

of which, will be determined on a site by site basis.

8.60 In terms of the affordable housing provision, the DLP provides that affordable home ownership should be provided to the equivalent of 10% of the total number of homes within the development. The balance of affordable housing should be provided for either affordable rent or social rent. The exception to this is ‘build to rent’ schemes where all affordable housing should be rented. A lower proportion and/or different tenure split will only be permitted where it can clearly be demonstrated to the satisfaction of the Council that development would otherwise not be financially viable.

8.61 Policy DEV2 also establishes that residential development should provide a mix of different housing sizes and types that will be determined on a site by site basis.

8.62 Policy DEV4 relates to Economic Growth and Development and confirms that over the Plan Period provision will be made for a minimum of 362 hectares of land for B1, B2 & B8 uses to support both local and wider strategic employment needs. The Policy identifies that the Town Centre will provide the main location for new B1 Office development and that a number of other existing Employment Areas (including Omega) will continue to be the primary locations for industrial, warehousing, distribution development and other B Class Uses. Omega is also identified as a preferred location for major warehousing and distribution developments.

8.63 DEV4 provides that all allocated Employment Areas will be protected for employment use in order to maintain an adequate supply of employment land and that the Council will support development, redevelopment and changes of use proposals within existing Employment Areas, provided that the proposed use falls within Use Classes B1, B2, or B8, or is a sui-generis employment use. Proposals for office B1 (a) development will need to be justified through sequential testing and market appraisal to determine that the development could not be appropriately located on a more accessible central site within or close to the Town Centre in accordance with the Overall Spatial Strategy.

8.64 Development within existing employment areas for purposes other than those listed above will only be permitted where it can be demonstrated that:

a. the development relates to ancillary services which will support the employment area by making it more sustainable, viable and/or attractive or;

b. the site is no longer suitable or viable for employment uses;

c. the proposal will not undermine the viability of existing employment uses in close proximity to the site and;



d. the alternative use is in accordance with or does not undermine the Plan’s overall Spatial Strategy.

Where it has been demonstrated that an alternative use is acceptable, all opportunities must be explored to incorporate an element of employment floor space as part of the new development.

8.65 In determining the amount of employment land needed for the Plan period, the Council’s Economic Development Needs Assessment (2019) concluded that the preferred forecasting method for establishing need, is a projection forward of past take-up rates that considers both strategic and local needs, resulting in a need of 362 hectares of employment land up to 2037. Details of how the Council is proposing to meet this need is summarised in Table 3 below.

Table 3 – Employment Land Needs

Total Requirement 361.71 ha Existing Supply 83.91 ha Town Centre and Waterfront Masterplan additional 31.46 ha St Helens Omega Extension 31.20 ha Green Belt Requirement 215.14 ha

8.66 Table 3 identifies the provision of around 31 ha as part of an extension to the west of the established Omega employment development, located in the Borough of St Helens,. This has been identified and agreed through the Council’s Duty to Co-operate discussions with neighbouring authorities and it has been agreed this provision will count towards Warrington’s employment development needs.

8.67 Policy INF1 sets out the Council’s expectations for development in relation to Sustainable Travel and Transport. Under this policy the Council will, amongst other things, expect development to:

• be located in sustainable and accessible locations; • ensure priority is given to walking, cycling and public transport within its design, and

reducing the need to travel by private car; • provide infrastructure for the charging of plug-in and other ultra-low emission

vehicles; • mitigate its impact by delivering site specific infrastructure, which will support the

proposed development; and • ensure traffic generated by development is appropriate to the type and nature of the

routes available and that there is no adverse impact on the local community.

8.68 To meet and improve needs and safety of pedestrians and cyclists in new developments, will be expected to provide high quality cycling and walking networks that seamlessly integrate with existing networks.



8.69 Where appropriate development will be expected to secure improvements to public transport infrastructure and services in partnership with operators and delivery partners and be located in areas with easy access to high quality and regular public transport services.

8.70 Policy INF 1 also states that all major development proposals likely to generate significant movements should be accompanied by a Transport Assessment and a Travel Plan to address the following requirements:

a. That the proposed development will not result in an unacceptable impact on safety;

b. That trips generated by the development can adequately be served by Warrington’s Transport Network, including the Strategic Road Network;

c. Identify where there are any significant effects on Warrington’s Transport Network and/or the environment and ensure that appropriate mitigation measures including the required infrastructure are identified and in place before the development is brought into use;

d. Show how the Transport Assessment and associated Travel Plan have demonstrated how the proposed development will link into and enhance existing walking, cycling or public transport infrastructure;

e. Propose how measures to facilitate and encourage the use of sustainable travel alternatives (such as walking, cycling or public transport use), have been incorporated into development; and

f. Major developments will be required to monitor the effectiveness of the travel plan and the traffic generated by that development and share this data with the Local Authority, on an agreed annual basis.

8.71 Policy INF5 deals with the delivery of necessary infrastructure and requires development to provide or contribute towards the provision of the infrastructure needed to support it. This will be secured through planning obligations where development creates a requirement for additional or improved services and infrastructure and/or to address the off-site impact of development so as to satisfy other policy requirements. Obligations will determined on a site-by-site basis and will only be sought where these are:

a. necessary to make the development acceptable in planning terms;

b. directly related to the development; and

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

8.72 Policy DC1 sets out the Council’s aspirations and expectations for Warrington’s Places, of which “Sub-urban Warrington” is of relevance to this application. DC1 confirms that sub-urban Warrington will be the focus for infill and small scale development on brownfield and



greenfield sites within the existing urban boundary and that development in such areas will need to be in-keeping with the existing character of the area and be sustainable.

8.73 Policy DC5 deals with Open Space, Outdoor Sport and Recreation Provision. It establishes that residential development proposals of 40 dwellings or more will be required to contribute to the provision of open space and equipped play provision, where existing facilities have insufficient capacity to serve the increase in population arising from the development. Developments of 40 or more units will also be required to contribute to the provision of outdoor playing pitches and make provision for indoor sport and recreation facilities, where existing facilities have insufficient capacity to serve the increase in population arising from the development.

8.74 Policy ENV2 outlines the Council’s approach to Flood Risk and Water Management and in general seeks to ensure that development is focused towards areas at the lowest risk of flooding from all sources. In addition, sustainable water management measures must be integrated into developments to reduce flood risk and to avoid adverse impacts on water quality and quantity. New development should also not result in increased flood risk from any source, or cause other drainage problems, either on the development site or elsewhere.

8.75 The Council will only support development proposals where the risk of flooding has been fully assessed, understood and justified, with the implementation of appropriate mitigation measures where necessary. A site specific Flood Risk Assessment is required for:

a. development proposals of 1 hectare or greater in Flood Zone 1;

b. any development proposals within Flood Zone 1, which has critical drainage problems (as notified to the Local Planning Authority by the Environment Agency);

c. all proposals for new development (including minor development and change of use) in Flood Zones 2 & 3; and

d. development proposals or a change of use to a more vulnerable class that might be susceptible to other sources of flooding.

8.76 Policy ENV8 relates to Environmental and Amenity Protection and requires that development is located and designed so as not to result in a harmful or cumulative impact on the natural and built environment, and/or general levels of amenity. Of most relevance to the application proposals are the policies in relation to Noise Pollution which provide that developments which are noise sensitive end uses near to busy roads or noisy existing businesses will need to demonstrate that appropriate mitigation can be employed and implemented to prevent adverse impacts on health and quality of life for future site users. Equally, new developments should not place unreasonable restrictions on existing businesses or business activities through the restriction of activities, prohibition of works or otherwise.



9. PLANNING ASSESSMENT

Principle of Development

9.1 Taken on face value, the proposals do not fully accord with the overall aims Policy CS8 of the adopted Core Strategy, in that the primary element (residential) is not in itself an employment generating use. However, whilst Policy Cs8 identifies preferred land uses for the site, which include ancillary uses such as those contained within the previously approved mixed-use zone (which forms part of this application as previously explained), it does not specifically identify land uses that would be deemed unacceptable on the site. This was equally true of the previous residential proposals granted at Omega (2015/26469), which established the acceptability of alternative uses on the site.

5-year Land Supply

9.2 Notwithstanding this however, the primacy of the Core Strategy is diminished due to the fact that Warrington Borough Council cannot currently demonstrate a 5-year housing land supply, with the most recent calculations demonstrating only a 3.66 year supply (WYG North West 5 Year Housing Supply May 2018).

9.3 As outlined above Paragraph 11(d) of the Framework sets out how the presumption in favour of sustainable development should be applied where there are no relevant development plan policies or where the relevant policies are out of date. In situations where the Local Authority cannot demonstrate a 5-year housing land supply the relevant policies are considered out of date and national policies will instead take precedence.

9.4 The Framework states that planning permission should be granted unless (i) the application of its policies relating to the protection of areas and assets of particular importance provide a clear reason for refusing the development purposed or (ii) the adverse impacts would significantly and demonstrably outweigh the benefits when assessed against the policies as a whole.

9.5 The priority therefore in assessing the development proposals is to consider them against the provision of the Framework as set out below.

National Planning Policy Framework

9.6 To establish whether the proposals satisfy the policies within the Framework it is firstly important to examine whether the proposals satisfy the three over-arching objectives of sustainability identified as the basis for the Framework; economic, social and environmental.

Economic Objective

9.7 Sustainable development should be able to contribute towards building a strong, responsive and competitive economy, by ensuring that sufficient land of the right type is available in the



right places and at the right time to support growth and innovation and the provision of infrastructure.

9.8 The proposed development is expected to generate a wide range of direct and indirect economic impacts, both during the construction and in the longer term. These impacts will be spread over a wide area and should benefit the Borough as a whole. Table 4 below provides a summary of the likely economic impacts that the development will have:

Table 4 – Summary of Economic Impacts

Direct Impacts Indirect Impacts Wider Economy and Catalytic Effects

Capital Expenditure “Spin-off” from construction supplier and wages expenditure

Meeting the need for new residential accommodation

Construction Jobs Additional Council Tax receipts

Supporting mixed communities by providing affordable housing

Gross Value Added to local economy from construction jobs

New community services and infrastructure

Support existing and new communities through the provision of new services and infrastructure

Jobs creation within mixed-use zone

S106 Planning Contributions Provision of jobs in those sectors that would benefit most from additional opportunities

Additional retail expenditure to town and district centres

Greater access to affordable housing in Warrington

Promotion of Warrington as a more sustainable and attractive place to live

9.9 This range of economic effects aligns well with national, regional and local policy objectives. In particular, by increasing the supply of high quality, sustainable housing to meet projected increases in population, enhancing economic prosperity through creating employment opportunities for local people and by contributing towards a more attractive and accessible public realm.

Social Objective

9.10 Sustainable development should support strong, vibrant and healthy communities, by ensuring that a sufficient number and range of homes can be provided to meet the needs of present and future generations; and by fostering a well-designed and safe built environment,



with accessible services and open spaces that reflect current and future needs and support communities’ health, social and cultural well-being.

9.11 It is considered that the proposals, in the absence of a 5-year housing land supply, will make an important contribution in meeting Warrington’s strategic development needs and will ensure the overall sustainability of the Omega and Lingley Mere Strategic Proposal site, to the benefit of the existing and future residential and working populations of west Warrington.

9.12 It is considered that the new residential proposals will also make an important contribution to Warrington’s strategic needs through the delivery of new housing to meet the needs of present and future generations. By transferring the mixed-use element of the previous permission, this application will also provide access to new services and infrastructure in response to the community’s needs and support its health, social and cultural well-being. In particular, OWL are in discussion with the regional Community Health Partnership regarding the opportunity for new health facilities within the site, in response to an identified lack of provision within the area.

Environmental Objective

9.13 Sustainable development should contribute to protecting and enhancing our natural, built and historic environment through the effective use of land, helping to improve biodiversity, using natural resources prudently, minimising waste and pollution, and mitigating and adapting to climate change, including moving to a low carbon economy.

9.14 The need for EIA was determined through formal screening with WBC (27 August 2019), which confirmed that EIA was not required. However several topics that would ordinarily be considered as part of the EIA process have been covered by the reports submitted with this application as follows:

• Transport and Access; • Noise; • Ground Conditions and Contamination; • Flood Risk and Drainage; and • Ecology and Biodiversity.

Transport and Access

9.15 A Transport Assessment has been prepared by WSP Transport Consultants in support of the planning application, which provides details of the Travel Plan Framework, development Trip Generation and an initial qualification in regards to the impact of the development.

9.16 The Travel Plan Framework sets out a range of measures and incentives which would be adopted to promote access by sustainable travel modes. This Travel Plan Framework is flexible enough to respond to the variety of uses and users that could be associated with the proposed development. Development of the site will provide good opportunities to promote



sustainable travel patterns from the outset. The proposed development will provide the opportunity for comprehensive transport links for bus, rail, walking and cycling facilities.

9.17 The development will incorporate ‘Manual for Streets’ principles to ensure that travel by the most sustainable modes is maximised with measures put in place to reduce the necessity for private car trips. The development of individual parcels will be supported by Residential Travel Plans prepared by the relevant housebuilder and it is expected that the Framework which is included within this TA, will form the basis of those future Travel Plan.

9.18 The Transport Assessment has considered the accessibility of the site by all modes of transport including walking, cycling, public transport and by car. The accessibility by all modes is considered to be good. The Transport Assessment has demonstrated that there are high quality comprehensive motorway network links surrounding the site providing a range of direct connections to a number of major cities throughout the UK

9.19 The development is located within walking distance of a number of shops and facilities within Great Sankey, together with the local facilities proposed on the Omega site as part of the Zone 3-6 application. The site is also located adjacent to a number of off road cycle routes and the nature of the surrounding area is also conducive to cyclists by virtue of local topography and the residential nature of the surrounding roads. Furthermore, the development proposals will seek to encourage travel by sustainable modes by maximising the permeability of the development and connections to the adjacent pedestrian and cycle network.

9.20 After considering the access requirements for the site, the TA has estimated the vehicular traffic flows associated with the development for assessment and the development impact methodology has been agreed in principle with both Warrington Borough Council and Highways England.

9.21 In terms of Trip Generation the scope of this study has been discussed with WBC and Highways England, through a scoping exercise and subsequent scoping note submissions. The agreed trip rates used in the Omega Zones 3-6 TA addendum have been applied to the proposed 617 unit (300-unit net) residential development. The trip rates and resultant trips for the Phases 4-7 residential development will generate a total of 225 and 241 two-way vehicle trips in the AM and PM peak hours. The trip generation rates for the B1 land use associated with Zones 1 & 2, which the proposals will replace, would generate a total of 982 and 793 two-way vehicle trips in the AM and PM peak hours, respectively. It is clear therefore that there is a significant reduction in trips associated with the change from B1 to residential.

9.22 The Framework (NPPF) states that “Development should only be prevented or refused on transport grounds where the residual cumulative impacts on development are severe.”

9.23 Using the trip rate analysis detailed in the TA, the impact of the development has been identified at each of the highway junctions on the local study network. The TA demonstrates that the majority of the junctions assessed are operating within capacity following the addition of traffic generated by the proposed development.



9.24 Mitigation measures have been developed for implementation at the following junction to diminish the identified impact of the proposed development:

• M62 Junction 8 – Westbound Off-Slip and Circulatory Carriageway

9.25 The proposed mitigation measures at this junction can be delivered within the existing highway boundary, within land under the control of the Highway Authority and only requires changes to road markings and lane allocation.

9.26 It is worth noting that the modelling, undertaken for the TA, cannot demonstrate the current operational efficiencies achieved through the MOVA control system previously installed at Junction 8 (through Omega financial contributions), which should improve journey time reliability as well as aid in queue management. If the modelling was able to do so, we would expect the junction results to be better than what is shown within the modelling as part of this assessment.

9.27 Analysis of the proposed site access junction on Burtonwood Road and the Burtonwood Road / Westbrook Way / Whittle Avenue roundabout, shows they operate with minimal levels of delay in both the AM and PM peak hours. The layout of the new signalised junction off Burtonwood Road has been designed not only to minimise the levels of delay for future traffic on Burtonwood Road and adjacent streets, but also to promote safe access and egress between the Omega site and the rest of Warrington.

9.28 The proposed development therefore presents a significant opportunity to provide a residential led mixed-use scheme with the potential for employment, leisure, education, retail, community and residential uses all contained within the Omega site. This development will provide the opportunity to travel by sustainable modes (walking, cycling and public transport) within and out with the site and will therefore reduce the need to travel by private car.

Noise

9.29 A Noise Assessment (WSP) has been carried out in support of the application, which establishes that the primary noise source at the application site is road traffic noise, including from Burtonwood Road to the east, Whittle Avenue to the south-east and more distant contributions from Skyline Drive and the M62 to the north.

9.30 With regards to potential noise from the proposed B2/B8 development to the north, this is appropriately controlled through conditions 25 and 26 of the outline planning application 2017/30371. These conditions require that as part of the reserved matters application for the B2/B8 development appropriate noise mitigation measures are delivered, sufficient to facilitate residential development to the south within the Omega Warrington Development site.



9.31 To address the requirements of conditions 25 and 26, best practice acoustic design measures have been employed in the development subject to reserved matters consent 2019/35646 (21 Nov 2019) for the construction of three buildings for general industrial (Use Class B2) and/or storage/distribution (Use Class B8), pursuant to outline planning permission 2017/30371. These measures have included locating all service yards at distance, and fully screened from, the residential application site, with the proposed B2/B8 units themselves located in between thereby ensuring substantial acoustic attenuation. All service roads are also located north of the B2/B8 units such that these too are also substantially removed from the residential application site and benefit from screened due to the proposed units.

9.32 WSP provided a Noise Assessment Report (Ref. 70063279/001) as part of the B2/B8 reserved matters application (2019/35646) and for the discharge of conditions 25 and 26 of planning application 2017/30371. That assessment, which has now been through the discharge of Conditions 25 & 26 (08 November 2019), details, in full, the best practice noise mitigation measures that have been incorporated into the B2/B8 scheme layout design. It was found that these measures will ensure substantial attenuation of noise from this facility. At the residential application site to the south, noise levels from the B2/B8 scheme were found to be sufficiently low that appropriate internal and external criteria are met, or can be easily achieved thorough an appropriate building façade/ventilation strategy. These accepted findings have been further confirmed within the Noise Assessment Report submitted with this application.

9.32 To inform the assessment of road traffic noise levels, a detailed road traffic noise modelling exercise has been undertaken. The noise model has been calibrated to accurately predict the road traffic noise levels that have been measured adjacent to Burtonwood Road during baseline noise surveys.

9.33 In accordance with national noise policy, appropriate noise assessment criteria have been selected for the development drawing on the content of BS 8233: 2014: Guidance on sound insulation and noise reduction for buildings. The selected assessment criteria have been identified to be consistent with those applied to other parts of the Omega Warrington Development which have previously been brought forward for residential use.

9.34 It has been identified that with due consideration to future scheme layout design, and the use of appropriately specified building fabric products (glazing and ventilation), the on-site noise levels can be appropriately controlled to ensure compliance with the adopted assessment criteria.

9.35 As appropriate at the outline planning stage, the approach to the mitigation assessment has been to demonstrate principle. It has been identified that a commensurate level of protection can be afforded to future residents and therefore that noise need not be considered a determining factor in granting planning permission for the Proposed Development.



Ground Conditions and Contamination

9.36 A number of current and historical potential sources of contamination have been identified, such as the current contractor storage yard, historical site use as an airfield (such as fuel storage, aircraft maintenance and repair, and transformers) and former infilled ponds and drainage features. Additionally, previous site investigation conducted onsite have identified high vapour risk in the areas of the former POL tanks in the east and current substation, in addition to asbestos fibres and ACM in Made Ground.

9.37 The ground model has identified the majority of the site is likely to be underlain by Made Ground (recorded in previous investigations to a maximum depth of 3.50m bgl). Locally deeper Made Ground may be present associated with building footprints, infilled ponds and drainage ditches, and infilled land in the east (associated with the former mineral site). Obstructions associated with the former development are also anticipated to be present.

9.38 Beneath the Made Ground, the site is likely to be underlain by low permeability cohesive soils, which would likely limit mobile contaminant laterally and vertically to the Principal Aquifer which is present in the bedrock. The sandstone bedrock is expected at a depth between 9.50m and 11.45m bgl.

9.39 Whilst previous ground investigations have generally indicated the absence of significant contamination, the current and historical use of the site give rise to a number of potentially complete pollutant linkages that need further assessment.

9.40 Further targeted Phase II investigation may be necessary to determine the presence and extent of potential soil and groundwater contamination onsite. Areas identified as being historically of potential concern with regards to ground contamination include current contractor yard with chemical storage, current electricity substation, former POL tanks, former transformers, location of historical spills and former areas of infilled land (ponds, drainage channels and mineral sites).

9.41 If contamination is found to be present, a remediation strategy would be required to identify mitigation measures appropriate to the proposed site development and to ensure protection to the surrounding environment.

Drainage Strategy

9.42 For details of the outline foul water drainage proposals for the site reference should be made to the ‘Zone 1 and 2 On Plot Works Foul Water Drainage Layout’ drawing (0355-Z1-Z2-D-202), which is included in Appendix E of the WSP Drainage Strategy Report submitted with this application.

9.43 Planning permission 2019/35646 has recently been granted (21/11/2019) for a B2/B8 logistics warehouse development to north of the application site, which forms part of the overall Omega development. Foul drainage from this approved development is to be pumped to the



northern boundary of the site and then drained by gravity to a new pumping station situated within the Phase 4-7 application site. The pumping station is subject to full planning permission (2019/35649) and will be offered to UU for adoption in due course.

9.44 Foul water generated from Phases 4 – 7 will also discharge to this foul pumping station. The main foul drainage systems associated with the Phases 4 – 7 residential developments will also be offered to UU for adoption. An adoptable rising main will then pump the foul flow across Burtonwood Road, and discharge to the existing public foul sewer at existing UU manhole Ref 2204.

9.45 The foul drainage, connecting future plots to the new foul water sewer, will be designed and constructed in accordance with Sewers for Adoption 6th Edition.

9.46 Surface water generated from the site will be discharged at a greenfield runoff rate of 5.08 l/s/ha to the unnamed watercourse (and ultimately North Park Brook) to the south of the site.

9.47 SuDS are to be provided in the form of detention basins, which will improve water quality and provide a means of surface water storage.

9.48 The detention basins will be designed to ensure that surface water runoff for storm events up to and including the 100 year storm plus a 40% allowance for climate change, can be contained within the site safely without causing a risk of flooding to property.

Flood Risk

9.49 The Environment Agency’s Flood Map for Planning indicates that the site is wholly located in EA Flood Zone 1 and therefore has a Low Risk of flooding from rivers or the sea.

9.50 The existing site has some susceptibility to surface water flooding, with localised areas being assessed to be at medium to high risk.

9.51 Finished external site levels will be engineered to provide positive drainage to a new drainage system to prevent ponding. The accumulation of standing water is therefore unlikely to occur, and the risk of surface water flooding will therefore be Low.

9.52 The risk of flooding from other sources including groundwater, sewer, canal and reservoir flooding has been assessed and is considered to be Low.

9.53 This Flood Risk Assessment has concluded that the development is appropriate and can be occupied safely subject to implementation of the flood risk management / mitigation measures identified.

Landscape Strategy

9.54 The proposed landscape strategy outlined on landscape drawing POE 221-001 builds upon the original masterplan strategy for the wider Omega South, and on all previously submitted detailed proposals for the various parcels of development delivered thus far.



9.55 It is important to recognise the above strategy as part of these proposals, as taken in total, it creates significant boundary landscape treatments to the northern, western and southern boundaries of the proposed development. As before, the design process has been informed by ecological evidence and landscape survey and together with the wider masterplanning strategy, has been used to underpin the landscape design elements of the current proposal.

9.56 The proposals therefore focus on the remaining structural landscape boundary, that which is extant to Burtonwood Road.

9.57 It takes its primary reference from previously submitted proposals for recently approved B2/B8 logistics development (2019/35646) to the north, and continues a corridor of proposed structural landscape, which follows the eastern and south eastern boundaries before linking to the existing and emerging structural landscape of Whittle Avenue and Mary Anne Beck.

9.58 Opposite Kingswood Avenue, the style and character of soft landscape treatments change to reflect more closely the “gateway” landscape treatments which exist at the entrance to this estate. However elsewhere, landscape treatments take a more natural approach, with the introduction of native hedge mixes and woodland edge plantations, interplanted with feathered and advanced nursery stock trees to offer early structure to this important boundary.

9.59 At the junction of Burtonwood Road and Whittle Avenue, a proposed attenuation basin not only serves an engineering function but offers an opportunity to introduce wetland and wild flora landscapes creating in time, valuable ecological habitat which in turn links with the establishing wildlife corridor for Great Crested Newts extending from Whittle Avenue, along Mary Anne Beck, to the Greenheart and Orion Boulevard.

9.60 Although the landscape and ecological works now proposed as part of this current application are somewhat modest in overall scope, they bring forward some of the strategic and physical landscape interventions required to deliver the overall masterplans principal aims both in ecological and landscape terms.

9.61 The proposed new Burtonwood Road landscape corridor of hedgerow and native woodland edge is therefore significant not only in its potential value for screening and habitat corridor, but perhaps more so in the aggregated benefit it will bring over time when combined with neighbouring plots and of course the Greenheart, whose influence will ultimately spread throughout the overall development masterplan for Omega South.

Ecology and Biodiversity

9.62 An Ecological Assessment (The Ecology Practice) has been undertaken and is submitted in support of this application. The Asessment is based upon desk-top date collected during the period 2017-2019 and the details of relevant supporting field survey work undertaken in 2019. The Statement quantifies the ecological/biodiversity wealth of the site and provides an appropriate mitigation strategy for the development proposals that is set within the context



of the wider ecological mitigation and enhancement framework that has bene implemented across Omega South through previous planning permissions.

9.63 In terms of the methodology a desk based data trawl was undertaken to determine the known ecological features on and surrounding the Site and to identify the presence of statutory designated sites of nature conservation value within 5km of the site, including SSSI Impact Zones, and the extent of habitats of Principal Importance within 2km.

9.64 Where surveys were out of season/not possible, previous surveys (where available) and the data trawl were used to make certain predictions based on trends, and if further surveys were required at the appropriate time of year then this was undertaken.

9.65 A preliminary ecological appraisal was carried out on 3rd September 2019 and as a result the following items were scoped out due to lack of suitable habitat:

i) The Site is unsuitable for reptiles, dormouse and notable plant species.

9.66 A habitat survey of the Site was also carried out on 3rd September 2019 which involved identifying and mapping the dominant habitat types following the Phase 1 habitat survey methodology recommended by Natural England. Dominant plant species were noted (including aliens), as were any uncommon species or species indicative of habitat types and attention was paid to habitats and features that may provide opportunities for protected species to be present at other times of year in the context of the proposals and therefore further survey is recommended where appropriate. As part of this work the site was surveyed for the presence of Badgers, Bats, Breeding Birds, Great Crested Newts and Water Vole.

9.67 The findings of the Statement can be summarised as follows:

• the nearest statutory site of importance for wildlife is the Colliers Moss Local Nature Reserve more than 3.5km to the northwest of the applicant site;

• there are no Tree Preservation Order’s (TPO’s) within or near the site boundary; • the site lies approximately 15 km from the nearest airport, Liverpool John Lennon

Airport and is therefore outside the range (13 km) within which the Civil Aviation Authority would expect ecological prevention measures to be carried out;

• the only non-statutory site found within 2km of the site is the local wildlife site comprised of the mature woodland of Mary Ann Plantation;

• No habitat designated as Priority Habitat is within the applicant site, nor are any bordering or adjacent to it.

9.68 As a result the ecological wealth of the site is considered to be low and on the basis that OWL have already paid a biodiversity-offsetting financial contribution of £300,000 towards breeding bird conservation in Warrington Borough to compensate for the overall development of Omega South any recommendations and mitigation required on the application site relate to potential impacts associated with construction activities associated with the development of the site.



Conclusion – Principle of Development

9.69 The Framework provides that where the policies which are most important for determining the application are out-of-date, as is the case when there is no 5-year housing land supply, then planning permission should be granted unless:

i. the application of policies in the Framework that protect areas or assets of particular importance provides a clear reason for refusing the development proposed; or

ii. any adverse impacts of doing so would significantly and demonstrably outweigh the benefits, when assessed against the policies in this Framework taken as a whole.

In conclusion we consider that the proposals satisfy the three overarching objectives of the Framework in so far as the development will deliver clear economic and social benefits and there are no significant environmental risks or impacts arising from the development that cannot be adequately mitigated for. As such it is considered that the proposals satisfy the presumption in favour of sustainable development established by the Framework and therefore that there are no policy considerations that should preclude the Local Planning Authority from approving this planning application.

Other Material Considerations

9.70 Notwithstanding the fact that, due to the lack of a 5-year housing land supply, national policy takes precedence over local policies it is worth appraising the site relative to those policies contained within the adopted Core Strategy and, to a lesser extent the emerging Draft Local Plan.

Sustainable Development

9.71 The application site represents a highly sustainable location for new housing development in so far as it is a brownfield site, within the settlement boundary and is well located in terms of access to sustainable modes of transport and a comprehensive network of pedestrian and cycle facilities. The site is also within walking distance of existing services in the surrounding area and will be well served by the mixed-use zone that forms part of this application. The proposals also offer good opportunities for working and living, with strong links to the commercial elements of Omega, Lingley Mere and Gemini, in close proximity, further reducing the need to travel.

9.72 The proposals therefore accord with the Core Strategy’s overall aim of delivering sustainable development (Policy CS1) and the and any potential adverse impacts of granting permission would not significantly or demonstrably outweigh the benefits of the development.

9.73 The proposals also accord with Policy CS2 by locating the development on previously developed land and in the town's suburbs.



9.74 Likewise, the proposals align with the aims of the emerging DLP Policy DEV1, which seeks to guide the delivery of new to sites within the existing main urban area of Warrington.

Alternative Uses

9.75 The supporting text to Policy CS8 (Para. 6.38) confirms that whilst employment uses are the “primary” objective for Omega, the employment land supply target of 277 hectares is not reliant on Omega coming forward in its entirety for such uses. This provides a clear indication that there is capacity at Omega for alternative uses to be brought forward without any adverse impact on the employment generating element of the site or more generally on the overall employment land supply of the Borough. In the absence of any prohibitions in the Policy and in light of the sustainable nature of the site, alternative uses could include residential development, subject to the proposals according with other policies within the development plan.

9.76 Policy CS8 does allow for alternative uses that would contribute towards the creation of a sustainable business community, which includes the release of land for housing providing such as release would not compromise the Council’s Overall Spatial Strategy with regards the quantity and distribution of development, as set out in Policy CS2.

9.77 The proposals are considered to comply with the general objectives of Policy CS8 because, whilst the proposals would result in the loss of employment uses the Plan’s overall employment land target can be met without relying on the entirety of the Omega site. This clearly gives scope to consider how the strategic location and other employment sites may be able to accommodate supporting land uses to help to support viability, enhance sustainability and maximise the benefits of the development as a whole. Residential is identified as one such supporting land use and as demonstrated above, the Site’s location within the town’s suburbs is consistent with the aims of the Council’s Overall Spatial Strategy with regards the quantity and distribution of development, as set out in Policy CS2.

9.77 The emerging DLP does not contain an Omega specific policy which replicates Policy CS8, however the site is identified as an existing Employment Area under Policy DEV4 and the site does contribute to the existing Employment Land Supply that forms part of the overall requirement. Whilst the proposals would result in the loss of existing Employment Land, the employment allocation only affects part of the application site, with the remainder already identified as white land by virtue of the existing residential OPP. In reality the actual loss will be significantly less than the total application site area of 23.8 ha and in general terms will not have a significant detrimental impact upon the overall Employment Land Supply requirement identified in the DLP.

9.78 This is particularly the case because the area of the Omega site that would be lost (in terms employment land) as a result of these proposals benefits from permission for B1 Office development. Whilst DEV4 does provide that the identified Employment Areas are capable of accommodating a range of employment (Class B) uses, the clear preference is for these



areas to form the primary locations for industrial, warehousing, distribution development. With Omega specifically identified as a preferred location for major warehousing and distribution developments.

9.79 DEV4 is also explicit in its objective that any new B1 Office development should be located within the Town Centre, to the extent that even new B1 proposals located with the existing Employment Areas will need to justify, with sequential assessment work, why they could not be located within the Town Centre or other more central locations. The DLP therefore establishes a clear policy shift away from out-of-town B1 development and therefore the loss of potential B1 employment land at Omega would appear to be consistent with the Council’s objectives in terms of B1 development and the regeneration of the Town Centre, which as previously noted lacks the diversity required to create a strong and viable sub-regional centre.

9.80 The loss of part of the existing employment land allocation at Omega and its development for alternative (residential) uses also has an impact on another key part of the total Employment Land Needs requirement, in so far as this change in proposed use will help to facilitate the development of Omega West in St Helens (as outlined in Chapter 3). This forms another key part of the overall land supply requirement. The potential change from B1 to residential will create capacity within the local highway network, due to a significant reduction in vehicle trips during peak periods. This will mean that the Omega Extension can be delivered without the need for further significant off-site infrastructure works that could, when combined with the on-site constraints associated with the site, have rendered the proposed extension unviable.

9.81 However, alternative uses are only be permitted where the site is no longer suitable or viable for employment uses; the proposal will not undermine the viability of existing employment uses in close proximity to the site and where the alternative use is in accordance with or does not undermine the Plan’s overall Spatial Strategy.

9.82 As outlined above since 2007 the Omega site has gained successive planning consents for various Zones within the Omega development site, both north and south of the M62 motorway. The original planning consent, gained in 2007 for Phases 1 and 2, comprised a significant amount of B1 office development (1.5m sq.ft) that was due to be the first phase of a much larger (circa 3.5m sq.ft) B1 office park. However, to date despite being actively marketed in the intervening period, no B1 demand has been forthcoming on the Omega site.

9.83 As outlined in Chapter 4, despite active marketing and discussions with multiple occupiers, the B1 element of the original Masterplan has never been realised, providing clear evidence that this type of use, in this location is no longer viable. The policy shift towards B1 in the Town Centre also suggests that out-of-town B1 office development is no longer considered suitable by the Council.

9.84 The other policies of most relevance to the Principle of Development are the adopted Core Strategy Policies SN 1 and SN 2 and emerging DLP Policies DEV1 & DEV2, as outlined in the policy section above.



9.85 Residential development on Omega would satisfy the provisions of SN1 and DEV1 in so far the proposals would present an opportunity to widen the type, size and affordability of available housing, in a sustainable location which is well served by existing infrastructure; and will to help create the density of population to support new local shops and services associated with the approved mixed-use zone at Omega and more generally within the surrounding area.

9.86 The proposals will also help to redress constraints on the 5-year housing land supply. The benefit of the Omega site is that it is a brownfield site, situated within the main urban area, which is free of development constraints making it a highly effective and deliverable housing site, in a time where pressures on housing delivery across the Country are extremely acute.

Affordable Housing

9.87 Given the strategic importance of Omega as a development site, its overall viability is paramount to any proposals that are brought forward on the site, be it for employment generating or alternative uses. Policy SN2 identifies a Borough wide standard for affordable housing provision of 30%.

9.88 However, the policy also accepts that a lower percentage may be acceptable through negotiation and where applicants are able to demonstrate, to the satisfaction of the Council, that development would otherwise not be financially viable, and affordable housing provision is nevertheless being maximised. A lower provision of 20% (to be delivered in the form of Starter Homes) was approved as part of the previous residential OPP on Omega (2015/26469) and it has been agreed that this 20% provision will be maintained for the 317 units being transferred from that previous permission.

9.89 For the 300 new residential units a 30% on-site provision is proposed, comprising 50% social rent and 50% intermediate housing is proposed which is consistent with Policy SN2 and reflects the national policy shift away from starter homes.

9.90 Emerging DLP Policy DEV2 would deliver an amendment to the WBC affordable housing policy, with a split in the requirement between Inner Warrington (20%) and elsewhere in the Borough (30%). For sites in locations such as Omega the requirement remains at 30% and the expectation is that these will be either affordable home ownership, affordable rent or social rent.

9.91 The proposals are therefore considered to comply with the requirements of Policy SN 2 and emerging Policy DEV2



10. SUMMARY & CONCLUSIONS

10.1 This application, submitted by Omega Warrington Ltd, seeks outline planning permission for:


10.2 The application proposals are the result of the decision taken by Omega Warrington Ltd, following discussions with Warrington Borough Council, to re-work the Omega South Masterplan. In Masterplanning terms the proposals remove the previously approved B1 Office element, replacing it with additional residential development to compliment the already approved residential zones to the south. This decision has been taken in response to the long-term lack of demand for out-of-town B1 Office space, as demonstrated in this report, which has left a significant part of the Omega site undeveloped since the original grant of outline planning permission in 2007. The change to residential also reflects the strong demand for residential lead development in this area, as demonstrated by the successful disposal of other phases of residential land on Omega and Lingley Mere.

10.3 In addition to the B1 permission, which affects the northern part of the application site, the land subject to this application also already benefits from a partially implemented outline residential planning permission. The intention of this new OPP application is to bring the unimplemented parts of these two OPP’s together to form one consolidated OPP that will cover the final phases of Omega South. The site is being referred to as Residential Phases 4-7, following on from Phases 1-3 which have come forward within Zone 6 to the south of the application site.

10.4 It is considered that the proposed development does not fully accord with the adopted Development Plan allocation for this site. However, due to the fact that the Council do not have a 5-year housing land supply for the Borough it is considered that the policies of the development plan are out-of-date and therefore policies and guidance in the Framework take precedence.

10.5 In this regard the report has demonstrated that the proposed development satisfies the three over-arching objectives of sustainability identified as the basis for the Framework, as follows:

Economic Objective:

10.6 The proposed development will generate a wide range of direct and indirect economic impacts, both during the construction and in the longer term that will be spread over a wide area and should benefit the Borough as a whole. These include:

• Capital Expenditure; • Job creation during construction and also once the mixed-use zone is operational;



• Gross Value Added to local economy from construction jobs and additional retail expenditure to town and district centres as a result of new residents; and

• S106 Planning Obligations and Financial Contributions.

Social Objective:

10.7 The proposals will provide for the continued development of a strong, vibrant and healthy community and will make an important contribution in meeting Warrington’s strategic housing needs whilst safeguarding the overall sustainability of the Omega and Lingley Mere Strategic Proposal site. Social benefits to be realised from the development will include:

• The delivery of new housing to meet the needs of present and future generations; • Greater access to a range and choice of affordable housing within the Borough; • Provision of high-quality pedestrian and cycle routes through the site which will

connect to the existing network developed as part of the Omega development and the wider Warrington network, promoting opportunities for sustainable travel options;

• Access to new services and infrastructure in the form of the mixed-use zone, to help address the community’s needs and support its health, social and cultural well-being; and

• The opportunity for new health facilities within the site, in response to an identified lack of provision within the area.

Environmental Objective:

10.8 Whilst the development of the site will not be without some environmental impacts, the proposals include mitigation measures that will lead to a reduction in the significance of those impacts and in certain circumstances, result in net benefits to environmental conditions.

10.9 In particular, through adherence and implementation of an ecological mitigation scheme,

involving landscaping enhancements integrated with the ecological habitat design, good practice construction methodologies, and the implementation of a sustainable urban drainage system, the proposed development will have a long term positive impact on local ecological conditions.

10.10 The report also confirms that the impact on the local highway network can be satisfactorily

mitigated for and that a commensurate level of protection can be afforded to future residents and therefore that noise need not be considered a determining factor in granting planning permission for the Proposed Development.

10.11 The development will deliver clear economic and social benefits and there are no significant

environmental risks or impacts arising from the development that cannot be adequately mitigated for. As such it is considered that the proposals satisfy the presumption in favour of sustainable development established by the Framework and therefore that there are no policy



considerations that should preclude the Local Planning Authority from approving this planning application.

Other Material Considerations 10.12 Notwithstanding this, it is acknowledged that other factors and material considerations need

to be considered when balancing this application. In this regard the main reports submitted along with this application conclude:

• that ecological interests can be appropriately mitigated; • that the development will not create a greater risk of flooding elsewhere; • that noise mitigation will ensure that acceptable noise levels are achieved; • that the proposals will tie in with the establish landscape framework on the site; and • that there is adequate highways capacity already provided to ensure that the

development will not affect the free and safe flow of traffic.

10.13 The development will herald the final stage in the redevelopment of Omega South and will realise the long standing ambition of Omega Warrington Limited, in partnership with Warrington Borough Council, to bring the Omega site forward as a focus for economic, social and environmental regeneration within the area.

10.14 The application site represents a highly sustainable location for new housing development in so far as it is a brownfield site, within the settlement boundary which is well located in terms of access to sustainable modes of transport and a comprehensive network of pedestrian and cycle facilities. The site is also within walking distance of existing services and will be well served by the proposed local facilities that form part of this application. The proposals also offer good opportunities for working and living, with strong links to the commercial elements of Omega, Lingley Mere and other employment centres in the local area, further reducing the need to travel.

10.15 In addition, the loss of B1 in this out-of-town location (which can be justified through marketing evidence provided in this report) would appear to be entirely consistent with the Spatial Strategy for Warrington, as set out in the Draft Local Plan. The Draft Local Plan seeks to direct any new B1 development to the Town Centre and even in the identified existing Employment Areas (such as Omega) the preference is for large-scale B2/B8 warehousing. Proposals for B1 in the Employment Areas will need to demonstrate, through Sequential Assessment, why the proposals could not be accommodate in the Town Centre or other more central locations.

Conclusion

10.16 Consequently, whilst the proposals may not fully accord with the Development Plan, the policies within the Development Plan are out-of-date. This Planning Statement has demonstrated that the proposals comply with the provisions of the Framework and represent



sustainable development, for which there is a presumption in favour and that any potential adverse impacts of granting permission would not significantly or demonstrably outweigh the benefits of the development. It is considered therefore that the proposals should be granted without undue delay.

Planning Statement 02122019

Documents

Transcript of Planning Statement 02122019