Agenda item
Applications Arising
- Meeting of Planning and Orders Committee, Council Offices, Llangefni and virtually via Zoom, Planning and Orders Committee, Wednesday, 6th November, 2024 1.00 pm (Item 7.)
- View the declarations of interest for item 7.
7.1 – FPL/2024/76 – Land North of Y Garnedd, Llanfairpwll
7.2 – Land to the North-East of Gwel y Llan, Llandegfan
Minutes:
The application was presented to the Planning and Orders Committee at the request of Local Members. At its meeting held on 2 October 2024 the Committee determined to undertake a site visit which subsequently took place on 23 October 2024.
Having declared a personal and prejudicial interest in this application, Councillor Glyn Haynes left the meeting during the discussion and voting thereon. The item was chaired by Councillor Neville Evans, Vice-Chair for the meeting.
Public Speaker
Sioned Edwards, Cadnant Planning spoke in support of the application saying that the proposed housing would be developed by DU Construction on behalf of Clwyd Alyn Housing Association who would own the properties. All 27 dwellings would be affordable and would be available for rent on an affordable basis. The dwellings would not be available for sale but would remain in the ownership of Clwyd Alyn Housing Association. The application site is outside but immediately adjacent to the development boundary of Llanfairpwll and as such is assessed as an exception site under Policy TAI 16 which supports applications for affordable housing outside but adjacent to settlement boundaries providing they also meet a local need for housing that cannot otherwise be met on sites within the boundary within a reasonable timescale. Over the lifespan of the LDP from 2011 to this day, two affordable houses have been developed in Llanfairpwll and currently there is no planning permission for any further affordable housing in the village. Housing need figures for Llanfairpwll show a significant need for housing to which the lack of affordable housing provision over the past 13 years as well as rising house prices and small increase in wages have contributed. The need for affordable housing especially two and three bedroom units is increasing year on year as attested to by the Council’s Housing Service’s housing data and the Housing Need Assessment carried out by the Rural Housing Facilitator in 2021. The proposal and the mix of housing units which it offers would make a significant contribution towards meeting this housing need.
Ms Edwards referred to traffic considerations confirming that extensive discussions have been held with the Highways Department prior to and during the engagement period with access through the Garnedd estate having initially been discussed in 2020. There are no objections in principle to the proposal from a highway and traffic perspective. Llanfairpwll is an easily accessible location as regards public transport and the application site is within walking distance of local facilities. The Traffic Report submitted with the application confirms that no accidents have been recorded in the site’s catchment in the last five years and there would be no substantial increase in traffic movements as a result of the proposal and therefore no significant impact on the local road network is expected. Due to the proposal’s proximity to the A55, the application includes measures to mitigate noise impacts from the expressway. This has been assessed by the Council’s Public Protection Officer and by Welsh Government’s Highways Department with no objections raised on this basis. The proposal also includes a contribution of approximately £13k towards open space and children’s play area.
Ms Edwards concluded by saying that there is a critical need for affordable housing across Wales including Anglesey especially for local people and young people. Welsh Government has set a target for developing 20,000 affordable houses in Wales over the Senedd period from 2021 to 2026. Clwyd Alyn Housing Association is working hard to contribute towards meeting this target and there is a responsibility on everyone in the chamber to develop affordable housing and address local people’s housing needs. The proposal would be a step forward in providing affordable housing in Llanfairpwll.
The Planning Development Manager reported that the proposed development consists of 4 one bedroom flats, 14 two bedroom houses, 6 three bedroom houses and 3 four bedroom houses. A previous application in March 2023 was refused due to objections by the Highways Authority and SAB to the proposed method of surface water disposal from the site via a connection to the Local Authority Highway system. This issue has since been resolved with the current scheme proposing that surface water be discharged into a watercourse to the southeast of the site by the Maes Eilian football ground.
The application site is outside but immediately adjacent to the development boundary of Llanfairpwll and can be considered as an exception site under Policy TAI 16 which supports proposals for 100% affordable housing on such sites where it can be demonstrated that there is a proven need for affordable housing that cannot be delivered within a reasonable timescale on a market site inside the development boundary. The Council’s Housing Services have confirmed that there is a need for affordable housing in the locality with 17 persons/families on the social housing register who have specified Llanfairpwll as their preferred area of choice, 23 persons/families on the Tai Teg register for an affordable home in Llanfairpwll and a further 128 persons/families who have noted Llanfairpwll as an alternative choice for an affordable home. The indicative supply level for Llanfairpwll over the Plan period is 82 units and during the period 2011 to 2023 a total of 65 units have been completed in Llanfairpwll with 10 units in the windfall land bank. Although the proposed development would exceed the indicative provision for Llanfairpwll there is a shortfall of 291 units in Local Service Centres across the Island meaning that approval of this site can be supported by the expected provision within the Local Service Centres category. Additionally, as regards density the development at 30 units per hectare is in line with Policy PCYFF 2 in relation to the effective use of land.
The Planning Development Manager referred to highways considerations and confirmed that the proposed parking provision of 57 spaces including visitor parking conforms to parking standards. The access via Y Garnedd state is considered sufficient to allow two cars to pass safely without the need for a priority system. No traffic impact assessment has been submitted with this or the previous application because the level of traffic generated is well below the threshold required for undertaking such an assessment. A transport report accompanying the application shows that the proposal would create 14 additional traffic movements in and out of the estate during peak morning and afternoon hours which is equivalent to one additional traffic movement each 4 to 5 minutes at peak times. The Highways Department is satisfied with the information submitted and has raised no objections to the proposal subject to conditions. As the application site is close to the A55 expressway, an Air Quality Assessment and Noise Impact Assessment have been submitted with the application and those have been reviewed by the Environmental Health Department which has raised no concerns subject to the implementation of the mitigation measures referred to in the report including acoustic fence and bund, upgraded glazing and alternative ventilation. The proposal is considered acceptable as regards design, layout, scale and landscaping and will not impact on the privacy and amenities of nearby residential occupiers as there is sufficient distance between the proposed dwellings and the existing dwellings at Y Garnedd. The developer will also be required to submit a Traffic Management Plan to demonstrate how impacts during the construction period will be managed and mitigated.
The application site boundary is partially within zone C2 as per the Development Advice Maps accompanying TAN 15 – Development and Flood Risk and is also shown to partially lie within zones 2 and 3 according to the Flood Map for Planning. Natural Resources Wales note that the only element of the site/proposal within the identified flood zone is that of the surface water drainage pipe and they are satisfied that the Flood Consequence Assessment as submitted is sufficient to demonstrate that the proposal is not at risk from the adjacent river Rhyd Eilian.
As regards other matters, the Education Department has confirmed no contribution towards education facilities is required there being sufficient capacity within the local primary and secondary schools. As the proposal consists of 27 dwellings Policy ISA 5 regarding provision of open spaces in new housing development applies. As such and following assessment, the developer will be required to pay a total commuted sum of £12,902.19 towards the provision of outdoor sports facilities and children’s equipped play space. The application site is partly classified as Grade 2 agricultural quality. However, there is an overriding need for the development to provide affordable housing and as the area of land concerned is small and located between residential development and the A55 expressway it is not considered that the loss of this land would negatively impact on the farming activities in the area as it is only used for grazing which can be carried out on most grades of land.
The Planning Development Manager concluded by confirming that the proposal is considered acceptable and conforms with the relevant local and national policies and guidance and subject to conditions and a Section 106 agreement, the recommendation is one of approval.
Councillor Sonia Williams, a Local Member spoke of the concerns regarding the proposed development from ecological, traffic, noise and flooding perspectives. The proposal if approved will mean the loss of 1.6 hectares of valuable greenfield land which sustains local wildlife which if displaced may never return especially with the added disruption of building and sewerage works. The environmental assessments which were meant to evaluate these effects were undertaken out of season rather that at peak period from May to September. She raised doubts about the adequacy of the proposed acoustic fence to mitigate noise pollution from the A55 which was notable during the site visit. She highlighted the flooding issues in Llanfairpwll with concerns having been raised recently by an older people’s residential home about sewerage problems in the area and she referred to traffic problems in Llanfair both as regards volume and speeding with no one having really assessed the issue. She raised questions about the access to the proposed development and whether it was wide enough to allow two vans to pass each other. The extent of the opposition to this development locally as reflected in comments, e-mails and a petition with 1000+ signatures does not appear to be fully covered by the report. The location she felt poses too many risks in terms of the environment, infrastructure and logistics to justify the development with concerns on numerous grounds including displacement of wildlife, flood risk, traffic congestion, CO2 emissions and noise. She said that she was perfectly aware of the need for affordable housing but that adding the word affordable to something that is outside the development boundary does not make it sensible to put houses there. She asked the committee to carefully consider the concerns raised and conclude that this proposal is not the answer to the affordable homes problem in Llanfairpwll.
Councillor Dyfed Wyn Jones, also a Local Member said that he had spoken to the committee of his opposition to the proposal on the basis of location back in March 2023. He acknowledged the importance of providing affordable homes but remained concerned regarding the location of the application site close to the A55 expressway knowing the noise levels that can be generated despite the proposed mitigating measures. He believed that members have a duty to consider the amenities of the people who would be living in these houses. Housing developments have to be in the right place and developers must take this into consideration. The access is also a matter of concern and although it may be sufficient it is not practical for serving 27 houses. He asked members to think about the location and whether it is appropriate and to remember the site visit.
Responding to the points made by the Local Members, the Planning Development Manager reiterated that the Council’s Ecological and Environmental Advisor along with NRW have been consulted on ecology matters and mitigating measures have been identified. The Environmental Health Department is satisfied with the Noise Impact Assessment and the mitigations proposed including an acoustic fence which is an effective barrier. Other housing estates in Llanfairpwll near the A55 have no such mitigation. The application site is not within a flood zone, Welsh Water have no objections and SAB approval will be required. The transport survey confirmed that the additional traffic movements created by the proposal are not such as to create an adverse impact. The application site in being adjacent to the development boundary of Llanfairpwll can be considered as an exception site under Policy TAI 16. The land in question is used for grazing and it is not considered that its loss would affect farming in the area. The application has to be considered as presented with no regard for other locations.
Councillor Robin Williams, who was also a Local Member, played a clip from the site visit to illustrate the background noise from the A55 expressway from where members had gathered opposite properties in the Y Garnedd estate. The noise level would be even greater for the occupants of any of the proposed properties adjoining the expressway. He questioned whether the mitigating measures described would be effective since noise carries far and he believed that the effects would be dreadful for those properties especially at peak times. The conditions under which they would be living is something the Committee needs to think about. Consideration has also to be given to residents of Y Garnedd who would be impacted by the additional traffic movements generated by 27 properties with 57 parking spaces especially as car usage is now far greater than when the Y Garnedd estate was built. The company which undertook the transport assessment consider similar sites around the UK and a list of such sites is included in the assessment report. However these sites are in very different locations to that of Llanfairpwll and involve much larger developments. They are in places where there are better public transport links and he thought it a fallacy that people are suddenly going to use public transport locally when the car is the favoured means of getting around. The figures for traffic movements should not therefore be given too much weight. Councillor Williams further referred to an e-mail he had received from a constituent regarding traffic and parking issues along Penmynydd Road to the Y Garnedd estate which he quoted and which shows how problematic the road from the Deer Lake takeaway onwards is and why a full traffic survey is required. He proposed that the application be refused and the proposal was seconded by Councillor Geraint Bebb.
Councillor Jeff Evans referred to the determination by Welsh Government that 20,000 affordable homes need to be built in Wales by the end of the current Senedd terms to which Anglesey is expected to contribute. The proposed development offers a mix of homes for which there is a pressing need and he questioned whether the impacts of the proposal are such as to justify denying the opportunity to build 27 affordable homes in the area. He referred to his own experience of living for many years by a busy junction and did not believe that the noise levels at the proposed development were such as would deny him the opportunity of a home and he did not think that anyone in need of a home would be sorry about one being made available to them in this area. He also believed that a decision to refuse the application would be appealed and the appeal likely upheld with potential costs to the Council. All the issues identified have been addressed to the satisfaction of the statutory bodies and he was therefore happy to propose that the application be approved. The proposal was seconded by Councillor R. Llewelyn Jones.
Responding to Councillor Robin Williams the Planning Development Manager advised that the transport assessment is based on a national methodology which is the same for every site. Parking issues on Penmyndd Road are not relevant to the proposal as it will not exacerbate the existing issues and should not be penalised for them. There is a need for affordable housing in Llanfairpwll as corroborated by the data and a refusal would likely be overturned on appeal. In response to a further question by Councillor John Ifan Jones about the density of the development being twice that of Y Garnedd estate for the same sized plot when Policy Tai 16 states that proposals must be for small scale development the Planning Development Manager confirmed that the proposal at 30 units per hectare makes effective use of land in accordance with the requirements of Policy PCYFF 2. Additionally, Policy TAI 16 states that proposals must be for small scale development unless it can be clearly demonstrated that there is a requirement for a larger site. Given the size of Llanfairpwll and the proven need for affordable housing in the area, the proposal complies with Policy TAI 16.
In the ensuing vote on the matter, the proposal to approve the application in accordance with the Officer’s recommendation was carried by five votes to four.
7.2 FPL/2024/105 – Full application for the erection of 30 residential dwellings (100% affordable housing units), alterations to existing access, creation of new access and internal access road together with associated works at land to the north-east of Gwel y Llan, Llandegfan
The application was presented to the Planning and Orders Committee at the request of a Local Member due to local concerns. At its meeting held on 2 October 2024 the committee resolved to undertake a site visit which was subsequently made on 23 October 2024.
Having declared a personal and prejudicial interest in this application, Councillor Glyn Haynes left the meeting during the discussion and voting thereon. The item was chaired by Councillor Neville Evans, Vice-Chair for the meeting.
Public Speakers
Alun Foulkes, Clerk to Cwm Cadnant Community Council spoke in opposition to the application and referred to the land in question being outside the settlement boundary of Llandegfan and rather than rounding off of the settlement boundary the proposal represents a further expansion of urban development onto a green field site. He spoke about the impact on landscape and habitat features saying that the need for construction of a surface water swale and associated basis is yet another impact of the development on the open countryside. He noted the absence of any comments regarding the re-routing of the power line which crosses the site which could result in further landscape and habitat disturbance. If approved the proposal could also raise several biodiversity issues including impact on bat movement and experience of dark sky. Should the development be permitted, details of any biodiversity enhancements must be agreed in advance and native tree species should be used in any landscaping. However, the main source of concern are highway and road access issues as detailed in a letter to the Planning Department. The back road is insufficient to take wide loads and there are now ramps on the main road by the school and on Gwel Eryri estate.
Sioned Edwards, Cadnant Planning spoke in support of the application saying that the proposed housing would be developed by DU Construction on behalf of Clwyd Alyn Housing Association. All 30 units would be affordable with the majority expected to be available on a social rent basis with the possibility of some being intermediate housing. There is a clear need for affordable housing in Llandegfan as supported by the Council’s Housing Services data and a housing survey undertaken by the Rural Housing Facilitator and Cwm Cadnant Community Council in 2021 with very few opportunities to develop affordable housing within the village’s development boundary. Over the lifespan of the LDP from 2011 to this day, five affordable houses have been developed in Llandegfan and currently there is no planning permission for any further affordable housing in the village. A public meeting was held in Llandegfan prior to the submission of the application and the applicant and team also attended a public meeting arranged by the Community Council.
Sioned Edwards referred to the access arrangements with the proposed development being served by two access routes through Gwel y Llan and Gwel Eryri estates, this would disperse traffic flow and vehicle movements between the two estates and is an arrangement that was welcomed during the consultation period. Ms Edwards addressed the impacts on Llandegfan residents and the roads that would be used to serve construction vehicles during the construction period which were among the main concerns and confirmed that a Construction Traffic Management Plan would be presented for the Council’s approval prior to the commencement of any works with the intention being to avoid peak time deliveries and to engage with Gwel y Llan and Gwel Eryri residents to alleviate concerns and facilitate the construction work. She further confirmed that a Biodiversity Assessment has been submitted with the application and mitigation measures agreed with the Council’s Ecological and Environmental Advisor and she noted that highways and drainage matters are addressed in detail in the Officer’s report. She reiterated the need for affordable housing on Anglesey and said that that the proposal would contribute towards meeting part of that need in Llandegfan. The application provides a golden opportunity to develop affordable homes for the people in the locality.
The Planning Development Manager reported that Llandegfan has been identified as a Local Village under Policy TAI 4 of the JLDP. The application site is outside but immediately adjacent to the development boundary and as the proposal is for 100% affordable housing it can be considered as an exception site under Policy TAI 16. The Council’s Housing Services have confirmed that there is a need for affordable housing in the locality with 7 persons/ families on the social housing register who have specified Llandegfan as their preferred area of choice, and 67 persons/families have noted Llandegfan as an alternative choice. There are also 126 persons/families on the Tai Teg register for an affordable home in Llandegfan. The indicative supply level for Llandegfan over the Plan period is 27 units and during the period 2011 to 2023 a total of eleven units have been completed in Llandegfan and four have had planning permission and are likely to be developed. Although the proposed development would exceed the indicative provision for Llandegfan, Policy PS17 in the Plan states that 22% of the Plan’s housing growth will be located within the Local Service Centres. As there is currently a shortfall of 291 units within Local Service Centres approval of this site can be supported by the expected provision within the Local Service Centres category. The Housing Services have also confirmed that the mix of housing units proposed is appropriate, and although the density of the development at 25 units per hectare is below the target of 30 it is considered acceptable as it is due to part of the land being earmarked for drainage and open space provision.
The Planning Development Manager referred to local concerns regarding the impact which the additional traffic generated by the proposal could have on highway safety. The Highways Authority have been consulted and raise no objections to the proposal. The dual access arrangement was seen as more sensible than having all traffic flow through a single access and the location of the application site and the roads around it as well as measures to slow down traffic will mean that the estate is not used as a “rat run.” Following discussion, the developer has agreed to submit a Construction Traffic Management Plan to alleviate concerns about the impacts during the construction period; this will be conditioned and will restrict the times during which supplies and deliveries can be made to the site during construction. A transport report accompanying the application predicts that the proposal will create 18 additional traffic movements during the peak period or one car every 3 minutes 20 seconds, but as there are two accesses the assessment foresees that these movements will be shared between the two thereby halving the overall number. Consequently it is not considered that the proposal will have a materially negative effect on the local road network.
The application site is considered to be in a sustainable location within the settlement of Llandegfan which has a primary school and local shop and which is also on the public network route to the nearby settlements of Beaumaris and Menai Bridge. As a Public Right of Way runs through the site works are required to divert the footpath so that it runs along the pavement within the site. The developer has agreed to contribute financially towards improving the two public rights of way in the locality of the site. The separation distances between the proposed units and properties in Gwel y Llan are such that it is not considered that the amenities of the occupants of those properties will be negatively affected and conditions are proposed to further safeguard residential amenities. The scheme also includes biodiversity enhancements which are acceptable to the Council’s Ecological and Environmental Advisor. A Section 106 Agreement is required to secure the provision of affordable homes and contributions towards facilities at Ysgol Llandegfan and provision of open spaces and children’s play area as well as for the improvement of the public rights of way in the locality as agreed to by the developer.
The proposal is considered as an acceptable extension to the village and complies with current policies. It will not have a detrimental impact on highway safety or on the amenities of the adjoining properties and the Officer’s recommendation is therefore to approve the application.
Councillor Alun Roberts speaking as a Local Member said that everyone would agree that people need a place to call home and that the availability of affordable houses is a pressing requirement with the average price of properties in Llandegfan having risen by £3,000 for the year just gone and standing at £400k in the year before. The main issue with regard to the proposed development which is dividing opinion is the dual access arrangement which means that all traffic for the development will pass through Gwel y Llan and Gwel Eryri estates and the roads connecting to them during both the construction period and afterwards thereby affecting between 100 and 200 existing homes and their occupants. While he welcomed some of the solutions for traffic management during the construction period, he emphasised that there are real concerns locally about the impact on highway safety particularly during times when children are walking to school which can be before 8:00 a.m. Any traffic management measures would have to be in effect before that time and a solution would have to be found for school holidays and other times. A local playing area is situated opposite one of the roads to the access and is usually full of small children in the afternoons. He referred to construction traffic being a problem and likely to damage the roads through the two estates and he questioned whether there are any arrangements for the redress of any such damage. He welcomed proposed engagement with local people and stressed the need for clear and honest dialogue to safeguard the amenities of local residents. The need for affordable houses is acknowledged but not at any cost and local concerns must be addressed before any work takes place.
Responding to the Local Member’s comments, the Planning Development Manager reiterated the comments he had made in his presentation to the application regarding the need for affordable housing in Llandegfan and the measures to be put in place should the proposal be approved to address traffic and highway concerns such as the dual access arrangement which would reduce traffic flow and impacts and the requirement for a Traffic Management Plan for the construction period the effects of which would in any case be temporary.
Councillor Robin Williams questioned whether the proposed development as an extension to the village means that if it is approved and goes ahead the development boundary of Llandegfan will be similarly extended and any land adjacent to the extended boundary is then potentially capable of being developed by virtue of being adjacent to it. The Planning Development Manager advised that should the proposed development be approved and implemented the boundary would be included as policy in the new LDP and should the Plan include an exception policy which allows development to take place beyond a boundary, then that might be a consideration. However, exception sites are only considered if there is a demonstrable need for affordable housing in the area and the need would have to be proved.
Councillor Robin Williams while he indicated that he would be abstaining in the vote on this application as he had spoken strongly against the previous application nevertheless welcomed measures to alleviate traffic impacts which had been a concern on the site visit.
Councillor Dafydd Roberts queried the policy justification for the proposed development on the basis of a shortfall in the expected housing provision within the Local Service Centres category of the Joint Local Development Plan when Llandegfan has been identified as a Local Village in the Plan. He thought the number of proposed dwellings excessive for the need in Llandegfan, based on the information provided. The Planning Development Manager advised that Policy PS 17 states that if a proposal means that the indicative affordable housing provision for a settlement is exceeded than the Island wide position has to be considered given the need for affordable housing provision across Anglesey.
Councillor Jeff Evans said that the comments he had made regarding the previous application applied equally to this application and given the confirmed need for the properties, the proposal’s compliance with policy and no objections having been raised by the statutory consultees who have examined the issues, then he was happy to propose that the application be approved in accordance with the Officer’s recommendation. The need for affordable housing across Anglesey has been shown and while it cannot always be provided in people’s chosen locality, most would appreciate the opportunity of having a home. The proposal was seconded by Councillor R. Llewelyn Jones.
Councillor Dafydd Roberts proposed that the application be refused contrary to the Officer’s recommendation because he felt the use of the Local Services Centre category to justify a housing development in a village required further clarification. The proposal was seconded by Councillor Alwen Watkin.
In the ensuing vote on the matter, the proposal to approve the application in accordance with the Officer’s recommendation was carried by five votes to three with one abstention.
It was resolved to approve the application in accordance with the Officer’s recommendation and report subject to the planning conditions set out therein and subject also to the signing of a Section 106 Agreement to secure the provision of affordable housing, a financial contribution towards education facilities and open space along with a financial contribution for the improvement of public rights of way in the locality (Councillor Robin Williams abstained from voting on the matter).
At this point the meeting was adjourned for a short break.
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