Contact Officer: John Hamilton Tel: 01865 815584
ITEM PN8
PLANNING & REGULATION COMMITTEE – 18 FEBRUARY 2008
DEVELOPMENT PROPOSED:
(1) VARIATION OF CONDITION 14 OF PLANNING PERMISSION REF: O.15/00 TO ALLOW AN INCREASE IN THE PERMANENT OCCUPANCY OF THE SCHOOL FROM 180 PUPILS TO 375 PUPILS FOLLOWING IMPROVEMENTS TO THE HIGHWAY THAT SERVES THE SCHOOL (APPLICATION NO. O.19/07)
(2) VARIATION OF CONDITION 14 OF PLANNING PERMISSION REF: O.15/00 TO ALLOW AN INCREASE IN THE MAXIMUM OCCUPANCY OF THE SCHOOL FOR UP TO 420 PUPILS FOR A TEMPORARY PERIOD EXPIRING ON 31 JULY 2011 FOLLOWING IMPROVEMENTS TO THE HIGHWAY THAT SERVES THE SCHOOL (APPLICATION NO. O.20/07)
Report by Head of Sustainable Development
Location: St Phillip and St James CE Primary School, Navigation Way, off Aristotle Lane, Oxford
Application Nos: O.19/07 District Council Area: Oxford City O.20/07
Introduction
1. St Phillip & St James School was built to hold 420 pupils plus a 30 place nursery. Pupil numbers at the school have been restricted since planning permission was originally granted in 2001 (and since it was built in 2003) by planning conditions imposed because of concerns about the suitability of the main means of access to the school, which is via Aristotle Lane. Currently the number of pupils that can attend the school is 390 for a temporary period expiring on 31 July 2008.
2. This report describes two applications for further increasing numbers at the school; the first one to seek to permit up to 375 pupils to attend the school on a permanent basis, and the second one to allow up to 420 pupils to attend (up to the school’s full capacity) for a temporary period up to 31 July 2011. Both applications propose further parking and traffic management measures in the immediate streets serving the school.
Site and Surroundings (see plan) (download as .doc file)
3. SS Phillip & James CE Primary School is located between the Oxford Canal and the railway line immediately to the west of the North Oxford Victorian Suburb Conservation Area. The western edge of the conservation area follows the line of the canal. The railway line passes along the western boundary of the site and divides the school from Port Meadow, a large area of public open space to the west. Aristotle Lane provides the vehicular access to the school from the existing highway network to the east. The bridge which carries Aristotle Lane over the canal is a listed structure. It is also hump backed, one vehicle wide and has a narrow footpath on one side. The bridge adjoins the junction of Aristotle Lane, Kingston Road, Hayfield Road and Polstead Road.
4. There are recent housing developments immediately to the east (Navigation Way and Burgess Mead) and south (Plater Drive) of the school with a recreation ground to the south east. The Trap Grounds are located immediately to the north.
Background to the Proposals
5. In July 2001 planning permission was granted to construct a 14 class primary school on this site north of Aristotle Lane with the intention that it became fully operational on that site by the Autumn of 2003, with the ability to accommodate up to 420 pupils plus a nursery in future years. The previous school site on Leckford Place was inadequate and required replacement, and the new school (as well as replacing this substandard building) was intended to provide a full primary school rather than first school only. This change was part of the reorganisation of schools in Oxford from a three- to a two-tier system.
6. Because of limitations of the vehicular access available to serve the new school along Aristotle Lane and the listed bridge over the Oxford Canal, the Planning Committee at the time restricted the numbers that could attend the school to 180 until such time as an alternative road access was available via the proposed ‘spine road’ from the north across the ‘Trap Grounds’ as a southwards extension of Stone Meadow. Indeed, at that time the residential developments of Navigation Way, Burgess Mead and Brindley Close were also under construction on adjacent land and a requirement of these housing schemes was that they too would take vehicular access from the north when the spine road was available. Aristotle Lane would then have been closed to general traffic except for cyclists, pedestrians and occasional maintenance and emergency vehicles.
7. Since the school first opened in January 2003, and its initial split site operation ended, pupil numbers have steadily increased following a series of temporary permissions granted by this Committee – 330 pupils in 2003, 360 in 2005 and 390 in 2006. Each permission has been accompanied by a variety of highways and other measures aimed at decreasing dependence on the private car as a means of delivering pupils to school in view of the less than ideal access arrangements. The School Travel Plan has played a great part in reducing reliance on the private car, the current figure for car borne pupils being just 16%, one of the best in the county.
8. More recently, the Trap Grounds, across which the spine road was meant to be routed, was subject to an application for designation as a Town Green. Following protracted legal proceedings up to and including the High Court, Town Green status has now been confirmed the Trap Grounds, effectively ending any reasonable prospect of a spine road accessing the school from the north. For this reason the school governors have now decided that the 30 place nursery originally intended and approved for the site should be abandoned for the foreseeable future.
Details of the Developments
9. As well as seeking permission to allow 375 pupils to attend the school on a permanent basis (compared to the existing temporary figure of 390), and to allow 420 pupils (the school’s full capacity) to attend for a temporary period ending on 31 July 2011, further measures are proposed to mitigate the highway implications of this development. These measures include:
· a restriction on the use of the parking area along Aristotle Lane to a maximum of 2 hours to prevent the spaces being used by commuters · setting this parking area back 1.5m to give more room for passing traffic. This would encroach onto land owned by Oxford City Council and would require the removal of a number of severely pollarded trees · renewal of yellow lining in Aristotle Lane and Kingston Road to emphasise the parking restrictions · reinstatement of the white centre line in Kingston Road opposite the Anchor public house to make the junction with Aristotle Lane more easily understood · provision of a sign on the Aristotle Lane Canal Bridge to warn cyclists not to cross when the traffic lights are still on red · bollard in the road on the approach to the bridge coming from Kingston Road to be made more visible by renewing the reflective material on it · updating the school’s existing excellent Travel Plan · investigating with the local shop on Kingston Road the possibility of deliveries being made at times to avoid the beginning and the end of the school day · the provision of a larger school bus (from 25 to 33 seater) · improvements to crossing points or signage on Kingston Road to make them safer for pedestrians and cyclists.
Relevant Planning Policies
10. These are attached as Annex 1 (download as .doc file) to this report. The main policy issues relate to provision of community facilities, and traffic management measures.
Consultations/Representations
11. Oxford City Council – no objections to both applications subject to the following conditions in relation to Application No. O.19/07 (Permanent Increase to 375 pupils):
(1) development in accordance with submitted plans (2) maximum number of permanent pupils not to exceed 375 without prior approval (3) maintenance of existing landscaping agreed and implemented under Permission No. O.15/00 (4) provision of a school bus for 33 pupils (5) school bus service not to be discontinued without prior approval (6) revised School Travel Plan to be approved prior to occupation by the increased pupil numbers (7) School Travel Plan not to be discontinued without prior approval (8) additional mitigation measures proposed to include amongst other things: · restriction of informal parking along Aristotle Lane to 2 hours · renewal of yellow lining in Aristotle Lane and Kingston Road to emphasise parking restrictions · reinstating white centre lining in Kingston Road opposite the Anchor Public House · bollard in centre of road from Kingston Road to be made more visible · improvements to existing crossing points in Kingston Road · seek to change servicing times for retail shop in Hayfield Road
The City Council does not wish to see a sign on the Canal Bridge warning cyclists not to cross against the red lights; and does not to support any proposal to extend the Aristotle Lane parking onto the City Council land (and the loss of the trees).
They also ask that the two parking spaces nearest the canal bridge on Aristotle Lane should be removed (to assist movement along Aristotle Lane); and that Informatives should be added to any consent, along the lines of · there should not be further investigation of the possibility of a new footbridge on the north side of the listed canal bridge; · the Planning Authority would support investigation of the creation of a footpath northwards through the Trap Grounds to the residential areas beyond. In relation to Application No. O.20/07 (temporary increase to 420 pupils), the City Council recommend the same conditions apart from Condition 2 which is changed to read: 2) Maximum number of temporary pupils to 31 July 2011 shall at no time exceed 420.
English Heritage – Do not wish to offer any comments.
Thames Water – No objection.
Transport Development Control – No objection to either proposal subject to the additional mitigating measures proposed in the application (see paragraph 9) being implemented before the capacity is increased.
Representations (copies of the letters of representation are available in the Members’ Resource Centre)
12. Aristotle Lane Residents Association – In favour of the planning applications, and recognise the important role the school plays in the local community. However, they have a number of concerns, particularly:
· the abuse of the double yellow lines at the northern end of Navigation Way (especially between 4.00-5.30 pm when bollards are not in operation) · the cul-de-sac of Navigation Way is used as a turning circle (the road is now used by children for play because it is a cul-de-sac) · operation of the bollards is inconsistent. Procedure needs to be tightened up · concerned about speed of traffic over Aristotle Lane bridge (and that western side of bridge is used as a skateboard track) · northern wall on east side of the bridge is in poor condition and needs repair
13. Polstead Road Residents Association – Greatly impressed by the dedication of the school in encouraging parents to avoid using cars wherever possible. Will the school (and Council) continue to be as vocal with the parent body in future? Needs to be an ongoing policy.
14. Four other letters have been received from residents in the area: two not objecting in principle to the expansion in school numbers but expressing concerns similar to those outlined in Para 12 above; the other two object to the applications primarily because of the traffic and parking problems that are caused by parents collecting and delivering children, primarily in the evenings.
Comments of the Head of Sustainable Development
15. As with the previous proposals to vary the numbers of pupils allowed to attend this school, the main issues to be considered are:
· the justification for the increased pupil numbers attending; and · the highway implications which arise from any increase.
Need to Increase Permitted Capacity
16. In terms of the increased capacity for the new school, it is clear that the school has been educationally successful during the brief period at the Navigation Way site (OFSTED report in 2003 described it as ‘well led and managed’ with good quality teaching offering ‘good value for money’). As a consequence, from September 2004 the admission limit was increased from 45 to 60 for the class entry of September of that year. Currently the school has 12 classes and about 390 pupils enrolled. As the 60 entry works its way through the age cohorts and the potential for increased numbers emerges through the new housing developments that have, and are, taking place in the local area and the associated popularity of the school, the need to expand permitted numbers becomes essential. It is not envisaged that fewer than 375 pupils would ever be attending the school in the foreseeable future, but rather that numbers will move progressively towards the school’s capacity of 420 in the immediate years ahead. In addition, as the school has been designed to accommodate 420 pupils, it does not currently make full and efficient use of its facilities and educational assets.
Traffic Management
17. At present the access to the school across the Aristotle Lane bridge is controlled so as only to allow residents, teachers at the school and delivery vehicles from crossing during the hours of 8.00 am to 9.15 am and 2.30 pm to 3.45 pm each school day. During these times a rising bollard prevents entry by others so that parents bringing their children by private car are required to park or set down east of the bridge. There have been problems with the reliability of operation of the bollards but these appear now to have been resolved. A School Travel Plan has been in place for several years which aims to reduce car trips to the school. The plan has been continually revised and updated. The Travel Plan has been extremely successful, reducing the numbers of pupils arriving by car each day from 64% in 2000 (when the school was based at Leckford Road) to 16% in 2007, making it one of the top three schools in Oxford for low levels of car usage for arriving pupils (see Annex 2 (download as .doc file)). Similarly, whilst taking account of comments made by the local residents, survey information undertaken by the school of parking by parents in nearby streets during the hours 8.00 am to 9.00 am and 2.30 pm to 3.30 pm indicates that these are generally at low levels. (See Annex 3 (download as .doc file)).
18. Concern has been, and continues to be, expressed by some local people about pupils’ safety when being dropped off in the Kingston Road/Polstead Road area where there is only limited general parking available. However the accident record has been good over the 5 year period between September 2002 and August 2007 during which time the numbers attending the school have been steadily increasing. As part of the current proposals additional traffic management measures are proposed including the reinstatement of white lines at the junction of Aristotle Lane and Kingston Road. and improvements to crossing points and signage in Kingston Road to make them safer for pedestrians.
19. Concerns have been raised by the local residents association and individual residents about what they see as specific safety problem areas. The first of these relates to a degree of congestion at peak times when the narrow footbridge attached to the south side of the Aristotle Lane bridge gets very busy, whilst along Aristotle Lane itself there is a short stretch of limited parking to its south side which restricts the carriageway to one lane only. It is proposed in the planning applications that this situation could be improved by widening Aristotle Lane on the southern side into the recreation ground by some 1.5m, with traffic calming extended. However, along this northern edge of the recreation ground stand some 10 to 12 mostly young alder trees (despite some recent fairly savage tree surgery works). The City Council, who own this land are opposed to their loss and to any loss of space at the recreation ground. A solution may be to restrict the use of this parking area along Aristotle Lane to a maximum of two hours to prevent these spaces being used by commuters and renew the yellow lining in Aristotle Lane (and Kingston Road) to emphasise parking restrictions (as proposed in the applications) and also remove the two spaces nearest to the bridge to improve traffic movement along Aristotle Lane.
20. Other issues raised by residents relating to the canal bridge include concerns that some children and adults evidently ignore the traffic lights and cross the bridge against the red lights and that children also use the western slope of the bridge as a skateboard track (using the speed humps at the bottom as a ramp for jumps). The submitted applications proposed erecting a sign reminding cyclists etc not to cross the bridge against the red light but siting a sign close to the bridge would be problematical because of its listed status. The City Council are also opposed to the erection of another sign as this would contribute to clutter in the street. In my view, the best solution would be the continued efforts of the school to proactively warn parents and children to abide by operation of the traffic lights which are there for their safety.
21. Other local concerns include the timing of deliveries to the corner shop in Hayfield Road at peak times which has in the past coincided with peak movements of children to and from school; the conflict between pedestrians and cyclists on the footpath at the northern end of the school on Navigation Way; and the use of the northern end of Navigation Way (the cul-de-sac) as a turning area for parents in cars collecting their children.
22. In addition to the measures already outlined in this report, the applications also propose the introduction of a larger bus serving the school (to seat 33 rather than 25 passengers), monitoring and improving the existing school Travel Plan, the bollard in the centre of the road from Kingston Road being made more visible and investigating the possibility of a change to the delivery times for the shop at Hayfield Road. The latter issue has been raised with the delivery company in the past which helped to solve the problem for a period of time, but the problem needs to be revisited. A further approach by the school to the company concerned could be made.
23. The measures that have been put in place: the parking restrictions, introduction of traffic lights and bollards at the canal bridge, the Travel Plan and all the other associated works, have greatly helped relieve congestion around the school at the traditional beginning and end of the school day. However, with the introduction of after-school clubs, congestion is becoming a concern for local residents between the hours of 4.00-5.30 pm when after school clubs finish. This is a time when the bollards do not operate thus allowing parents access across the bridge in their cars to collect their children. About 100 children can be involved in after school activities at any one time. A possible means of dealing with this would be to extend the hours that the bollards are used (they currently finish operating at 3.45 pm). This would also help reduce the number of cars that currently use the northern end of Navigation Way as a turning area at this early evening period.
24. At the time planning permission was granted for the relocated SS Phillip and James School, and for the adjacent residential development, it had been the longer term intention that vehicular access would be achieved from the north via what is now Stone Meadow and the Trap Grounds land immediately north of the school site. With the more recent designation of the Trap Grounds as a Town Green that possibility no longer exists and vehicular access must therefore continue to be allowed via the Aristotle Lane bridge.
25. In conclusion, the first application to be considered here is for up to 375 permanent pupils at the school. Consistent evidence has shown that a school with 390 pupils (albeit for a temporary period) can operate without significant travel and environmental problems or significant danger to staff, children and local people. The school’s thorough and successful travel management allied to a succession of physical highway measures, has achieved one of the most sustainable ways to school in the county and nationally. Increasing numbers up to 420 for a temporary period up to July 2011 would be a flexible solution to the school’s needs and success and would allow time for implementing and monitoring the effectiveness of the existing and proposed local measures and Travel Plan. In the period since its establishment here, the school’s Travel Plan and supporting measures outlined have been highly successful in achieving access to the school for children by means other than the private car such that officers are of the view that with the additional mitigation measures now proposed in place then both these applications should be granted.
RECOMMENDATION
26. The Committee is RECOMMENDED:
(1) To authorise the Head of Sustainable Development to approve Application No. O.19/07 (Variation of Condition No. 14 of planning permission ref: O.15/00 to allow an increase in the permanent occupancy of the school from 180 pupils to 375 pupils following improvements to the highway that serves the school) subject to conditions to include, amongst other things: (i) Detailed compliance – that the development be carried out strictly in accordance with the particulars contained in the application. (ii) That the maximum number of permanent pupils shall not exceed 375 without prior approval. (iii) That the school shuttle bus to be provided shall seat up to 33 pupils and shall not be discontinued without prior approval. (iv) That the School Travel Plan shall be updated to take account of this proposal, it shall be continually monitored by the school and shall not be discontinued without prior approval. (v) That the existing parking area along Aristotle Lane shall be for a maximum period of two hours. (vi) That the two parking spaces on Aristotle Lane nearest to the Canal Bridge be removed. (vii) That the existing yellow lining in Aristotle Lane and Kingston Road be renewed to emphasise the parking restrictions. (viii) That the centre white lining in Kingston Road opposite the Anchor Public House be reinstated to make the junction easier to understand. (ix) That the time period when the rising bollards are in operation be extended from 3.45 pm to 5.30 pm. (x) That the reflective material on the existing bollard on the approach to the Canal Bridge from Kingston Road shall be renewed. (xi) That a dropped kerb be installed to the pavement on Navigation Way at the northern end of the school site by the Early Years Unit. (xii) That improvements be implemented to the existing main crossing points on Kingston Road between Hayfield Road and St Margaret’s Road. (xiii) That a Safety Audit be undertaken on traffic humps on Aristotle Lane immediately to the west of the Canal Bridge to assess the effectiveness of their operation. (xiv) That the mitigation measures outlined in the above conditions shall be implemented by the 1 September 2008. Informative – The school to contact again the company making deliveries to the local shop on Kingston Road to see if deliveries can be made out of peak school travel hours.
and
(2) To authorise the Head of Sustainable Development to approve Application No. O.20/07 (Variation of Condition No. 14 of Planning Permission ref. O.15/00 to allow an increase in the maximum occupancy of the school up to 420 pupils for a temporary period expiring on 31 July 2011 following improvements to the highway that serves the school) subject to conditions to include, amongst other things:
(i) Detailed compliance – that the development be carried out strictly in accordance with the particulars contained in the application. (ii) That the maximum number of temporary pupils up to 31 July 2011 shall not exceed 420. (iii) That the school shuttle bus to be provided shall seat up to 33 pupils and shall not be discontinued without prior approval. (iv) That the School Travel Plan shall be updated to take account of this proposal, it shall be continually monitored by the school and shall not be discontinued without prior approval. (v) That the existing parking area along Aristotle Lane shall be for a maximum period of two hours. (vi) That the two parking spaces on Aristotle Lane nearest to the Canal Bridge shall be removed. (vii) That the existing yellow lining in Aristotle Lane and Kingston Road shall be renewed to emphasise the parking restrictions. (viii) That the centre white lining in Kingston Road opposite the Anchor Public House is to be reinstated to make the junction easier to understand. (ix) That the time period when the rising bollards are in operation shall be extended from 3.45 pm to 5.30 pm. (x) That the reflective material on the existing bollard on the approach to the Canal Bridge from Kingston Road shall be renewed. (xi) That the dropped kerb shall be installed to the pavement on Navigation Way at the northern end of the school site by the Early Years Unit. (xii) That improvements shall be implemented to the existing main crossing points on Kingston Road between Hayfield Road and St Margaret’s Road. (xiii) That a Safety Audit shall be undertaken on traffic humps on Aristotle Lane immediately to the west of the Canal Bridge to assess the effectiveness of their operation. (xiv) That the mitigation measures outlined in the above conditions shall be implemented by the 1 September 2008. Informative – The school to contact again the company making deliveries to the local shop on Kingston Road to see if deliveries can be made out of peak school travel hours.
CHRIS COUSINS Head of Sustainable Development Environment & Economy
Background Papers: File Ref. 8.2/5007/8
February 2008
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