Agenda item

To consider the report of the Head of Planning and Building Control.

(Report circulated)

The Development Manager presented the planning application for the change of use from hotel to hostel at the Red House, 2 Whipton Village Road, Exeter.

Members were circulated with an update sheet giving details of four additional letters of objection which had not raised any new issues and a formal response from the Police Architectural Liaison Officer suggesting a number of conditions relating to the overall management of the facility with specific reference to provision of CCTV, security lighting, key management, provision of security doors and windows and staffing arrangements. It was proposed to amend condition three accordingly to ensure that the above mentioned were included within the management scheme.

The recommendation was for approval, subject to the conditions as set out in the report.

Councillor Taghdissian, having given notice under Standing Order No. 44, spoke on this item. He raised the following points:-

• it was clear from the public meeting that there is strong opposition to the proposal, with concerns expressed by those immediately affected by the proposal, those in the immediate vicinity as well as the wider community. The number attending an earlier public meeting on the matter - 250 - reflected the level of concern
• main concerns are in respect of the potential for crime and disorder and anti social behaviour
• to state that those in need of housing do not have a propensity for anti social behaviour is not a sufficient reason for supporting the use of the Red House as a hostel
• the occupants will be free to come and go at all times
• the recommendations do not adequately cover the concerns raised by the Police Architectural Liaison Officer. Those concerns need to be taken on board
• the local area already experiences disturbances late at night
• residents of the neighbouring care home may suffer disturbance
• statement that the hotel currently caters for a large number of occupants and that there will not therefore be a significant increase in numbers as a result of the change of use to a hostel is misleading. If the hotel was thriving there would be little incentive to change the use
• there is a feeling locally that the decision of the Committee is a ‘foregone conclusion’
• opposition from businesses in the Whipton Village area who believe that their trade will suffer. They anticipate that many residents in the area will be reluctant to visit their businesses because of fear of anti social behaviour
• the statement that there have been a limited number of 999 calls in respect of the other hostel operated by the applicant - Trailways - is misleading as any 999 calls should be a cause for concern.

The Chair clarified that there was no question of Members having already come to a view on the application.

Councillor Martin, having given notice under Standing Order No. 44, spoke on this item. He raised the following points:-

On behalf of the applicant:-

• applicant will continue to accommodate clients of the City Council and County Council
• a full consultation of local residents had been undertaken. Only two phone calls had been made to the applicant arising from the 700 letters sent
• it had been unclear at the public meeting that the attendance register was to be used as a petition opposing the proposal and thus the perceived level of objection had been exaggerated
• majority of opponents are not aware of the precise nature of the facility - it will not be a bail hostel or night shelter
• no complaints had been received in respect of existing facility - Trailways - operated by the applicant
• will ensure high management standards which will be superior to bed and breakfast accommodation
• will work closely with both the City and County Councils to provide housing for the homeless. Everyone should have a place to live and an important social service will be made available in support of individuals experiencing difficult times
• not for financial gain, otherwise could sell the site to a developer.

Comments of Councillor Martin:-

• level of response to the proposal reflects a thorough and successful consultation
• housing the homeless should not be a party political issue
• 20 years of experience in homeless work in London with the GLC
• referred to a number of examples of homeless individuals he had dealt with as a Councillor, pointing out that homelessness can affect any member of society
• homelessness is a City wide issue and the provision of a new facility therefore reduces the overall number of homeless in Exeter
• proposal for a hostel had been discussed at an early stage in the area at coffee mornings and at the public meeting
• statistics relating to calls to Police in respect of the Trailways establishment can distort the true picture
• an unannounced visit to Trailways had found the facility to be of a high standard
• hostel will be dealing with a number of vulnerable people, some of whom are young. All deserve the best possible care

Councillor Dawson, having given notice under Standing Order No. 44, spoke on this item. She raised the following points:-

• speaking on behalf of residents in Whipton Village
• significant number of objectors and 41 signatories to petition. High percentage of elderly in the area are concerned and feel intimidated regarding potential for anti social behaviour
• fear of crime and impact on residential amenity of area
• a Section 30 dispersal order was operational in the area until November 2011
• conversion to a hostel will have a negative impact on community cohesion of Whipton Village
• there will be a negative impact on local businesses as residents’ incentive to continue custom will be reduced
• Red House is a gateway to Whipton Village
• comments from Vranch House owners that planning consent should not impact adversely on the character of area
• although few problem incidents reported in respect of Trailways, the propensity for crime from individuals housed at the Red House is not reduced. Although five incidents a year at Trailways is small, five disturbances, either at day or night, is still too many
• the Red House is currently not in full occupation as a hotel
• use of CCTV acknowledges potential for crime and disorder but is a sensible proposal
• recommend refusal of the application as overwhelming opinion of residents is to strongly object to the application

If approval is to be given, regard should be had to the following matters:-

• incorporate concerns of the Police Architectural Liaison Officer into conditions
• there should be a limit on the number of bed spaces as the current proposal does not make it clear whether rooms can only accommodate single individuals or whether couples or families will be accommodated
• permission to be made personal to the applicant
• measures are necessary to prevent people gathering on the low boundary wall
• a change to the management agreement to include an appropriate mechanism for monitoring visitors, use of CCTV cameras and the employment of an appropriately qualified duty manager
• monitoring of numbers and nature of client base is necessary as these will change over time and there is no guarantee that they do not have a propensity for crime and anti social behaviour
• registration of visitors
• curfew on occupants
• hostel should be fit for purpose and attention is required to problems reported in respect of a drainage overflow to eliminate any environmental health risk

The Development Manager responded as follows to the specific points above:-

• limiting occupation to individuals could increase potential for those problems which form the main thrust of the objections - that of crime and disorder - which are more likely from individuals than any families being housed
• Government advice discourages personal consent as planning permission reflects land use and agreeing to specific personal use would be the exception to the normal policy stance
• registration of individual tenants would be outside planning controls
• registration of visitors is also outside planning controls
• a curfew is inappropriate
• it was not envisaged that the proposed change of use would substantially change the drainage issues in the area

Mr Montford spoke against the application. He raised the following points:-

• proposals to expand the Red House have been raised in the past and it can be anticipated that the new owners may submit similar expansion proposals
• insufficient public consultation was carried out on the current application
• the Red House is likely to have double the number of residents than Trailways and is in a more prominent position
• possibility of in excess of 28 young people occupying the facility which is in close proximity to the Half Moon pub;
• as Exeter City Council and Devon County Council control occupancy, both should be able to guarantee high risk residents will not occupy the facility
• if it is claimed that the residents will not be likely to cause anti social problems etc, why are security measures, such as CCTV, necessary
• likely to be in the region of 100 residents staying at the Red House per year and this will impact adversely on the community
• residents would prefer to continue to support local shops and businesses but are likely to reduce their visits from fear of anti social behaviour etc.
• Whipton Village is currently a well balanced community but this is likely to change if approval is granted
• a hostel in this location could stigmatise the whole area
• there is a fear locally that approval of the application is a foregone conclusion
• there will be a detrimental impact on the adjacent care home
• Red House is regarded as an iconic feature of this part of the City which will be lost if a hostel is allowed
• accept that a facility of this nature should be provided for Exeter but not in this location
• Red House and Trailways are not comparable as they are of a different scale and the character of the areas within which they are located are very different
• if permission is to be granted, a limit on the number of occupants is requested

Members suggested that a liaison group be established comprising local Members, the owner, representatives of Whipton Community Association and the Police to consider the specific concerns of residents and to agree on the number of bed spaces and a scheme of external works. With regard to the former, the Development Manager advised that there were 18 rooms in all, with only seven on the first and second floors. He stated that negotiations could be held with the applicant to limit the total number of bed spaces. This however would be dependent on the extent to which accommodation for family units was proposed.

RESOLVED that the application for change of use from hotel to hostel be approved subject to the following conditions (condition 3 to incorporate the comments of the Police Architectural Liaison Officer and a limit on the number of bed spaces) and a scheme for external works, with the details of the condition to be circulated to the Committee Members prior to issue of permission:-

1)         The development to which this permission relates must be begun not later than the expiration of three years beginning with the dare on which this permission is granted.

            Reason: To ensure compliance with sections 91-92 of the Town and Country Planning Act 1990.

2)         The development hereby permitted shall not be carried out otherwise than in strict accordance with the submitted details received by the Local Planning Authority on the 20 October 2011 (dwg.no(s). 1026/01, 1026/02 and 1026/03), as modified by other conditions of this consent.

            Reason: In order to ensure compliance with the approved drawings.

3)         The Development hereby permitted shall not be occupied until the City Council has agreed in writing a Management Scheme submitted by the applicant and the agreed measures have been put in place. The Management Scheme shall include the following: (A) details of the management arrangements for the property, including procedures for dealing with (i) management problems, (ii) anti-social behaviour, (iii) noise, (iv) fires or other emergencies; (B) details of how the recommendation of the Police Architectural Liaison Officer, set out in her letter to the Council dated 10 January 2012, have been and will be implemented; (C) the maximum number of bed spaces to be occupied at any one time; and (D) the establishment of a Liaison Group to include the owner or manager of the premises, Local Ward Councillors and representatives of the Police and local community groups. Occupation shall be managed in accordance with the approved scheme.

Reason: To help protect the existing residential amenity standards currently enjoyed by neighbouring properties.

4)         Prior to occupation of the development hereby permitted, secure cycle parking shall be provided in accordance with details previously submitted to and approved in writing by the Local Planning Authority, and the cycle parking shall be maintained thereafter.

Reason: To ensure that cycle parking is provided, to encourage travel by sustainable means in accordance with Local Plan policy T3.

(Report circulated)