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APPLICATION NO. |
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APPLICATION TYPE |
FULL APPLICATION |
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REGISTERED |
28.7.2022 |
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PARISH |
SHIPLAKE |
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WARD MEMBERS |
Leigh Rawlins David Bartholomew |
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APPLICANT |
Mr and Mrs Stewart |
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SITE |
Kingsley House, Crowsley Road, Lower Shiplake, RG9 3LU |
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PROPOSAL |
Alteration and refurbishment of existing building containing 4 flats to create 6 flats (2 x 3-bed, 2 x 2-bed, 2 x 1-bed) with associated car parking, landscaping, and alterations to driveway to provide passing places (additional bat survey report received 27th September 2022 and changes to turning island, increased planting area and information on construction methodology and section details for lightwells as shown on amended plans and additional information received 1st November 2022 and details of adjoining Kingsley Court corrected as shown on plans received 5th January 2023). |
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OFFICER |
Paul Lucas |
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1.0 |
INTRODUCTION AND PROPOSAL |
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1.1 |
This report sets out the justification for officers’ recommendation to grant planning permission having regard to the development plan and any other material planning considerations. The application is referred to the planning committee due to a difference between officers’ recommendation and the views of Shiplake Parish Council.
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1.2 |
The application site is shown at Appendix A. It comprises a residential plot at the southern edge of Lower Shiplake containing a large brick and tile dwelling that has been converted into four flats. The building has been assessed by the council’s Conservation Officer as a non-designated heritage asset due to its arts and crafts design and detailing. Access is taken from Crowsley Road via a 150-metre-long private driveway, leading to a large hardstanding in front of the building. Frontage residential development along Crowsley Road lies to the north of the site. A detached dwelling, Orchard House, has been recently constructed on the western side of the driveway. Open countryside adjoins the site to the west and the gardens of Thornfield House, Lock End House and Highwood to the north, south and east, respectively. A recent planning permission for a new dwelling (Kingsley Court) in the eastern part of the former Kinglsey House plot has yet to be implemented. The trees on the site boundary with the driveway and with the open countryside to the rear are covered by Tree Protection Orders. There are no other special designations on the site.
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1.3
1.4 |
The application seeks full planning permission for the alteration and further conversion and subdivision of Kingsley House from 4 flats to create 6 flats. The proposal incorporates the following elements: · conversion of additional roofspace. · addition of lightwells. · addition of windows. · addition of solar pv panels to southern rear elevation. · repositioned front entrance serving Flats 2, 5 & 6. · garage converted into a waste and cycle store. · alterations to the car parking. · landscaping of garden areas. · widening of the driveway for the first 10 metres from Crowsley Road to 4.6 metres. · provision of two passing places along the driveway.
The application was amended to provide revised and additional details concerning tree protection and landscaping and for the proposed lightwells and an additional bat survey report. The current plans can be found at Appendix B. Other documents can be viewed on the Council’s website. |
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2.0 |
SUMMARY OF CONSULTATIONS & REPRESENTATIONS |
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2.1
2.2 |
Shiplake Parish Council - OBJECTION This is a better plan than the previous submissions. We have noted the comments by the neighbouring properties objecting, referencing the Shiplake NP and traffic flow increases and the car parking. Shiplake Parish Council specifically objects on the grounds of conflict with Policies SV23 and SV24 of the Shiplake Neighbourhood Plan which has now been approved by referendum. Officers should consider whether this application is a material change to the character of the area.
South and Vale Countryside Officer – No objection subject to mitigation planning condition and informative.
Drainage - (South&Vale) – No objection subject to surface water and foul water drainage pre-commencement planning conditions.
Forestry Officer (South and Vale) – No objection subject to landscaping and tree protection conditions.
South -Highways Liaison Officer (Oxfordshire County Council) – No objection subject to conditions and informative.
Energy Assessor (ESE Ltd) – No objection subject to conditions.
Conservation Officer – The proposed changes would not detract from the essential character of the non-designated heritage asset.
Environmental Health – No objection.
Neighbours – Eight representations of objection and concern, summarised as follows:
The representations can be viewed in full on the Council’s website.
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3.0 |
RELEVANT PLANNING HISTORY |
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3.1 |
P21/S1389/O - Refused (24/03/2022) Outline application for refurbishment, extension and alteration of Kingsley House from 4 Flats to up to 8 Flats incorporating access matters with all other matters reserved. The proposed development would involve a significant intensification of use of the existing driveway, which would result in increased noise and disturbance to the amenity of occupants of surrounding residential properties. As such, the proposal would be in conflict with Policies H17, DES6 and ENV12 of the South Oxfordshire Local Plan 2035.
P20/S3602/PEM - Advice provided (03/11/2020) Redevelopment & subdivision of the existing building (currently 4 flats) to create a total of 8 flats.
P75/S0383 - Approved (22/09/1975) DIVISION INTO TWO DWELLINGS.
P72/H0247 - Approved (19/04/1972) Conversion of kitchen wing to two self-contained flats.
Adjacent to the site access at Orchard House: P20/S2709/FUL - Approved (09/10/2020) Erection of detached 4-bedroom dwelling and garage.
Adjacent to the east of Kingsley House: P21/S3776/FUL – Approved (04/02/2022) Erection of a new build dwelling (Kingsley Court). |
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4.0 |
ENVIRONMENTAL IMPACT ASSESSMENT |
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4.1 |
The proposed development is not Schedule 1 or 2 development as defined by the Town and Country Planning (Environmental Impact Assessment) Regulations 2017 so an Environmental Impact Assessment is not required. |
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5.0 |
POLICY & GUIDANCE |
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5.1 |
Development Plan Policies |
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South Oxfordshire Local Plan 2035 (SOLP) Policies: DES1 - Delivering High Quality Development DES2 - Enhancing Local Character DES3 - Design and Access Statements DES5 - Outdoor Amenity Space DES6 - Residential Amenity DES7 - Efficient Use of Resources DES8 - Promoting Sustainable Design DES10 - Carbon Reduction ENV1 - Landscape and Countryside ENV12 - Pollution - Impact of Development on Human Health, the Natural Environment and/or Local Amenity (Potential Sources of Pollution) ENV2 - Biodiversity - Designated sites, Priority Habitats and Species ENV3 - Biodiversity EP3 - Waste collection and Recycling EP4 - Flood Risk H1 - Delivering New Homes H11 - Housing Mix H17 - Sub-division and Conversion to Multiple Occupation INF4 - Water Resources STRAT1 - The Overall Strategy STRAT5 - Residential Densities TRANS5 - Consideration of Development Proposals
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5.2 |
Shiplake Neighbourhood Plan 2022 – Full Weight |
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SV1 Infill Development
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5.3 |
Supplementary Planning Guidance/Documents |
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South Oxfordshire and Vale of White Horse Joint Design Guide 2022
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5.4 |
National Planning Policy Framework and Planning Practice Guidance
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5.5 |
Other Relevant Legislation |
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Human Rights Act 1998 The provisions of the Human Rights Act 1998 have been taken into account in the processing of the application and the preparation of this report.
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Equality Act 2010 In determining this planning application, the Council has regard to its equalities obligations including its obligations under Section 149 of the Equality Act 2010. |
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6.0 |
PLANNING CONSIDERATIONS |
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6.1 |
The relevant planning considerations are the following:
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6.2
6.3
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Principle of development Section 38 (6) of the Planning and Compulsory Purchase Act 2004 requires applications for planning permission be determined in accordance with the development plan unless material considerations indicate otherwise. The development plan currently comprises the South Oxfordshire Local Plan 2035 (SOLP 2035) and the Shiplake Neighbourhood Plan 2022 (SNP). Policy STRAT1 of the SOLP 2035 sets out the overall strategy for the District. It seeks to focus most major new development at the growth point of Didcot and other allocated sites, with Henley, Thame and Wallingford also being a focus for development and regeneration. The SOLP 2035 Policy H17 states that the subdivision of dwellings will be permitted provided certain criteria are met. The policy does not contain any restriction limiting such subdivisions to within settlements. Therefore, the proposal would comply with the Council’s Housing Distribution Strategy.
SNP Policy SV1 refers to infill development
and the redevelopment of previously developed land within the
built-up areas of the villages. Kingsley House is (apart from its
driveway) shown to be outside the built-up area in Figure 14 of the
SNP. The proposal does not relate to infill development and does
not propose the redevelopment of the site, but even so, the SNP
Examining Inspector made clear that such development outside the
built-up area was not prevented by the policy, which is a
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6.4
6.5
6.6
6.7
6.8
6.9
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Design and character The SOLP 2035 Policy DES1 seeks to ensure that all new development is of a high-quality design subject to a series of criteria. The SOLP 2035 Policy DES2 states that all new development must be designed to reflect the positive features that make up the character of the local area and should both physically and visually enhance and complement the surroundings. These policies are augmented by advice contained within Sections 2 and 5 of the JDG 2022. The SOLP 2035 Policy ENV1 seeks to ensure that development will only be permitted where it protects and, where possible enhances, features that contribute to the nature and quality of South Oxfordshire’s landscapes. The SOLP 2035 Policy ENV6 explains that proposals for new development that may affect designated and non-designated heritage assets should take account of the desirability of sustaining and enhancing the significance of those assets and putting them to viable uses consistent with their conservation.
The SNP includes the site within Landscape Character Area ‘PLCA3 – Semi-enclosed Dipslopes’. This is not identified as a ‘Valued Landscape’ in Figure 15 of the SNP and is therefore not subject to the provisions of the SNP Policy SV9. The site is part of the area of built development within PLCA3. SNP Paragraph 6.4.35 includes visual guidance principles for the area, not all of which are relevant to this proposal. SNP Policy SV7 requires that development preserves or enhances landscape character expressed in the Shiplake Villages Character Appraisal (SVCA). The SVCA explains that one of the recommendations for PLCA3 is to conserve and enhance the character of the area which includes pockets of housing and development on the edge of and outside of the settlements, particularly around Mill Lane, Mill Road and Woodlands Road by avoiding overdevelopment of each residential site and retaining the level of tree cover and vegetation. SNP Policy SV8 requires that the rural landscape setting of the overall neighbourhood area is respected and that the separation between settlements is preserved. Part of the site also lies within one of the
parcels of land described as ‘Special Character Area 6
– Very low density – detached properties set in
extensive grounds – sylvan’ in Figure 24 of the SNP.
The house and rear grounds and most of the driveway reside within
this Character Area 6, but the front parking area and the plot on
which Kingsley Court would be built does not. SNP Policy SV23
explains that development will be supported provided that the
development’s size, scale, layout, type, siting, detailed
design and appearance are compatible with the special character of
that Area in terms of the features, characteristics or elements
which are particularly distinctive to the Neighbourhood Plan area.
The policy also stresses the use of native species
Officers consider that the site is well-contained visually. The proposed development would involve no new building on the site but seeks to convert and subdivide the existing structure. Although it would increase the number of flats from four to six, the number of bedrooms would not be increased from the current 12. The density of built form would not change, whilst the occupation density would not be significantly increased. The physical alterations to the building and the addition of a pitched roof to the existing garage would be subservient and in keeping with the arts and crafts character of the building. The Council’s Conservation Officer considers that the proposed changes, including the introduction of solar panels to two sections of the southern roof slope would not detract from the essential character of the non-designated heritage asset.
This application includes similar physical changes to the driveway to the previous outline application, which were not raised as a specific reason for refusal. The application is supported by a detailed tree survey including root protection zones together with a landscaping scheme showing the proposed new trees, hedging, shrubs and other planting, and the treatment proposed for the paved areas for both the driveway and the parking and turning areas. There would be some loss of existing landscape features on the site and there would be about an 11% increase in the gravelled areas for parking and turning. However, this part of the site lies outside Character Area 6 and significant new planting would be introduced, which would be aimed at enhancing the frontage of Kingsley House. The Council’s Tree Officer has raised no objection to the current tree protection or landscaping proposals and therefore the proposed development would comply with the SOLP 2035 Policy ENV1 and the SNP Policy SV15.
Due to the limited physical alterations and
position within a built environment, the |
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6.10
6.11
6.12
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Residential amenity Policy H17 Criterion i) explains that the sub-division of dwellings and conversions to multiple occupation will be permitted provided that the development would not harm the amenity of the occupants of nearby properties. The SOLP 2035 Policy DES6 relates to residential amenity and requires that development proposals should demonstrate that they will not result in significant adverse impacts on the amenity of neighbouring uses, when considering both individual and cumulative impacts in relation to loss of privacy, daylight and sunlight, dominance or visual intrusion, noise or vibration, smell, dust, heat, odour or other emissions, pollution, and external lighting. The SOLP 2035 Policy ENV12 seeks to ensure that development proposals should be designed to ensure that they will not result in significant adverse impacts on the amenity of neighbouring uses. The SOLP 2035 Policy DES5 requires satisfactory outdoor amenity space in line with the guidance under Section 4 of the JDG 2022.
Third parties have raised concerns about increased noise and disturbance from an intensification of vehicular use of the driveway by more households, in addition to the recently constructed Orchard House and planning permission for Kingsley Court. This was the reason that outline planning permission was previously refused. The current application has reduced the number of units from a potential maximum of eight to six and it is now clear that the number of bedrooms would not be increased. The application proposes alterations to the existing driveway to make it easier for vehicles travelling in opposite directions to pass each other. The applicant has submitted a Noise Impact Assessment, which concludes that the anticipated increase in vehicular noise levels would be below the minimum increase in noise levels to be subjectively noticeable by the average human ear and on that basis the increase in the number of flats is not expected to lead to an adverse noise impact. The Council’s Environmental Health Officer agrees with this conclusion and raises no objection.
The relationship between the proposed flats and the closest dwellings at Orchard House, Thornfield House and Highwood and the approved dwelling at Kingsley Court would be similar as the existing flats in relation to light, outlook and privacy. The proposed sections demonstrate that the habitable rooms at basement level would receive sufficient light and would have an acceptable outlook for future occupiers. The relationship between the proposed flats would be acceptable, with each unit having their own private sitting out areas and a larger communal garden to the rear, in accordance with the recommended standards as set out in Section 4 of the JDG 2022. Based on the above assessment, the proposal would accord with the above policies.
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6.13 |
Access and parking |
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6.14
6.15
6.16
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The SOLP 2035 Policy TRANS5 seeks to ensure that development would not be prejudicial to highway and pedestrian safety. The applicant has submitted a Transport Statement that includes the traffic impact of the recently approved dwelling known as ‘Kingsley Court’. As referred to above, the anticipated maximum increase in vehicular movements is expected to be lower than for the refused outline application, due to the clarity over the number of units and bedrooms. The Highway Liaison Officer (HLO) has commented that the site is located on a private access drive and the adoptable highway is located at the junctions of Baskerville Lane and Mill Road. The potential maximum increase in the number of residential units will result in a relatively modest increase in vehicular numbers. However, in the HLO’s expert opinion, this would be unlikely to significantly impact the highway, given that the driveway is to be improved to provide passing opportunities along its length. The plans have also demonstrated that fire tender access and egress is feasible. The HLO is also satisfied that the parking and turning layout would comply with the standards set out below, with 10 spaces required for residents, leaving three spaces for visitor parking. As such, the proposal would accord with the aims and objectives of the above policy.
Housing mix The SOLP 2035 Policy H11 explains that to meet the needs of current and future households, the mix of housing should have regard to the Council’s latest evidence, monitoring and delivery and Neighbourhood Development Plan evidence where applicable for the relevant area. The current evidence (the Oxfordshire SHMA 2014) found a shortfall in smaller units and recommended for most units to be 2 and 3 bedrooms. The proposal would provide a mix of 1, 2 and 3-bedroom units, with four of the units being those in most demand. The application has also demonstrated that all six units would comply with the Nationally Described Space Standards. The proposal would therefore comply with the aims and objectives of the above policy.
Other material planning considerations The SOLP 2035 Policy DES8 seeks to ensure that all new development minimises the carbon and energy impacts of their design and construction and should be designed to improve resilience to the anticipated effects of climate change. The Energy Statement submitted in support of the application has been vetted and a verification planning condition could require implementation details. A planning condition is necessary to secure details of the location and appearance of the Air Source Heat Pump and the appearance of the Solar PV panels. A planning condition to secure an EV charge point for each unit is also recommended in accordance with the SOLP 2035 Policy TRANS5 ix). The proposal also includes cycle parking within the converted garage, which would also help to promote sustainable travel and could be secured by a planning condition.
Waste storage would be contained within the converted garage. Third parties have raised concerns about waste collection from the junction with Crowsley Road. However, this would be the same as the existing situation and the bins from two additional households on collection day would not significantly alter the visual impact on one day of the week. The impact of two additional households on local services would not be significant in a sustainable location where some limited growth is permitted. Matters related to tree protection, biodiversity, drainage and external lighting can be dealt with through pre-commencement planning conditions.
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6.17 |
Community Infrastructure Levy |
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The increase in floorspace is CIL liable and 25% of the payment would go to Shiplake Parish Council due to the made neighbourhood plan.
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6.18 |
Pre-commencement conditions Tree Protection Surface Water Drainage Foul Water Drainage |
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7.0 |
CONCLUSION |
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7.1 |
The proposed development would be acceptable in principle and the proposed physical changes to the building and the external areas would preserve the character and appearance of the site and the surrounding area and would safeguard important trees. The modest increase in vehicular numbers would not detract from the living conditions of adjoining residents or be prejudicial to highway safety and, subject to the attached conditions, would be in accordance with Development Plan Policies, Supplementary Planning Guidance and Government Guidance. |
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8.0 |
RECOMMENDATION |
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Grant Planning Permission subject to the following conditions: |
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1 . Commencement of development within 3 years 2 . Development in accordance with the approved plans 3 . No change in levels 4 . Materials to be used as specified on plan 5 . Energy Statement Verification to be provided 6 . Details of Microgeneration System to be agreed (prior to installation) 7 . Waste Storage in accordance with the approved plans 8 . Parking & Manoeuvring Areas to be retained in accordance with the approved plans 9 . Cycle Parking in accordance with the approved plans 10 . Highway improvement works to be carried out 11 . Landscaping implementation in accordance with the approved plans 12 . Tree Protection details to be agreed 13 . Wildlife Protection in accordance with the approved details 14 . External Lighting to be agreed 15 . Surface Water Drainage details to be agreed 16 . Foul Water Drainage details to be agreed 17 . Electric Vehicles Charging Points to be provided |
Author: Paul Lucas
Tel: 01235 422600
Email: Planning@southoxon.gov.uk