1.	APPLICATION SITE AND LOCALITY 

1.1.	The application property comprises a detached, Grade II stone built dwelling, located on the eastern side of Fir Lane and immediately east of St Peter’s Church, a Grade II* listed, and south of Fir Lane Cottage and Fir Cottage, also Grade II listed buildings.  The site is located towards the north-eastern corner of the designated Steeply Aston Conservation Area as identified in the adopted Cherwell Local Plan.  The application property is two-storey dwelling of simple vernacular, dating to the 18th century.  The property is bounded to either side by residential dwellings and by allotments to the rear (east). The boundary to the north is formed by a public footpath. 
1.2.	The existing dwelling has a subservient two-storey gable projection to the rear adjacent to the northern boundary of the site and at right angles to the highway-facing front element.  There is also a single-storey addition to the south elevation in place.  The property benefits from parking space immediately adjacent to the dwelling and garden to the south and east of the dwelling; the part to its south is enclosed by a low stone wall and features planted flowerbeds. The ground level slopes from the north to the south of the site.
1.3.	The dwelling house was listed on 26.02.88 and the listing is as follows:
“House. C18. Coursed squared limestone with ashlar dressings and limestone rubble with wooden lintels; Stonesfield-slate and concrete plain-tile roof with rebuilt brick gable stacks. L plan. 2 storeys plus attic. Symmetrical 2-window front has a central 4-panel door below a flat stone canopy, and has renewed 2-light casements below stone lintels. End and rear walls, and lower rear wing returning from left, are in rubble, the wing partly converted from a stable, Interior: wide inglenook fireplace; quarter-turn stairs with winders; C18 panelled shutters and cupboards; butt-purlin roofs Included for group value.” (Source: https://historicengland.org.uk)
2.	DESCRIPTION OF PROPOSED DEVELOPMENT
2.1  Planning permission is sought for the demolition of existing stores and repair, refurbishment and extension of main building.
2.2	There is a concurrent application for listed building consent (ref. 17/00006/LB).
2.3	The proposed extension would have external dimensions of 4.1m deep x 3.75m with a pitched roof with eaves and ridge height of some 2.1m and 2.9m respectively.  It is proposed to remove the existing storage shed, to enable the construction of the proposed extension to create a new kitchen. The proposed single-storey extension would be sited at right angles to the rear range and running parallel to the front main range of the property.  The extension would be finished in materials, the majority of which would match those of the original dwelling. Other works include the repair and the refurbishment of internal and external alterations to make the dwelling suitable for modern living.  The proposal includes the insertion of five roof lights within the roof of the proposed extension and the main dwelling.
2.4  The application is accompanied by a Design and Access Statement, Report on condition of Chancel Cottage dated November 2013, Report Qualifying the Structural Integrity of the Existing Fabric and Impact Assessment of the Proposed Alterations (March 2017), and Repairs Method Statement.
3.	RELEVANT PLANNING HISTORY
3.1.	The following planning history is considered relevant to the current proposal:  
Application Ref.	Proposal	Decision	
	
08/02404/LB	Remove existing window frames from front elevation and bathroom and replace with new (as amplified by applicants letter and accompanying photographs dated 05/01/09 received 07/01/09)	Application Permitted	
	
14/01552/F	Erection of single storey side extension	Application Refused	
	
14/01601/LB	Internal alterations, external alterations (including insertion of six rooflights), demolition of attached outbuildings and erection of single storey extension	Application Refused	
	
15/01327/F	Demolition of attached outbuilding and erection of single storey side extension (revised scheme of 14/01552F)	Application Refused	
	
15/01328/LB	Internal alterations, external alterations (including insertion of six rooflights), demolition of attached outbuildings and erection of single storey extension (revised scheme of 14/01601/LB)	Application Refused	
	
3.2.	An appeal was dismissed for internal alterations, external alterations (including insertion of six roof lights), demolition of attached outbuildings and erection of single-storey rear extension on 21 April 2016 reference: 14/01601/LB.  The Appeal Inspector concluded that the scale and, extent and nature of the works would be significant and intrusive.  The Inspector noted that a less ambitious scheme which addressed the poor condition of the property and addressed the main issues could provide the same benefit. 
3.3.	A subsequent planning and listed building applications were submitted in 2015 both refused on 8th October 2015 for the following reason(s): - The proposed development, by virtue of its scale, form, massing and materials, would result in 'substantial' harm to the character, setting and significance of the Grade II listed Chancel Cottage, and 'less than substantial' harm to the character and appearance of the Steeple Aston Conservation Area and the character, setting and significance of the Grade II* listed St Peter's Church.  The proposal would therefore fail to accord with Policy ESD15 of the Cherwell Local Plan 2011-2031, Policies C28 and C30 of the Cherwell Local Plan 1996, and paragraphs 14, 17, 132 and 134 of the National Planning Policy Framework, and it is considered that this identified harm significantly and demonstrably outweighs the proposal's benefits.
4.	PRE-APPLICATION DISCUSSIONS

4.1.	Pre-application discussions have taken place with regard to this proposal. 

Application Ref.	Proposal	Decision	

16/00208/PREAPP	Internal alterations, external alterations, demolition of attached outbuilding and erection of single storey extension		
	
4.2.	The proposed extension and alterations to the building were considered acceptable in principle, subject to details.

5.	RESPONSE TO PUBLICITY

5.1.	This application has been publicised by way of a site notice displayed near the site, by advertisement in the local newspaper, and by letters sent to all properties immediately adjoining the application site that the Council has been able to identify from its records. The final date for comments was 02.03.2017, although comments received after this date and before finalising this report have also been taken into account. 
5.2.	The comments raised by third parties are summarised as follows:
5.3.	A letter of support has been received from the occupier of a nearby property, commenting that, “the application has our full support. The property is in desperate need of love and attention and needs refurbishment and extension.”
5.4.	The comments received can be viewed in full on the Council’s website, via the online Planning Register.
6.	RESPONSE TO CONSULTATION

6.1.	Below is a summary of the consultation responses received at the time of writing this report. Responses are available to view in full on the Council’s website, via the online Planning Register.
PARISH/TOWN COUNCIL AND NEIGHBOURHOOD FORUMS
6.2.	Steeple Aston Parish Council: The Parish Council wishes to raise no objections to the application and has no further observations.
STATUTORY CONSULTEES
6.3.	Historic England – Commented that the Council should seek a specialist advice from the conservation officer
NON-STATUTORY CONSULTEES
6.4.	Conservation Officer – Originally commented as follows: -
The application is for the ‘Demolition of existing store and repair, refurbishment and extension of main building’. There are some aspects of the repair works to the building which could be dealt with by condition including localised repointing, plaster repairs etc.  However, the structural survey clearly indicates that there are some structural concerns with the building including the outward pressure from the roof and bowing of some of the walls. These issues are fundamental to the restoration of the building and cannot be dealt with by condition.

In particular the south elevation to the rear wing, against which the proposed extension would be built, has some structural issues. The Structural survey states ’The stonework generally requires overhaul and repointing. There is a movement crack to the main building, which has been repointed in a hard cement mortar, which is coming away and further movement cracks beneath the eaves. The movement has occurred to the centre of the wall where the central window has distorted. There is damage to the stonework to the junction with the gable wall to the bathroom section. Clearly there has been outward pressure from the roof. The general tying in and repointing is required. There is a substantial bow to the wall. Investigation should be made into the ground conditions in this area’.  Consent cannot be granted for further works to this area without understanding how the existing structural issues will be dealt with. 

The property has an extensive planning history in recent years including an appeal and pre-application discussions. It has been made clear throughout these discussions that whilst the main topic of contention has been the kitchen extension that full details would be expected in the form of a schedule of works in relation to the restoration of the property as a whole. There has been a recognition that some minimal harm can be allowed to the building in order to obtain the public benefit of repairing the building and bringing it back into domestic use. It is very important that this is acknowledged within the application process and I would suggest that if possible there is a condition to ensure the structural and repair works to the building are undertaken prior to commencement of development on the proposed extension. Harm should not be allowed to significance of the building without the public benefit of restoration. 

In relation to the justification for the precise location of the height / width of the proposed extension this was specifically requested in the pre-application response letter of 25th August 2016 ‘The southern elevation of the stable wing has a number of blocked openings and an existing window. An appropriate design response will need to be proposed which retains as much of the ‘story’ of the development of the building as possible, whilst providing for the modest extension. It is not expected that the stonework on this façade should be ‘tidied up’.

7.	RELEVANT PLANNING POLICY AND GUIDANCE

7.1.	Planning law requires that applications for planning permission must be determined in accordance with the development plan unless material considerations indicate otherwise.

7.2.	The Cherwell Local Plan 2011-2031 - Part 1 was formally adopted by Cherwell District Council on 20th July 2015 and provides the strategic planning policy framework for the District to 2031.  The Local Plan 2011-2031 – Part 1 replaced a number of the ‘saved’ policies of the adopted Cherwell Local Plan 1996 though many of its policies are retained and remain part of the development plan. The relevant planning policies of Cherwell District’s statutory Development Plan are set out below:

CHERWELL LOCAL PLAN 2011 - 2031 PART 1 (CLP 2031 Part 1)
•	ESD15 - The Character of the Built and Historic Environment

CHERWELL LOCAL PLAN 1996 SAVED POLICIES (CLP 1996)
•	C23 - Retention of features contributing to character or appearance of a conservation area 
•	C28 – Layout, design and external appearance of new development
•	C30 - Design of new residential development

7.3.	Other Material Planning Considerations

•	National Planning Policy Framework (NPPF) in particular paragraphs 9 – 17 (presumption), 29-36 (transport), 56-67 (design), 93-104 (climate change and flooding), 109-125 (natural environment), 126-139 (historic environment) and 186-206 (decision taking)

•	Planning Practice Guidance (PPG) - Appendix A to Circular 11/95 – Use of conditions in planning permission
Circular 06/2005 – Biodiversity including statutory obligations within the planning system

Listed Building (Listed Building (Section 16(2) & Section 66(1) and Conservation Area (Section 72(1) of the Listed Buildings and Conservation Areas Act 1990)
The LPA has a statutory duty under Section 72 of the Planning (Listed Buildings and Conservation Areas) Act 1990 to pay special attention to the desirability of preserving or enhancing the character or appearance of a Conservation Area (CA).  Paragraph 131 of the Framework sets out that in determining planning applications, LPAs should take account of the desirability of sustaining and enhancing the significance of heritage assets and putting them to viable uses consistent with their conservation.  Para 132 of the Framework confirms that the significance of a designated heritage asset (including CAs) can be harmed or lost through development within its setting.

8.	APPRAISAL

8.1.	The key issues for consideration in this case are:

Impact on character and appearance of the Conservation Area
Impact on character, setting and significance of the listed building
Impact on setting of other listed buildings
Impact on residential amenity

Impact on character and appearance of the Conservation Area

8.2.	Section 72(1) of the Planning (Conservation Area s) Act 1990 states: “In the exercise, with respect to any buildings or other land in a conservation area, of any functions under or by virtue of any of the provisions mentioned in subsection (2), special attention shall be paid to the desirability of preserving or enhancing the character or appearance of that area.”
8.3.	Policy ESD15 of the Cherwell Local Plan 2011-2031 seeks that development within or affecting the setting of a Conservation Area should conserve, sustain or enhance the character and appearance of the area.
8.4.	The significance of Chancel Cottage as required by paragraph 128 of the Framework has been previously summarised by the applicant as follows:
•	Physical evidence of development of village during 19th century
•	Formality of façade as interpreted by rural craftsman, simplicity of form and absence of elaborate decoration.
•	Plan form and earlier function of various rooms can be interpreted from surviving evidence
•	House along with others providing a sense of enclosure to the street, framing the green space of the churchyard.
•	Views from churchyard where cottage provides a backdrop or visual stop
•	Use of natural, vernacular materials

In addition, the following elements also contribute to the significance of the building:
•	Survival of the plan form with the 18th century single pile plan and the later incorporation of the stable building into the domestic accommodation. 
•	Simple vernacular form of the cottage and survival of historic fabric.

8.5.	As a Grade II listed building bounded by other listed buildings to the north and by the Grade II* listed parish church to its west, the application building is a positive contributor to the character and appearance of the designated Conservation Area.
8.6.	Chancel Cottage originated as a simple, single pile dwelling which was subject to later modification to bring an ancillary wing into domestic ownership.  However, it has been little altered during the latter part of the 20th century, which has ensured the survival of a number of historic features and, although it has also suffered from a lack of maintenance for a period of time, its plan form remains.
8.7.	In this context and for this reason, the proposals would amount to a significant change and would have a significant impact on the character and appearance of the Conservation Area.
8.8.	It remains the case that the proposed extension would alter the plan form of the building by creating a U-plan building based around a court yard.  However, the extension as now proposed would have a width of 3.75m (0.5m greater than that of the existing single storey element which it would replace) and would not project beyond the side building line of the main part of the dwelling.  The extension is also shorter than previous proposals and its ridge would now be set below the eaves of the existing two storey rear projection from which it in turn would project.
8.9.	These amended proposals, which have subject of a pre-application enquiry and much discussion, are considered to have addressed the Council’s concerns in relation to previously refused schemes (and with which the Planning Inspector agreed) and concerning their impact on the character and appearance of the Conservation Area.  In this specific regard, the amended proposal would accord with with Policy ESD15 of the Cherwell Local Plan 2011-2031 and Policies C28 and C30 of the Cherwell Local Plan 1996.
Impact on character, setting and significance of the listed building
8.10.	As noted by the Conservation Officer, it was made clear throughout the pre-application discussions that, while the main topic of contention had been the kitchen extension, full details would be expected in the form of a schedule of works in relation to the restoration of the building as a whole. Notwithstanding the above, it is accepted that some minor harm can be allowed to the building in order to obtain the public benefit of repairing the building and bringing it back into domestic use.
8.11.	There are various elements proposed, as set out in the submitted drawings, other than the single storey extension, but none requires full planning permission other than the insertion of insertion of two side-facing rooflights in two storey gable projection.
8.12.	Other works are mentioned in the structural survey submitted with the current applications.  In particular the south elevation to the rear wing, against which the proposed extension would be built, has some structural issues. The Structural survey states ’The stonework generally requires overhaul and repointing. There is a movement crack to the main building, which has been repointed in a hard cement mortar, which is coming away and further movement cracks beneath the eaves. The movement has occurred to the centre of the wall where the central window has distorted. There is damage to the stonework to the junction with the gable wall to the bathroom section. Clearly there has been outward pressure from the roof. The general tying in and repointing is required. There is a substantial bow to the wall. Investigation should be made into the ground conditions in this area’.  The Conservation Officer objected to consent being granted for further works to this area without understanding how the existing structural issues will be dealt with.
8.13.	The planning officers would agree with the Conservation Officer that it would not be acceptable for any of these works taking place without full details of the same first being submitted to and approved in writing by the Local Planning Authority.  These should be tied by condition to the current consent because these alterations are fundamental to the restoration of the building and provide the public benefit that balances the minor harm caused to the building by the proposals listed above.  As noted by the Conservation Officer: “Harm should not be allowed to significance of the building without the public benefit of restoration.” It is therefore recommended that appropriate conditions be imposed in order that the proposal cumulatively does not result in demonstrable harm to the listed building that is not outweighed by the public benefits of repair and restoration of the building.
Impact on setting of other listed buildings

8.14.	Other than Fir Lane, the only footpath from where the extension and those adjacent listed buildings would be seen and experienced together is the one to the south-east of the site, which heads eastward away from the village.  From this footpath the extension would not compete visually with those listed buildings to the same extent it would in the case of Chancel Cottage.
8.15.	The view of Chancel Cottage from the Church and its churchyard is currently one of the unaltered front elevation, with open, undeveloped space to the side, with views of the allotments and countryside beyond.  Having regard to (i) the historic and cultural importance of the Church, (ii) the site’s location within the Conservation Area, and (iii) that the Grade II* listed Church is ‘surrounded’ by a cluster of approximately eight Grade II listed buildings, the intervisibility of the heritage assets and views from/to the heritage assets are considered particularly important.
8.16.	The proposed extension would be significantly longer and wider in size and scale than the existing storage shed which it would replace.  Furthermore, it would be constructed in matching external materials to those with the main dwelling and would make a viable use of the dwelling. Although it is considered that the proposed extension would fundamentally alter the experience of the existing building and create a situation whereby the original plan form (footprint) becomes distorted to an extent nevertheless, it is considered that the proposals would not result in demonstrable harm to the settings of these listed buildings, nor would the setting of the Grade II* listed St Peter's Church and views from/to it would not be unacceptably compromised.  The proposal would therefore accord with Policy ESD15 of the Cherwell Local Plan 2011-2031 in this regard.
Impact on residential amenity and highway safety

8.17.	Having regard to its scale and siting, it is considered that the proposal would not adversely affect the living conditions of neighbouring residents, either through loss of outlook, loss of light or through being overbearing or imposing, and would thus accord with Policy ESD15 of the Cherwell Local Plan 2011-2031 and Policy C30 of the Cherwell Local Plan 1996 in this regard.
8.18.	Alterations to and extension of the existing access onto Fir Lane does not require permission since the highway is not classified.  It is considered that, subject to conditions in respect of hard landscaping and boundary treatment, the proposal would not significantly impact on local highway safety.
9.	PLANNING BALANCE AND CONCLUSION
9.1.	For the reasons set out in this report, the current proposals would not adversely affect the living conditions of neighbours or local highway safety and would respect the setting of the various Grade II listed buildings in the vicinity and the Grade II* listed St Peter’s Church.  The current proposals would result in minor harm to the significance of the listed building but which, subject to conditions, would be balanced by the public benefits of repair and restoration of the building.  The proposals would thus accord with Policy ESD15 of the Cherwell Local Plan 2011-2031 and saved Policies C28 and C30 of the Cherwell Local Plan 1996 and the relevant paragraphs of the National Planning Policy Framework.
10.	RECOMMENDATION
That permission is granted, subject to the following conditions:

1.	The development to which this permission relates shall be begun not later than the expiration of three years beginning with the date of this permission.

Reason - To comply with the provisions of Section 91 of the Town and Country Planning Act 1990, as amended by Section 51 of the Planning and Compulsory Purchase Act 2004.

2.	Except where otherwise stipulated by condition, the development shall be carried out strictly in accordance with the following plans and documents: Application forms, Report on the condition of Chancel Cottage, Repairs Method Statement, Structural Engineer's Report and drawings numbered: (059_1_100 PL1, 059_1_102 PL1, 059_1_103 PL1, 059_1_104 PL1, 059_1_105 PL1, 059_1_106 PL1, 059_1_107 PL1, 059_1_108 PL1, 059_1_109 PL1, 059_1_110 PL1, 059_1_111 PL1, 059_1_113 PL1 (Existing Plans), 
059_1_202 PL2, 059_1_203 PL2, 059_1_204 PL2, 059_1_205 PL2, 059_1_206 PL2, 059_1_207 PL2, 059_1_208 PL2, 059_1_209 PL2, 059_1_210 PL2, 059_1_211 PL2, 059_1_212 PL2, 059_1_213 PL2, 059_1_214 PL2, 059_1_302 PL2, 059_1_303 PL1, 059_1_304 PL1, 059_1_305 PL1, 059_1_306 PL1, 059_1_307 PL1, 059_1_308 PL1, 059_1_309 PL1, 059_1_310 PL1, 059_1_311 PL1, 059_1_312, 059_1_313_PL1 and 059_1_314 PL2) (Proposed Plans).
Reason – For the avoidance of doubt, to ensure that the development is carried   out only as approved by the Local Planning Authority and comply with Government guidance contained within the National Planning Policy Framework.

3.	Prior to the commencement of the development hereby approved, a stone sample panel (minimum 1m2 in size) shall be constructed on site in stone to match that of the existing building, which shall be inspected and approved in writing by the Local Planning Authority. Thereafter, the walls of the extension shown on the approved plans to be constructed in stone shall be laid, dressed, coursed and pointed in strict accordance with the approved stone sample panel. 
		
Reason - To ensure that the completed development is in keeping with and conserves the special character of the existing historic building and to comply with Policy ESD15 of the Cherwell Local Plan 2011-2031 Part 1, saved Policy C28 of the Cherwell Local Plan 1996 and Government guidance contained within the National Planning Policy Framework.

4.	Prior to the commencement of the development hereby approved, full details of the doors, windows and glazing hereby approved, at a scale of 1:20 including a cross section, cill, lintel and recess detail and colour/finish, shall be submitted to and approved in writing by the Local Planning Authority. Thereafter the doors, windows and glazing shall be installed within the building in accordance with the approved details and retained as such thereafter.
	
Reason - To ensure that the completed development is in keeping with and conserves the special character of the existing historic building and to comply with Policy ESD15 of the Cherwell Local Plan 2011-2031 Part 1, saved Policy C28 of the Cherwell Local Plan 1996 and Government guidance contained within the National Planning Policy Framework.

5.	Prior to the commencement of development hereby approved, details of how the extension will attach to the existing walls of the dwelling shall be submitted to and approved in writing by the Local Planning Authority. Thereafter the development shall be carried out in accordance with the approved details.
	
Reason - To ensure that the completed development is in keeping with and conserves the special character of the existing historic building and to comply with Policy ESD15 of the Cherwell Local Plan 2011-2031 Part 1, saved Policy C28 of the Cherwell Local Plan 1996 and Government guidance contained within the National Planning Policy Framework

6.	Prior to the commencement of the development hereby approved, a schedule of all externally facing materials of the development hereby approved shall be submitted to and approved in writing by the Local Planning Authority. Thereafter the development shall be carried out in accordance with the approved schedule and retained as such thereafter.

Reason - To ensure the satisfactory appearance of the completed development and to comply with Policy ESD 15 of the Cherwell Local Plan 2011-2031 Part 1, saved Policy C28 of the Cherwell Local Plan 1996 and Government guidance contained within the National Planning Policy Framework.

7.	The roof of the development hereby approved shall be covered with natural stone slates which shall be laid in courses diminishing in width from the eaves to the ridge of the roof in accordance with the traditional practice in the locality.

Reason: To ensure that the completed development is in keeping with and conserves the special character of the existing historic building and to comply with Policy ESD15 of the Cherwell Local Plan Part 1 2011-2031 Part 1 and Government guidance contained within the National Planning Policy Framework.

8.	Prior to the commencement of the development hereby approved, full details of the means of access between the land and the highway, including, position, layout, construction, drainage and vision splays shall be submitted to and approved in writing by the Local Planning Authority. Thereafter, the means of access shall be constructed and retained in accordance with the approved details.

Reason: In the interests of highway safety and to comply with Policy ESD 15 of the Cherwell Local Plan 2011-2031 Part 1 and Government guidance contained within the National Planning Policy Framework.

9.	Prior to the commencement of the development, full specification details (including construction, layout, surfacing and drainage) of the turning area and 2no. parking spaces within the curtilage of the site, arranged so that motor vehicles may park off the highway, shall be submitted to and approved in writing by the Local Planning Authority prior to the commencement of development.  Thereafter, and prior to the first occupation of the development, the turning area and car parking spaces shall be constructed in accordance with the approved details and shall be retained for the parking and manoeuvring of vehicles at all times thereafter. 

Reason: In the interests of highway safety, to ensure the provision of off-street car parking and to comply with Policy ESD 15 of the Cherwell Local Plan 2011-2031 Part 1 and Government guidance contained within the National Planning Policy Framework.

	

Case Officer: 	Richard Sakyi	DATE: 27.07.17	
Checked By: 	Nathanael Stock	DATE: 02.08.2017