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. 	Listed building consent is sought for the demolition of existing stores and repair, refurbishment and extension of main building. 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 proposed extension would be flush with the flank wall of the main dwelling with matching external materials. The proposal includes the insertion of five roof lights within the roof of the proposed extension and the main dwelling.
2.2.  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	
	
17/00005/F	Demolition of existing stores and repair, refurbishment and extension of main building	Pending Decision	
	
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	
	
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. 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. 
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)

•	C18 – Development proposals affecting a listed building

7.3.	Other Material Planning Considerations

•	National Planning Policy Framework (NPPF)
•	Planning Practice Guidance (PPG)

8.	APPRAISAL

8.1.	The key issue for consideration in this case is the proposal’s impact on the character, significance and setting of the listed building. 

8.2.	The NPPF states ‘When considering the impact of a proposed development on the significance of a designated heritage asset, great weight should be given to the asset’s conservation. The more important the asset, the greater the weight should be.’
8.3.	Policy C18 of the Cherwell Local Plan 1996 (saved polices) states ‘the council will normally only approve internal and external alterations or extensions to a listed building which are minor and sympathetic to the architectural and historic character of the building.’
Impact on character, setting and significance of the listed building

8.4.	Chancel Cottage is a C18 grade II listed detached house in Steeple Aston. The listing description describes it as having an L shape plan, two storeys plus an attic and is constructed of coursed limestone with ashlar dressings and limestone rubble with wooden lintels. Its original roof is of stonefield-slate, albeit that the rear roof slope of the roof of the front range has been re-covered in plain concrete tiles; it also has rebuilt brick gable stacks. The house has a symmetrical two window front with a central door below a flat stone canopy. The rear range returns from the left and forms a lower wing partly converted from a stable.

8.5.	The significance of the building is derived from its architectural composition and appearance, its historical record, use of materials and its setting in the village providing physical evidence of the development of the village.

8.6.	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.

8.7.	There are various elements proposed, as set out in the submitted drawings, other than the single storey extension.  These are summarised as:

Ground floor
External – Demolition of existing stores; demolition of external wall and window to two storey gable projection;
Internal/LB only – Removal of internal walls from existing bathroom; removal of door between bathroom and kitchen; removal of cupboard doors in kitchen; removal of part of internal ex-fireplace wall in kitchen; removal of doors to stairs; removal of door inside the living room; demolition of part of wall in rear elevation of main part of building form a window; insertion of new door
First floor
LB only – Demolition of part of internal wall between bedroom and current roof space; removal of two doors and parts of internal walls; insertion of new walls and doors
Roof level
Alterations to roof and insertion of two rooflights in two storey gable projection; removal of rear roofslope and insertion of two rooflights
8.8.	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.

8.9.	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.  The proposal would therefore accord with Policy ESD15 of the Cherwell Local Plan 2011-2031 in this regard.

9.	PLANNING BALANCE AND CONCLUSION
9.1.	For the reasons set out in this report, 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 Policy C18 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 works to which this consent relates shall be begun not later than the expiration of three years beginning with the date of this consent.
	
	Reason - To comply with the provisions of Section 18 of the Planning (Listed Buildings and Conservation Areas) 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 to comply with Government guidance contained within the National Planning Policy Framework.

3.	Except where indicated otherwise on the approved drawings or as required by any condition(s) attached to this consent, all new external and internal works and finishes, works of making good and dimensions and profiles of joinery shall match the existing original adjacent work in respect of materials used, detailed execution and finished appearance. 

Reason: To safeguard the special architectural or historic interest, character, appearance and integrity of the Listed building and to comply with Policy ESD15 of the Cherwell Local Plan 2011-2031 Part 1, saved Policy C18 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, details of all internal alterations and the methods, materials and components to be used in the works shall be submitted to and approved in writing by the Local Planning Authority. Works shall include (but are not limited to) structural strengthening, timber re-jointing, re-plastering, ceilings (rafters and purlins), providing service routes and alteration, flooring, replacement or maintenance of architectural features.  The development shall be completed in accordance with the approved details and retained as such thereafter. 

Reason: To safeguard the special architectural or historic interest, character, appearance and integrity of the Listed building and to comply with Policy ESD15 of the Cherwell Local Plan 2011-2031 Part 1, saved Policy C18 of the Cherwell Local Plan 1996 and Government guidance contained within the National Planning Policy Framework.

5.	Prior to the commencement of the development hereby approved details of all external construction works, the methods, materials and components to be used in the Works shall be submitted to and approved in writing by the Local Planning Authority. Works shall include (but are not limited to) alteration, replacement or maintenance of stonework, bonding, mortar, roof materials, fenestration (restoration and replacement), rainwater goods and decorative features. The development shall be undertaken strictly in accordance with the approved details and retained as such thereafter.

Reason: To safeguard the special architectural or historic interest, character, appearance and integrity of the Listed building and to comply with Policy ESD15 of the Cherwell Local Plan 2011-2031 Part 1, saved Policy C18 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 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 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.
7.	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 C18 of the Cherwell Local Plan 1996 and Government guidance contained within the National Planning Policy Framework
8.	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 C18 of the Cherwell Local Plan 1996 and Government guidance contained within the National Planning Policy Framework.

9.	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

10.	Details of steps and works specified in conditions shall, where necessary, include in relation to any part of the building to be retained measures to strengthen all walls and vertical surfaces, to support all floors, roofs and horizontal surfaces and to provide protection for the building against the weather during the progress of the works. 
Reason: To minimise the risk of damage to the existing building in accordance with Policy ESD15 of the Cherwell Local Plan 2011-2031 Part 1, saved Policy C18 of the Cherwell Local Plan 1996 and Government guidance contained within the National Planning Policy Framework.
11.	Notwithstanding the details submitted with the application, the rooflights used in the development shall be of a 'conservation' type, shall be slim framed and shall be set flush with the plane of the roof. Prior to the commencement of development details of the design and finish shall be submitted to and approved in writing by the local planning authority. Thereafter, the development shall be carried out in accordance with the details approved and maintained as such thereafter.
Reason:  To safeguard the special architectural or historic interest, character, appearance and integrity of the Listed building and to comply with Policy ESD15 of the Cherwell Local Plan 2011-2031 Part 1 and Government guidance contained within the National Planning Policy Framework.
12.	Prior to the removal of any material from the site a detailed written and photographic record of the building and its curtilage shall be taken.  Both this and all other works hereby approved shall be supervised by a person approved by the Local Planning Authority. Written notice of the completion of the works hereby permitted shall be sent to the Local Planning Authority upon their completion and within 6 months of this completion of the works two copies of a written and photographic record of the works shall be submitted to the Local Planning Authority for inclusion in the Historic Environmental Records. 
Reason: In order to ensure that the works to this historic building and its surroundings are adequately recorded with regard to Policy ESD15 of the Cherwell Local Plan 2011-2031 Part 1, saved Policy C18 of the Cherwell Local Plan 1996 and Government guidance contained within the National Planning Policy Framework.	

Case Officer: 	Richard Sakyi	DATE: 31.07.2017	
Checked By: 	Nathanael Stock	DATE: 02.08.2017