1.	APPLICATION SITE AND SUMMARY OF SIGNIFICANCE 

1.1.	The site is located on the far western edge of Sibford Gower, to the north of Main Street, which is the primary road running through the village. To the west past the site are public footpath 348/8/10 (southwest) and public bridleway 348/7/10 (northwest). The site is currently in use as a garage/outbuilding for Lane Head, which is a Grade II Listed Building to the east, separated by its garden curtilage. The site is also located within the designated Sibford Gower and Burdrop Conservation Area, and 5 other Grade II Listed Buildings are within close proximity, all to the east. To the south and west is more modern housing development. 
1.2.	The outbuilding is considered to be curtilage listed to Lane Head, which is a late C17 cottage with traditional steeply pitched thatch roof and ironstone walls. Its significance derives primarily from being a good example of vernacular domestic architecture and building forms, but there is a group value when considered with other traditional buildings in the area which together evidence the historic settlement pattern in this part of the village. Outbuildings are typically modest and clearly subservient to the host buildings.
2.	DESCRIPTION OF PROPOSED DEVELOPMENT
2.1.	The applicant seeks listed building consent for the demolition of the existing garage to form a single dwelling, and conversion and extension of the existing outbuilding (poolhouse) to form a garage with ancillary accommodation above for the use of Lane Head. The new dwelling would be 2 storeys and dual pitched with its side gabled elevation fronting on to Main Street, and the rear of the dwelling adjoining the new garage for Lane Head. The dwelling would reach a ridge height of 7m, whereas the extended garage would be set down slightly in height, but still at 2 storey level with a games room/guest bedroom above, and the eaves of this element fronting Main Street. The building would be built in local stone, under clay tile and natural slate roofing, with rendered detailing. 
2.2.	The applicant proposes garden space for the new dwelling in land to the north of the parking area, between the front gable of the property and the new retaining boundary wall to the west.
2.3.	Amendments were received during the course of the application following concerns raised by the Highway Liaison Officer. The amended plans show the 2 tandem parking spaces proposed to serve the new dwelling to be set further back in to the site, and the proposed garage doors are also to be indented further back in to the garage building, which would allow for the proposed parking in front of the garages to be set off the highway. 
3.	RELEVANT PLANNING HISTORY

3.1.	The following planning history is considered relevant to the current proposal: 
Application Ref.	Proposal	Decision	
	
CHN.523/87	Conversion of existing flat-roofed garage to a pitch-roofed single storey bedroom flat (Granny Annexe)	Refused and Dismissed at Appeal	
	
07/01639/LB	Replace ridge and top layer of thatch as existing. Part retrospective.	Application Permitted	

11/01400/F	Installation of air source heat pump	Application Permitted	
	
3.2.	CHN.523/87 - The Inspector considered that the main issue was whether the proposed development would seriously harm the character and appearance of this part of Sibford Gower. 
3.3.	It was considered that the resulting building would spoil the local scene by way of a substantial increase in terms of height and bulk of the existing garage building, to an extent that it would present an excessively intrusive appearance and a cramped form of development seriously detrimental to an attractive part of Sibford Gower.  
3.4.	The Inspector determined that the Councils refusal reasons regarding the possible future use of the flat separate from the main dwelling and inadequate parking provisions were not sufficient reasons for refusal on their own. 
4.	PRE-APPLICATION DISCUSSIONS
4.1.	No pre-application discussions have taken place with regard to this proposal. 

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 04.05.2017, 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:
•	Overdevelopment of site, loss of wall, impact on landscape, impact on Conservation Area and Lane Head. 
•	Overlooking in to rear garden and conservatory, impact on hedge and if removed would further reduce privacy  
•	Lack of amenity space for future occupiers, cramped accommodation 
•	New building impact on quiet, narrow lane, reducing ease of access for emergency vehicles, overspill cars parking on road, cars wouldn’t use garages
•	Inaccurate plans showing more space available behind rear elevation
•	Subsidence of Rye Hill Lodge
5.3.	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.	SIBFORD GOWER PARISH COUNCIL: No objections – but the Parish asks that the Council takes seriously the concerns raised by neighbours. Noted are highway matters and impact on privacy 
OTHER CONSULTEES
6.3.	CDC CONSERVATION: Objects 
The proposed development lies within the Sibford Gower and Burdrop Character Area of the Sibford Ferris, Sibford Gower and Burdrop Conservation Area.  The specific area in which the development lies is a narrow, single track road leading to a footpath / private road at the western end of the village. 
The land lies within the ownership of Lane Head, a grade II listed building, which was historically a terrace of 2 or 3 cottages at different dates, but now forms a single dwelling. The listed building is located at some distance to the east of the proposed development, at the end of a linear piece of land. 
The land is currently occupied by a single storey, flat roofed garage and there are no objections to its demolition. The outbuilding, which is to be converted, appears to be of early 20th century date – it is first shown on the historic OS map of 1913-1923, although the form of it has changed over time. The building is considered to be curtilage listed. 
 
Historic OS map 1875-1887
 
Historic OS map 1913-1923
The proposed development is at the western extent of the settlement within the historic core, but is in close proximity to a number of more modern developments including High Field, Whitts End, Lodge and Bridleways. Two of these properties are located outside of the conservation area boundary (High Field and Whitts End) and it should be noted that they are set back from the roadside. The proposal to emulate this form of development (as outlined in the Design and Access Statement) is entirely inappropriate. The proposed development would essentially be two separate units (the outbuilding associated with Lane End and a separate dwelling), but would be read as one. This large property would be located immediately adjacent to the roadside along an extremely narrow lane. 
There would also be an impact on the setting of the listed building with the substantial alteration of the existing low key outbuilding to a large property of domestic appearance. This would be detrimental to the visual setting of the listed building as well as the relationship between the two buildings which would be fundamentally altered. 
The scale, massing and inappropriate form and design of the proposed development are considered to cause harm to the character and appearance of the conservation area and the setting of the listed building.  There is not perceived to be a public benefit to outweigh this harm and therefore it is contrary to the National Planning Policy Framework. 
The proposed development is not considered to ‘Contribute positively to an area’s character and identity by creating or reinforcing local distinctiveness and respecting local topography and landscape features’ or Respect the traditional pattern of routes, spaces, blocks, plots, enclosures and the form, scale and massing of buildings’ and is therefore contrary to the Cherwell Local Plan 2011-2031.
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 – Proposals affecting a listed building

7.3.	Other Material Planning Considerations

•	National Planning Policy Framework (NPPF)
•	Planning Practice Guidance (PPG)
•	Managing Significance in Decision-Taking in the Historic Environment: Historic England Good Practice (2015)
•	The Setting of Heritage Assets: Historic England Good Practice (2015)

8.	APPRAISAL

8.1.	The key issue for consideration in this case is the impact on the historic significance and setting of the listed building(s).

8.2.	Section 16(2) of The Planning (Listed Buildings and Conservation Areas) Act 1990 (as amended) states that: In considering whether to grant listed building consent for any works the local planning authority or the Secretary of State shall have special regard to the desirability of preserving the building or its setting or any features of special architectural or historic interest which it possesses. Further, under Section 72(1) of the same Act the Local Planning Authority has a statutory duty to pay special attention to the desirability of preserving or enhancing the character or appearance of a Conservation Area.

8.3.	Listed Buildings and Conservation Areas are designated heritage assets, and Paragraph 129 of the NPPF states that: Local planning authorities should identify and assess the particular significance of any heritage asset that may be affected by a proposal (including by development affecting the setting of a heritage asset) taking account of the available evidence and any necessary expertise. 

8.4.	Paragraph 132 of the NPPF states that: 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. Significance can be harmed or lost through alteration or destruction of the heritage asset or development within its setting. As heritage assets are irreplaceable, any harm loss should require clear and convincing justification. Policy ESD15 of the CLP 2031 Part 1 echoes this guidance.

8.5.	Currently, the garage/outbuilding has a low profile and appears subservient to the dwellings opposite and in particular Lane Head to the east. The existing buildings are also dwarfed by Rye Hill Lodge to the northwest and by the large leylandii hedge to the north, which separates the site and the curtilage of Rye Hill Lodge. As such, they do not appear unduly prominent or oppressive in the streetscene.

8.6.	It is considered that the changes proposed would significantly alter the character of the site and the area. While it is noted that the existing stone wall and garage/outbuilding provide a sense of enclosure along this land, it is considered that the new buildings proposed would substantially increase the scale, and would be visually prominent and dominating particularly considering the close relationship with the narrow lane. Where currently users of the lane begin to experience the gradual transition from the built form on Main Street to the open and rural character of the lane and surrounding fields, the introduction of this dwelling/garage is considered to create an urbanising effect on the site and its context, and cause harm to the designated Conservation Area. While it is noted that the dwelling and garage proposed are separate units, they would effectively be read as one building in the streetscene with a substantial combined massing and convoluted form. Therefore the siting and scale of the proposed structure would compete in prominence with the Grade II Listed Lane Head, detracting from its setting and significance, and would harm the character and appearance of the Conservation Area by introducing a cramped form of development that is not traditional in form or appearance. 

8.7.	The design of the proposal, with regard to the various projecting elements, and somewhat overcomplicated fenestration style, roof form, and range of materials is considered to compound the harm to the character and appearance of the area and in particular the setting of the Grade II Listed Lane Head. Lane Head is a simple, linear dwelling with a deep, narrow garden. It is considered that the design and scale of the proposed dwelling/outbuilding would compete with the form and scale of the Grade II listed building and would cause harm to its setting and significance, and so would fail to preserve or enhance the heritage asset. 

8.8.	In addition, the amendments to indent the garage doors further within the garage unit are considered to cause additional harm to the visual amenity of the site in the context of the surrounding area. This is not a traditional arrangement and would appear contrived, emphasising the inappropriateness and cramped nature of the development in this location.

8.9.	The existing outbuilding is considered to be curtilage listed. Whilst it is not considered to be of particular historic significance in its own right, for the reasons outlined above the proposed alterations are considered to harm what significance it has and in particular the contribution it makes to the setting and significance of the principal listed building. 

8.10.	In summary, the proposed dwelling/garage, by reason of its siting, scale, design and detailing would cause significant and demonstrable harm to the Sibford Gower and Burdrop Conservation Area and the setting of Lane Head, a Grade II Listed Building and would fail to preserve or enhance the heritage assets. As a result, the proposals fail to comply with Policy ESD15 of the Cherwell Local Plan 2011 – 2031 Part 1, Saved Policy C18 of the adopted Cherwell Local Plan 1996 and Government guidance contained within the National Planning Policy Framework.  

9.	PLANNING BALANCE AND CONCLUSION
9.1.	The NPPF states that the purpose of the planning system is to contribute to the achievement of sustainable development. Paragraph 8 requires that the three dimensions to sustainable development (economic, social and environmental) are not undertaken in isolation, but are sought jointly and simultaneously.
9.2.	By virtue of its size, form, appearance and massing, the proposed new dwelling and altered outbuilding would appear as cramped and contrived development that would represent a significant and demonstrable visual intrusion into the existing rural character of the area and the setting of Lane Head, causing less than substantial harm to the setting and significance of the Grade II Listed buildings and the designated Sibford Gower and Burdrop Conservation Area. 
9.3.	Whilst the proposal would deliver a modest social benefit in the form of social housing, this is not considered to outweigh the significant harm identified. The proposal is therefore contrary to the Policies set out in section 7 of this report for the reasons as set out below.

10.	RECOMMENDATION
That consent is refused, for the following reason:

1.	By reason of its complicated form and contrived layout, increased scale and massing in comparison to the existing buildings, and unsympathetic detailing and appearance, the proposal is considered to cause harm to the setting and significance of the Grade II listed Lane Head and its associated outbuildings, and the character and appearance of the designated Sibford Gower and Burdop Conservation Area, contrary to Policy ESD15 of the Cherwell Local Plan (2011-2031), and Saved Policy C18 of the Cherwell Local Plan (1996) and government guidance contained within the National Planning Policy Framework. 

PLANNING NOTES 

1.	For the avoidance of doubt, the plans and documents considered by the Local Planning Authority in reaching its decision on this application are Application Forms, Documents 3139 DA&HS and 3139 WMS, Site Location Plan and drawing numbered 3194-1.02.2 B. 	

Case Officer: 	George Smith	DATE: 23rd June 2017	
Checked By: 	Alex Keen	DATE: 23rd June 2017