For and on behalf of David and Stephanie Wosskow

PLANNING STATEMENT

Land at the rear of 45 Dore Road, Sheffield

Prepared by DLP Planning Ltd Sheffield

January 2021

YK5518/1P Land at the rear of 45 Dore Road, Sheffield January 2021 Planning Statement

Beth Evans Prepared by: BSc MSc MRTPI Senior Planner Jim Lomas Approved by: BA (Hons) MRTPI Regional Director Date: January 2021

DLP Planning Ltd Ground Floor V1-Velocity Tenter Street Sheffield S1 4BY

Tel: 01142 289190

DLP Consulting Group disclaims any responsibility to the client and others in respect of matters outside the scope of this report. This report has been prepared with reasonable skill, care and diligence. This report is confidential to the client and DLP Planning Ltd accepts no responsibility of whatsoever nature to third parties to whom this report or any part thereof is made known. Any such party relies upon the report at their own risk.

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CONTENTS PAGE

1.0 INTRODUCTION ...... 4 2.0 SITE DESCRIPTION ...... 6 3.0 PROPOSED DEVELOPMENT ...... 9 4.0 PLANNING POLICY CONTEXT ...... 14 5.0 MATERIAL CONSIDERATIONS ...... 27 6.0 CONCLUSION ...... 52

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1.0 INTRODUCTION

1.1 This Planning Statement has been prepared by DLP Planning Ltd (“DLP”) on behalf of David and Stephanie Wosskow (“the Applicant”) in support of a full planning application for the erection of two residential dwellings following demolition of existing garden chalet to facilitate access at land at the rear of 45 Dore Road, Sheffield, S17 3NA (“the site”).

1.2 By way of background, an application for the erection of three residential dwellings following demolition of the existing garden chalet to facilitate access at the site was refused by Sheffield City Council on 30 October 2020 (reference: 19/03983/FUL). The application was refused under delegated powers, and the decision notice listed two reasons for refusal, as follows:

1) The Local Planning Authority considers that the layout and general form of the proposed 3 new dwellings will result in a scheme that is totally out of character with the general layout and form of existing residential properties in the immediate area and on this section of Dore Road, and as such, this development will be contrary to Policy CS31 of the Sheffield Core Strategy which seeks to ensure that the prevailing character of residential suburbs in the south-west area of Sheffield is sympathetically maintained. In addition to Policy CS31, the proposal would also conflict with Paragraph 127 of the National Planning Policy Framework (NPPF) which seeks to ensure that new developments are visually attractive as a result of good architecture, layout and, are sympathetic to local character.

2) The Local Planning Authority considers that the proposed first-floor gable-end windows to each of the master bedrooms would, because of their close proximity to the boundary, result in direct overlooking and loss of privacy to the occupiers of neighbouring property (at no. 47 Dore Road), and as such, the proposal would be contrary to Policies BE5 and H14 of the Sheffield Unitary Development Plan and also contrary to Guideline 5 of the adopted 'Designing House Extensions' Supplementary Planning Guidance (SPG). The proposal would also conflict with Paragraph 127 of the National Planning Policy Framework (NPPF) which seeks to promote health and well-being with a high standard of amenity for existing and future users.

1.3 It is the Applicant’s position that this decision was erroneous and that there are compelling

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grounds to contest the reasons for refusal. An appeal has therefore been submitted in this regard. Notwithstanding this, this current application comprises a revised scheme, reducing the number of proposed dwellings to two, whilst responding to the previous reasons for refusal.

1.4 This Statement will set out the site context and details of the proposed development, assess the proposal against national and local planning policies and objectives and also address all other material planning considerations. Ultimately, it will demonstrate that the proposed development is acceptable in the context of national and local planning policy and guidance.

1.5 This Statement should be read alongside the host of supporting documents submitted with the application, as follows:

• Application Form and Certificate;

• Full Suite of Planning Drawings;

• Topographical Survey;

• Design Statement; and

• Tree Survey.

1.6 Section 2 of the report provides a description of the site and surrounding area, including details of associated planning history. Section 3 provides a description of the proposed development; Section 4 reviews relevant national and local planning policy; Section 5 considers the key planning issues relevant to the application; and Section 6 provides conclusions.

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2.0 SITE DESCRIPTION

2.1 The application site comprises land to the rear of 45 Dore Road, Sheffield, S17 3NA, as shown in the map extract below (Figure 1).

Figure 1. Aerial View of the Site (Source: Google Maps)

2.2 45 Dore Road itself is a two-storey detached dwelling set back from Dore Road by approximately 25 metres and is defined by a low stone wall with a separate ‘in and out’ vehicle access serving a looped driveway. The front garden area is landscaped with a range of trees and shrubs. The rear garden comprises of a rear patio/terrace area and a garden area incorporating areas of lawn and planting. The property has been significantly extended in the past and, there are a range of domestic outbuildings in the rear garden (i.e. a shed, greenhouse and a large wooden summerhouse).

2.3 The application site is approximately 0.4ha in size and is relatively level, with only a very gentle downward slope from north to south and west to east.

2.4 The site is located entirely within Flood Zone 1 on the Environment Agency’s Flood Map, which means that the site has a less than 1 in 1,000 annual probability of river or sea flooding. The site is also located in an area at very low risk of surface water flooding on the Environment Agency’s Flood Map, which means that each year, the site has a less than 0.1%

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chance of surface water flooding. It is of note that the National Planning Practice Guidance sets out that residential development is an appropriate land use in Flood Zone 1 (Paragraph 066, reference ID 7-066-20140306).

2.5 The site is not located within or adjacent to the boundary of a Conservation Area, and there are no listed buildings or scheduled monuments on the site or in close proximity to the site.

2.6 In terms of the surrounding area, the characteristics of are entirely residential in nature. The appeal site is bound by existing residential properties at either side (43 and 47 Dore Road) and also at the rear (29 and 31 Cavendish Avenue). There are also residential properties opposite the appeal site, along Dore Road.

Planning History

2.7 From a review of the Council’s online register of planning applications, there is the following planning history for 45 Dore Road, as set out in Table 1 below.

Application Reference Proposal Decision

19/03983/FUL Erection of three Refused – 30 October 2020 dwellinghouses including demolition of existing garden chalet to facilitate access

80/02826/FUL Alterations and extension to Granted conditionally – 26 be used as dwellinghouse November 1980 and garage

80/01889/FUL Alteration and extension to Granted conditionally – 9 dwellinghouse incorporating July 1980 a covered swimming pool

80/01104/FUL Alterations and extension to Refused – 29 April 1980 house and covered swimming pool

Table 1. Planning History

2.8 As noted above, this application is a re-submission of planning application ref. 19/03983/FUL which was refused on 30 October 2020 for the following reasons:

1) The Local Planning Authority considers that the layout and general form of the

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proposed 3 new dwellings will result in a scheme that is totally out of character with the general layout and form of existing residential properties in the immediate area and on this section of Dore Road, and as such, this development will be contrary to Policy CS31 of the Sheffield Core Strategy which seeks to ensure that the prevailing character of residential suburbs in the south-west area of Sheffield is sympathetically maintained. In addition to Policy CS31, the proposal would also conflict with Paragraph 127 of the National Planning Policy Framework (NPPF) which seeks to ensure that new developments are visually attractive as a result of good architecture, layout and, are sympathetic to local character.

2) The Local Planning Authority considers that the proposed first-floor gable-end windows to each of the master bedrooms would, because of their close proximity to the boundary, result in direct overlooking and loss of privacy to the occupiers of neighbouring property (at no. 47 Dore Road), and as such, the proposal would be contrary to Policies BE5 and H14 of the Sheffield Unitary Development Plan and also contrary to Guideline 5 of the adopted 'Designing House Extensions' Supplementary Planning Guidance (SPG). The proposal would also conflict with Paragraph 127 of the National Planning Policy Framework (NPPF) which seeks to promote health and well-being with a high standard of amenity for existing and future users.

2.9 This current application comprises an updated scheme and responds to the reasons for refusal.

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3.0 PROPOSED DEVELOPMENT

3.1 As noted above, this application is a re-submission of planning application ref. 19/03983/FUL which was refused on 30 October 2020. This application comprises a revised scheme, reducing the number of proposed dwellings to two, whilst responding to the previous reasons for refusal.

3.2 The proposed development seeks full planning permission for the construction of two residential dwellings, all of which are 2 storeys in height to the rear of 45 Dore Road, Sheffield. The proposed layout is shown in Figure 2 below (dwg no 19:003:202 Rev B).

Figure 2. Proposed Site Layout (dwg no 19:003:202 Rev B)

3.3 A full breakdown of the proposed accommodation schedule is set out in Table 2 below. It is of note that the proposed dwellings exceed the Government’s Nationally Described Space Standards (2015).

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Plot Number of Total plot Gross Nationally Amenity reference bedrooms size (sqm) internal floor Described space (sqm) area of Minimum dwelling Space (sqm) Standard (sqm) for 2 storey dwellings

1 4 605 206.2 (238.1 97 – 124 347 including the depending on garage) number of bed spaces (persons)

2 4 760 206.2 (238.1 97 – 124 475 including the depending on garage) number of bed spaces (persons)

Table 2. Proposed Accommodation Schedule

3.4 With regard to amenity space, the South Yorkshire Residential Design Guide (2011) states:

“Back gardens of houses should be appropriate to the size of the property, its orientation and likely number of inhabitants. Private gardens of two bedroom houses/bungalows should be at least 50 square metres; for three or more bedroom houses/bungalows, 60 square metres. Smaller gardens may be acceptable in corner zones of blocks if privacy and daylighting can be maintained.”

3.5 As demonstrated in the proposed accommodation schedule, the amenity space for each new dwelling is ample. The amenity space comprises of a private garden to the south east and a shared paved and landscaped courtyard access to the north west for each dwelling. The existing retained dwelling will also still have ample amenity space in excess of over 400 sqm.

3.6 In terms of materials, high quality traditional materials which reflect the general arcadian character of the area are proposed, and they will be used in a contemporary way to create an attractive development.

3.7 In terms of access, the existing dwelling currently has dual access points serving a looped driveway. As a result of the development proposal, the existing dwelling’s access to, and

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egress from, the site will be by the existing established vehicle entrance to the east only. This will facilitate a new access point and shared driveway in a similar location to the existing exit point for the two new dwellings.

3.8 The existing dwelling will still have ample space for parking and manoeuvring to ensure that residents can safely access and egress the site in a forward gear when the access arrangement is amended, as shown on the proposed layout plan. The new dwellings will be served off a single driveway.

3.9 In terms of parking, each of the three new dwellings include a double garage with additional forecourt parking, which is considered to be in accordance with Sheffield City Council’s car parking guidelines as set out in Table 3 below.

Use Outside City Centre Threshold

Housing 1 space 1 bedroom

2 spaces 2 – 3 bedrooms

2 – 3 spaces 4 – 5 bedrooms

Negotiated 6 + bedrooms

In addition, 1 visitor space per 4 houses should be provided

Table 3. Sheffield City Council’s Car Parking Guidelines

Summary of Amendments

3.10 To address the reasons for refusal, and the comments raised by the Council during the determination of the application, this application incorporates amendments, as detailed below:

• Reduction in the number of dwellings from three to two; and

• Removal of the window in the gable end for the master bedroom on the first floor of both plots.

Pre-Application Engagement

3.11 In respect of the refused application, a formal pre-application enquiry (18/02945/PREAPP)

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was submitted to Sheffield City Council on 31 July 2018 to discuss in principle options for residential development of the site for 4 – 5 two storey, contemporary apartments.

3.12 A meeting was held with the Planning Officer on 6 December 2018 to discuss the enquiry further before a formal written response was issued. The key points discussed in the meeting were Core Strategy Policy CS31 and how the existing character of the area will need to be considered, and Sheffield City Council’s current lack of a sufficient housing land supply.

3.13 The formal written response was received on 15 May 2019. A summary of the key points raised in the response is as follows:

• The site is located within a designated housing policy area where housing is the preferred land use;

• The plot is considered to be a small greenfield site within an existing urban area;

• The site is sustainably located;

• Officers consider that the proposed apartment block would appear prominent and out of context with the surrounding neighbouring properties, and it would appear visually harmful and would have an overbearing impact on neighbouring rear gardens;

• Officers consider that the creation of the new access drive would necessitate the loss of several mature trees, and that those trees are very significant and serve as a useful screen between 45 and 47 Dore Road whilst also adding to the visual character and amenity of the area;

• The proposed development would not knit well with the existing prevailing layout and character of the area; and

• The proposed development would result in loss of privacy for existing neighbouring residents.

3.14 The development proposals have been significantly revised since the pre-application stage, and the subsequently refused application for three new dwellings on the site, and supporting documents such as a Design Statement and a Tree Report have been prepared providing justification for the design approach and demonstrating the lack of significant harm to the

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general character of the area.

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4.0 PLANNING POLICY CONTEXT

4.1 This section considers the relevant planning policy framework for the development proposed. It considers relevant national planning policy, together with policies contained within the statutory development plan and other local planning policy guidance.

The Development Plan

4.2 The Development Plan relevant to the appeal site currently consists of the Sheffield Core Strategy (Adopted March 2009); and the Sheffield Unitary Development Plan (UDP) (Adopted March 1998). A direction under Paragraph 1(3) of Schedule 8 to the Planning and Compulsory Purchase Act 2004 saved the majority of policies in the UDP beyond 2007.

Sheffield Core Strategy (2009)

4.3 The following policies are considered to be of relevance to the application:

4.4 Policy CS23 Locations for New Housing firstly states that “new housing development will be concentrated where it would support urban regeneration and make efficient use of land and infrastructure”. The policy then states the following:

In the period 2008/09 to 2020/21, the main focus will be on suitable, sustainably located, sites within, or adjoining: a. The main urban area of Sheffield (at least 90% of additional dwellings); and b. The urban area of Stocksbridge / Deepcar

4.5 Comment – The site is located within a sustainable built-up area which is also designated as a housing policy area where residential development is the preferred land use. Therefore, it is considered that the development is an efficient use of land and that the proposals are in accordance with policy CS23. It is of note that the Council recognises that the site is in a sustainable location within the main urban area. Indeed, no concerns were raised with respect to this policy in relation to the previously refused application.

4.6 Policy CS24 Maximising the Use of Previously Developed Land for New Housing states that:

“Priority will be given to the development of previously developed sites and no more

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than 12% of dwelling completions will be on greenfield sites in the period between 2004/05 and 2025/26.”

4.7 The supporting text for the policy then states the following:

“Permitting some development on greenfield sites in Housing Renewal areas and on sustainably located small greenfield sites (fewer than 15 units) is unlikely to prevent the 88% target from being met.”

4.8 Further to the policy’s supporting text, Sheffield City Council’s August 2019 Housing Completions Monitoring Report states that:

“Almost 95% of homes completed since 2004 have been built on previously developed (brownfield) sites. This exceeds the 88% target set by the Core Strategy.”

4.9 Comment – In light of the information provided, it is considered that the development proposals will not conflict with the Council’s aim for 88% of housing completions to be on brownfield sites between 2004/05 and 2025/26. Therefore, the development proposals are considered to be in accordance with Policy CS24. It must also be noted that the scheme is for two houses only and such a small number is unlikely to make any significant difference to these figures. The scheme’s compliance with Policy CS24 was confirmed in the Officer’s Report in respect of the previously refused application.

4.10 Policy CS26 Efficient Use of Housing Land and Accessibility states that:

“Housing development will be required to make efficient use of land but the density of new developments should be in keeping with the character of the area and support the development of sustainable, balanced communities.”

4.11 Policy CS26 then sets out the density ranges (which vary according to the accessibility of locations) for new housing developments in different areas of Sheffield, including:

• Near to Supertram stops and high-frequency bus routes in the urban areas – 40 to 60 dwellings per hectare • In remaining parts of the urban area – 30 to 50 dwellings per hectare

4.12 Densities outside these ranges will be allowed where they achieve good design, reflect the

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character of an area or protect a sensitive area.

4.13 Comment – The policy requires a density of 30 – 50 dwellings per hectare on the site due to its location. The density provided by the development proposals and the existing dwelling (3 dwellings in total including the retained dwelling) is 7.5 dwellings per hectare. The density proposed is very much in keeping with the surrounding housing and as is evidenced further in Section 5, being at the lower end of the density ranges previously accepted by the Council.

4.14 Policy CS31 Housing in the South-West Area states the following:

“In South-West Sheffield, priority will be given to safeguarding and enhancing its areas of character. The scale of new development will be largely defined by what can be accommodated at an appropriate density through infilling, windfall sites and development in district centres and other locations well served by public transport.”

4.15 The supporting text for the policy then states the following:

“… respecting the character of the area means that the density of new developments should be in keeping with it.”

4.16 Comment – Despite the Officer’s comments surrounding compliance with Policy CS31 in respect of the previously refused scheme, it is considered the development proposals are of a high quality and the density reflects the character of the existing area. Therefore, the development proposals are considered to be in accordance with Policy CS31. The justification for this view is discussed further in the Policy CS31 Character Assessment in Section 5 of this Statement.

4.17 In refusing the application for 3 dwellings at the site, the officer report only ascribed “moderate weight to Policy CS31 and this now needs to be balanced against compliance with the Framework, 5 years Housing Land Supply for the City and new emerging Standard Methodology for Housing Land supply which as off 16th December 2020 is looking ti increase overall housing numbers by 35% per annum,

4.18 Policy CS74 Design Principles firstly states that “high-quality development will be expected, which would respect, take advantage of and enhance the distinctive features of the city, its districts and neighbourhoods”. The policy then lists several features. The feature of particular relevance to the development proposals is as follows:

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• The townscape and landscape character of the city’s districts, neighbourhoods and quarters, with their associated scale, layout and built form, building styles and materials

4.19 The policy then states that development should also:

• Contribute to place-making, be of a high quality, that contributes to a healthy, safe and sustainable environment, that promotes the city’s transformation; • Help to transform the character of physical environments that have become run down and are lacking in distinctiveness; • Enable all people to gain access safely and conveniently, providing, in particular, for the needs of families and children, and of disabled and older people; • Contribute towards creating attractive, sustainable and successful neighbourhoods

4.20 Comment – The development proposals have been carefully designed to be sensitive to, and in keeping with, the existing townscape character of the local area. The proposed materials are high quality, traditional materials which reflect the general arcadian character of the area, and they are to be used in a contemporary way to create an attractive development. The character of the area comprises of a wide range of house types, styles, materials and layouts. Equally, housing has been developed to form a range of siting approaches. Many former large garden areas have been developed to ensure the provision of high quality environments and yet change the character and density of housing. The area has changed over recent years, but there are still opportunities to provide a high quality, safe and successful neighbourhood without detracting from the overall character. Backland style development is commonplace in the locality and this constitutes the “character” of the surrounding housing form (as discussed further in Section 5 below).

Sheffield Unitary Development Plan (1998)

4.21 The application site is located in a Housing Area on the Sheffield Unitary Development Plan (UDP) Proposals Map, as shown in the map extract in Figure 4.

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Figure 3. UDP Proposals Map Extract

4.22 Notwithstanding the fact that the UDP is time expired, the following UDP policies are of relevance to the development proposal.

4.23 Policy H10 Development in Housing Areas sets out the preferred, acceptable and unacceptable land uses in Housing Areas (excluding the Nether Edge and Broomhall areas which are covered under a separate policy).

4.24 Comment – Residential development is the preferred land use in Housing Areas, and therefore the proposed development is in accordance with Policy H10.

4.25 Policy H14 Conditions on Development in Housing Areas sets out that new development or change of use in Housing Areas will be permitted provided that the following criteria are achieved:

(a) New buildings and extensions are well designed and would be in scale and character with neighbouring buildings; and (b) New development would be well laid out with all new roads serving more than five dwellings being of an adoptable standard; and (c) The site would not be over-developed or deprive residents of light, privacy or security, or cause serious loss of existing garden space which would harm the

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character of the neighbourhood; and (d) It would provide safe access to the highway network and appropriate off-street parking and not endanger pedestrians; and (e) It would not suffer from unacceptable air pollution, noise or other nuisance or risk to health or safety; and (f) It would provide, where appropriate, an environmental buffer to shield sensitive land uses; and (g) It would comply with Policies for the Built and Green Environment, as appropriate; and (h) It would comply with Policies H16, LR8 and T28

4.26 Comment – It is noted that the previously refused scheme cited Policy H14 in the second reason for refusal, however this solely referred to the proposed first-floor gable-end windows to each of the master bedrooms being unacceptable due to their close proximity to the boundary, resulting in direct overlooking and loss of privacy to the occupiers of neighbouring property (at no. 47 Dore Road). Given this, these first-floor gable-end windows have been removed from the proposed dwellings through this scheme submission. In addition, the number of dwellings proposed has been reduced from three to two, thus improving the overall amenity impact of the proposals. The layout and design ensure satisfactory separation distances to neighbouring gardens and residential properties is achieved so that neighbouring and future residents are not deprived of light or privacy. All separation distances comply with the Council’s SPG Designing House Extensions and the South Yorkshire Residential Design Guidance. It is therefore considered that the proposed development is in accordance with Policy H14 with respect to amenity considerations.

4.27 In terms of the other considerations set out in Policy H14, residential land use and development is entirely commensurate with the surrounding dwelling houses. The proposal will make use of an existing lawful means of access, it will be of a high quality, it has been carefully designed to be sensitive to, and in keeping with, the character of the existing area, and ample sized dwellings and amenity areas have been provided. The proposed density is considered to be appropriate for the site because it is in keeping with the surrounding area. The layout of the proposed development ensures that safe access to the highway in a forward gear can be achieved. It is not considered that the proposed development will suffer from unacceptable air pollution, noise or other nuisance or risk to health or safety.

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4.28 Policy H15 Design of New Housing Development sets out a list of criteria that the design of new housing developments and residential institutions will be expected to meet. The list of criteria is as follows:

(a) Provide easy access to homes and circulation around the site for people with disabilities or with prams; and (b) Provide adequate private gardens or communal open space to ensure that basic standards of daylight, privacy, security and outlook are met for all residents; and (c) Provide uniform walls or fences around rear gardens next to roads, footpaths or other open areas; and (d) Provide pedestrian access to adjacent countryside where it would link with existing public open space or a footpath; and (e) Comply with Policies BE5, BE9 and BE10

4.29 Comment – The sizes of the two new dwellings and the amenity space for each dwelling exceed the minimum standards set out in the South Yorkshire Residential Design Guide (2011) and the Nationally Described Space Standards (2015). Being developed to exceed modern standards allows easy access and circulation to take place. The rear garden of each dwelling is proposed to be a private area with boundary treatments provided to create privacy and security for future residents. Uniform walls or fences around rear gardens are not required because the rear gardens are not next to any roads, footpaths or other open areas. Also, the site is not adjacent to the countryside so no pedestrian access to it is required. Compliance with policies BE5 and BE9 is discussed later in this Section of the Statement. Policy BE10 is not considered to be of relevance to the application because it is about the design and environmental improvement of streets, pedestrian routes and areas, cycleways and public spaces.

4.30 Policy BE5 Building Design and Siting firstly states that “good design and the use of good quality materials will be expected in all new and refurbished buildings and extensions”. The principles that are of particular relevance to this proposal are as follows:

• Original architecture will be encouraged but new buildings should complement the scale, form and architectural style of surrounding buildings; • In new developments comprising more than one building there should be a

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comprehensive and co-ordinated approach to the overall design; • In all new developments, design should be on a human scale wherever possible, and, particularly in large-scale developments, the materials should be varied and the overall mass of buildings broken down; • Designs should take full advantage of the site’s natural and built features; and • The design of buildings, landscaping and lighting should promote all aspects of personal safety and security, particularly at night time

4.31 Comment – The previously refused scheme cited Policy BE5 in the second reason for refusal, however as noted above, this solely referred to the proposed first-floor gable-end windows to each of the master bedrooms being unacceptable due to their close proximity to the boundary, resulting in direct overlooking and loss of privacy to the occupiers of neighbouring property (at no. 47 Dore Road). Given this, these first-floor gable-end windows have been removed from the proposed dwellings through this scheme submission.

4.32 The proposed development has been carefully designed and traditional materials have been chosen to be sensitive to, and in keeping with, the existing character of the area whilst also being contemporary to create a visually attractive development. The proposed dwellings are all two storey which creates a human scale of built form, and a comprehensive and co- ordinated approach to the overall design is proposed as illustrated in the supporting plans. There will be low level lighting to shared areas, and safety and security for future residents will be promoted by the erection of boundary treatments.

4.33 Policy BE6 Landscape Design firstly states that “good quality landscape design will be expected in new developments and refurbishment schemes”. Policy BE6 then sets out that a suitable landscaping scheme which achieves the following criteria should be included in development proposals where appropriate:

(a) Provides relevant information relating to new planting and / or hard standing, and of existing vegetation to be removed or retained; and (b) Provides an interesting and attractive environment; and (c) Integrates existing landscape features into the development, including mature trees, hedges and water features; and (d) Promotes nature conservation and uses native species where appropriate.

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4.34 Comment – The amenity space provided for each dwelling is ample and it will be well landscaped to create an attractive environment. A detailed arboricultural report has been produced which indicates that the tree stock is of low amenity value. The layout will ensure landscape features can be retained in the scheme to retain character features, offer privacy and ensure a high quality environment is provided for future residents. Additional new planting can be provided which will further enhance the site.

4.35 Policy BE9 Design for Vehicles states that new developments and refurbishments will be expected to include the following:

a) A clear definition of vehicle access and exit; and b) Good quality design of internal roadways and signs; and c) Adequate manoeuvring, turning and parking space for service vehicles; and d) Effective access at all times for emergency vehicles; and e) Adequate standing space for operational vehicles when not in use, particularly within the premises from which they operate; and f) Adequate parking space suitably located for vehicles used by people with disabilities; and g) Parking areas designed to minimise the risk of crime against people and vehicles by making all parts of each area visible by users; and h) Adequate safeguards for people living, working or walking at the site or nearby from exhaust fumes, traffic noise or risk of accident.

4.36 Comment – The vehicle access and exit point will be clearly defined and the shared drive which provides access to the two dwellings is well designed to provide ample space for vehicle access, parking (alongside the double garage for each dwelling) and manoeuvring within the site. The additional forecourt parking is located to the front of the two dwellings to provide natural surveillance, and it is not considered that the proposed development will create adverse exhaust fumes, traffic noise or risk of accident issues.

Emerging Planning Policy

4.37 The Council is currently in the process of prepared a new Local Plan for the City. The new Sheffield Local Plan will guide the future of the City by setting out how and where development will take place up to 2038. Once adopted, it will replace the Sheffield Core Strategy (2009) and the ‘saved’ policies in the Sheffield Unitary Development Plan (1998).

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4.38 Public consultation on the Issues and Options document ran from 1 September to 13 October 2020. This is the first stage of preparing the new Sheffield Local Plan and therefore it is in the early stages of preparation.

Emerging Dore Neighbourhood Plan

4.39 The Dore Neighbourhood Plan has now completed a Regulation 16 consultation, and therefore, in accordance with the NPPF (paragraph 48), the Council may give some weight to the relevant policies set out in the Neighbourhood Plan, although the weight attributed is dependent on a number of factors, including:

- the stage of preparation of the emerging plan (the more advanced its preparation, the greater the weight that may be given);

- the extent to which there are unresolved objections to relevant policies (the less significant the unresolved objections, the greater the weight that may be given); and

- the degree of consistency of the relevant policies in the emerging plan to the NPPF Framework (the closer the policies in the emerging plan to the policies in the Framework, the greater the weight that may be given)’.

4.40 The Officer’s Report in respect of the previously refused application notes that the most relevant policies from the emerging Dore Neighbourhood Plan are Policy 5 (New Infill Housing Development in the Dore Housing Area) and Policy 6 (The Provision of Smaller Homes). However, due to inconsistencies with the NPPF (paragraph 16(d) in the case of Policy 5, where there is also an unresolved significant objection, and paragraphs 16(b) and 16(d) in the case of Policy 6), no weight should be given to these policies.

Designing House Extensions Supplementary Planning Guidance

4.41 This is a Supplementary Planning Guidance document (SPG), whereby its role is to supplement the policies of the UDP, particularly Policies BE5, H14 and GE6. The SPG relates to extensions to existing dwellings, rather than new build dwellings.

4.42 Guideline 5 seeks to prevent unreasonable overshadowing and over dominance of neighbouring dwellings, and also seeks to prevent serious reductions in the lighting and outlook of the dwelling to be extended.

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4.43 Comment – The previously refused scheme cited Guideline 5 of this SPG in the second reason for refusal, however as noted above, this solely referred to the proposed first-floor gable-end windows to each of the master bedrooms being unacceptable due to their close proximity to the boundary, resulting in direct overlooking and loss of privacy to the occupiers of neighbouring property (at no. 47 Dore Road). Given this, these first-floor gable-end windows have been removed from the proposed dwellings through this scheme submission.

National Planning Policy Framework (2019)

4.44 The Ministry of Housing, Communities and Local Government published the revised National Planning Policy Framework (NPPF) on 24 July 2018, which was the first revision since 2012. Following a technical consultation on updates to national planning policy, a number of minor changes to the text were made and the NPPF was formally updated on 19 February 2019.

4.45 Paragraph 10 of the Framework states “so that sustainable development is pursued in a positive way, at the heart of the Framework is a presumption in favour of sustainable development”.

4.46 Paragraph 11 of the Framework then states that the presumption in favour of sustainable development means the following for decision-taking:

• Approving development proposals that accord with an up-to-date development plan without delay; or • Where there are no relevant development plan policies, or the policies which are most important for determining the application are out-of-date, granting permission unless: - The application of policies in this Framework that protect areas or assets of particular importance provides a clear reason for refusing the development proposed; or - Any adverse impact of doing so would significantly and demonstrably outweigh the benefits, when assessed against the policies in this Framework taken as a whole.

4.47 Paragraph 47 of the Framework sets out that planning applications are to be determined in accordance with the Development Plan unless material considerations indicate otherwise.

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4.48 Comment – Section 4 of this Statement demonstrates that the development proposal is in accordance with the relevant Development Plan documents. Section 5 of this Statement demonstrates that there are no material considerations which indicate that the proposal should not be determined in accordance with the Development Plan documents.

4.49 Paragraph 117 of the Framework states that:

“Planning policies and decisions should promote an effective use of land in meeting the need for homes and other uses, while safeguarding and improving the environment and ensuring safe and healthy living conditions.”

4.50 Paragraph 118 of the Framework then states that, amongst other things, planning policies and decisions should:

“Promote and support the development of under-utilised land and buildings, especially if this would help to meet identified needs for housing where land supply is constrained and available sites could be used more effectively (for example converting space above shops, and building on or above service yards, car parks, lock-ups and railway infrastructure”

4.51 Comment – The development proposals are considered to be in accordance with paragraphs 117 and 118 because they propose two new residential dwellings on a currently undeveloped portion of domestic garden in a designated housing policy area where the preferred land use is residential. The development proposal will also make a positive, albeit small, contribution to Sheffield’s housing land supply.

4.52 Paragraph 127 of the Framework sets out that planning policies and decisions should ensure that developments meet a range of design criteria. The criteria of particular relevance to the proposals is as follows:

• Are visually attractive as a result of good architecture, layout and appropriate and effective landscaping; • Are sympathetic to local character and history, including the surrounding built environment and landscape setting, while not preventing or discouraging appropriate innovation or change (such as increased densities); and • Establish or maintain a strong sense of place, using the arrangement of

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streets, spaces, building types and materials to create attractive, welcoming and distinctive places to live, work and visit

4.53 Comment – The development proposals are considered to be in accordance with paragraph 127. The two new dwellings will be visually attractive as a result of the careful design and materials choices which are sensitive to, and in keeping with, the existing general arcadian character of the residential area whilst also adopting a contemporary approach to their appearance. To note, the number of dwellings has been reduced from three to two, thereby improving the overall amenity of the existing and proposed dwellings. The justification for this view is discussed further in the Character Assessment in Section 5 of this Statement.

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5.0 MATERIAL CONSIDERATIONS

5.1 This section sets out the material considerations in support of the planning application and also provides a character assessment in respect of Core Strategy Policy CS31/NPPF Paragraph 127.

Five Year Housing Land Supply

5.2 As part of the consideration of the appeal proposals, it is important to highlight a number of significant material considerations which weigh heavily in support of the appeal submission.

Five Year Housing Land Supply

5.3 In March 2020 Sheffield City Council published a 5-year Housing Land Supply Monitoring Report. The Council’s report suggests that from 1st April 2019 there was a 5.1 year supply based on a deliverable supply of 11,151 dwellings.

5.4 The 5-year period covered by the Monitoring Report runs from 1 April 2019 to 31 March 2024 inclusive. It is noted that at the time the 5-year Housing Land Supply Monitoring Report was published it was almost a year out of date. The Council has still not published an up-to-date assessment of its 5-year Housing Land Supply at the time of preparing this Planning Statement.

Calculation of Sheffield’s Housing Requirement 5.5 Due to Sheffield City Council’s extant Development Plan being in excess of 5 years old, in accordance with the national policy outlined above, Sheffield have calculated their housing requirement by use of the Government’s Standard Methodology.

5.6 The calculations are detailed below, and this results in a housing need for Sheffield of 2,124 dwellings.

Table 1. Council’s Calculations of Housing Need

Step 1 – Setting the Baseline 2014 HH Projections 2019 245,739 2014 HH Projections 2029 264,938 Average HH growth (2019-2029) 1,920

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Baseline housing requirement (dwelling per 1,920 year) Step 2 – Adjusting for Affordability Local Affordability Ratio (2019) 5.70 Adjustment Factor 1.106 Step 3 – Capping the level of any interest Cap (1,920*1.4) 2,688 Local Housing Need 2,124

5.7 As is stated at paragraph 73 of the Framework a buffer should be added to the LHN to ensure choice and competition in the market.

5.8 The magnitude of the buffer to be added is dependent on the Housing Delivery Test (HDT) which comprises a measure of housing delivery compared to requirement over a 3 year period.

5.9 Sheffield’s HDT result in 2018 (the latest published HDT at the March 2019 base date) was 110% and thus the corresponding buffer is 5% which is added to the local housing need to provide the local housing requirement.

5.10 The net housing requirement for Sheffield for the 5-year period 2019/20 to 2023/24 is 2,230 dwellings per annum, and 11,151 dwellings over 5 years, as calculated below.

Table 2. Sheffield’s 5-year Housing Requirement Calculations

Local Housing Need 2,124dpa Addition of 5% buffer 2,230 5 year requirement 11,151

Sheffield City Council’s Supply 5.11 It is important to note that the assessment runs from 1st April 2019 to 1st April 2024, despite the document being published in March 2020.

5.12 Therefore, the assessment extends for less than 4 years into the future to 31st March 2024 and does not relate to the current 5 year period which would be 1st April 2020 to 1st April

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2025.

5.13 As a result of the information being out of date, it does not assist the Council’s decision making in the context of paragraph 11 or 73 of the Framework.

5.14 In the March 2020 Housing Land Supply Report, the Council’s supply comprises two main categories, as is in line with the guidance:

Category A sites: Sites with detailed planning permission, and small sites with planning permission. These should be considered until permission expires, unless there is clear evidence that homes will not be delivered within five years.

Category B sites: Large sites with outline planning permission, allocation sites, sites with permission in principle and brownfield register sites. These should only be considered deliverable where there is clear evidence that housing completions will be delivered on site within 5 years.

5.15 There is also an allowance for losses at 50 dwellings per annum. This allowance is based on the Housing Completions Monitoring Report (August 2019) from which the Council have estimated a loss going forward of 50 dpa.

5.16 The Council’s housing land supply totals 11,642 dwellings. The breakdown of this land supply by category and type of site is shown in the following table.

Table 3. Breakdown of Council’s published housing land supply (2019/20- 2024/25)

Category Site Type 5-year Supply Percentage of total supply Large Sites with detailed planning permission Under construction (6,508) A Not Started (2,250) Construction Suspended (39) 8,797 76% Small Sites with planning permission 1,000 9% Large sites with outline permission 546 5% Development Plan Allocations 98 0.8% B Sites with permission in principle 0 0% Brownfield Register Sites 1,201 10% Gross Supply 11,642 Estimated Losses 250

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Net Supply 11,392

Sheffield City Council’s Land Supply Position 5.17 Based on the Council’s identified deliverable supply of 11,392 dwellings, when compared with the Council’s housing requirement of 2,230 dwellings per year, this equates to a land supply of 5.1 years.

5.18 Therefore, the Council’s five-year land supply position is dependent on a marginal surplus of just 242 dwellings.

Table 4. Sheffield City Council’s Supply Position

Housing Requirement 2,230 Net Supply 11,392 Land supply calculation 5.1 years Surplus 242

5.19 There are two issues to be considered in relation to the 5-Year Housing Land Supply Monitoring Report (March 2020) which are:

• Does the monitoring report providing details of the five year land supply from 1st April 2019 fulfil the requirements of the NPPF paragraphs 11 and 73 as well as the PPG paragraphs 68-001. 68-003, 68-004 and 68-007? • Does the report identify 5 years’ supply of deliverable sites sufficient to provide a minimum of five years’ worth of housing against the SCC housing requirement?

5.20 The support for there to be a minimum of five years’ supply from the date of the assessment is as follows:

5.21 Paragraph 73 of the Framework specifies that LPAs should identify, and update annually, a supply of specific deliverable sites sufficient to provide for a minimum of five years’ worth of housing against their housing requirement. When published in March 2020 the Monitoring Report only identifies 4 years’ supply from the date of publication.

5.22 NPPG (Paragraph: 68-001) requires the calculation of deliverable supply of homes to meet the planned housing requirement over the next 5 years. As it was published in March 2020, the next five years would end in 1st April 2025 not 2024 as stated in the Monitoring Report.

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5.23 NPPG (Paragraph: 68-003) states that the purpose of the 5 year housing land supply is to provide an indication of whether there are sufficient sites available to meet the housing requirement set out in adopted strategic policies for the next 5 years. As stated above, the March 2020 Monitoring Report only identifies 4 years’ supply from the date of publication.

5.24 NPPG (Paragraph 68-004) requires that for decision-taking purposes, an authority will need to be able to demonstrate a 5 year housing land supply when dealing with applications and appeals and that they can do this in one of two ways; either by confirming the position as per paragraph 74 of the Framework, or by using the latest available evidence such as a Strategic Housing Land Availability Assessment (SHLAA), Housing and Economic Land Availability Assessment (HELAA), or an Authority Monitoring Report (AMR). It is noted that there is a specific time frame for the production of an annual position statement and the Council’s publication of their AMR is far later than that timeframe.

5.25 NPPG (Paragraph 68-007) requires that in order to demonstrate 5 years’ worth of deliverable housing sites, robust, up to date evidence needs to be available to support the preparation of strategic policies and planning decisions. The evidence of the supply presented in the Monitoring Report 2020 is 19 months old and cannot be considered up to date.

5.26 In light of the above it is contended that the 5-Year Housing Land Supply Monitoring Report March 2020 has not been updated annually and does not demonstrate a supply of specific deliverable sites sufficient to provide a minimum of five years’ worth of housing against SCC’s housing requirement.

5.27 It is also clear that a number of the sites which have been identified in the March 2020 Housing Land Supply have been completed and are no longer delivering housing. As a consequence, the ability to count some of the sites towards the land supply is out of date and hence does not reflect a balanced position with regards to the overall 5 years HLS.

5.28 As such it is argued that there is no longer a five-year supply of land as required by the Framework Paragraph 73.

5.29 Where an LPA cannot demonstrate a 5 year housing land supply, the guidance in the NPPF is clear that the weight to be afforded to development plan policies is limited. Paragraph 11 of the NPPF states that the presumption in favour of sustainable development means the following for decision-taking:

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• Approving development proposals that accord with an up-to-date development plan without delay; or

• Where there are no relevant development plan policies, or the policies which are most important for determining the application are out-of-date, granting permission unless:

- The application of policies in this Framework that protect areas or assets of particular importance provides a clear reason for refusing the development proposed; or

- Any adverse impact of doing so would significantly and demonstrably outweigh the benefits, when assessed against the policies in this Framework taken as a whole.

5.30 Approving the application will offer an opportunity to deliver a sustainable site to contribute towards meeting the Council’s need for market housing.

5.31 Therefore, in short, the 1998 UDP and 2009 Core Strategy policies (including Policy CS31) are considered to be out of date, meaning that a tilted balance in favour of sustainable development will apply by virtue of Paragraphs 11 (presumption in favour of sustainable development) and 213 (due weight to be given to policies based on their degree of consistency with the NPPF) of the NPPF. Therefore, it is considered that the development proposal should be viewed positively in accordance with the presumption in favour of sustainable development.

5.32 Approving the application will offer an opportunity to deliver a sustainable site to contribute towards meeting the Council’s need for market housing, which is particularly important in the context of a national housing crisis.

New Standard Methodology for Housing Need 5.33 On the 16th December 2020, the Government announced a new standard Method for calculating Housing need. The updated Standard Method has been reviewed in recognition that the previous method of calculating Housing Need would fail to achieve the Government’s desired objectives of meeting 300k new houses per annum.

5.34 Whereas the previous Standard Method calculation was based solely on population growth and housing affordability, the new Standard Method adds an additional uplift to focus more

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homes to be built in cities and urban centres.

5.35 National Planning Practice Guidance sets out the detailed mechanism of the changes. This sets out that there will be an additional stage in the calculation which adds a ‘Cities and Urban Centres Uplift’ of 35% in England’s top 20 largest cities and urban centres (according to ONS). This new uplift is applied after the affordability uplift and capping.

5.36 As of December 2020, this list of urban local authorities are: Birmingham, Bradford, Brighton and Hove, Bristol, Coventry, Derby, Kingston upon Hull, Leeds, Leicester, Liverpool, London, Manchester, Newcastle upon Tyne, Nottingham, Plymouth, Reading, Sheffield, Southampton, Stoke-on-Trent, and Wolverhampton.

5.37 NPPG clarifies that this applies if “an authority is based in one of the top 20 most populated cities or urban centres and they contain the largest proportion of population in that city or urban centre, a 35% uplift is applied to that local authority area”.

5.38 When do the Changes Take Effect? For plan-making, there is a transition period for authorities where the cities and urban centres uplift applies. This allows authorities already t Regulation 19 stage, six months (until June 2021) to submit their plans under the existing Standard Method. For local authorities who are very close to publishing their Regulation 19 plan, there is a three-month window to publish their Regulation 19 plan for consultation, followed by the six months to submit.

5.39 For decision-making, there is also a six-month transition period where the old Standard Method figures may be used. This includes when determining the housing requirement for the 5-year housing land supply. After this six-month period the new Standard Method will apply.

5.40 It is therefore clear that Sheffield, as an identified urban area, will look to increase the overall housing number required by the 35% margin applied. This will therefore place additional pressure upon sustainable urban sites which are capable of accommodating housing. Equally, increasing the overall number of houses required will result in a lower 5 year housing land supply being available, hence the weight to be afforded to out of date, none framework compliant policies will be extremely limited and hence the tilted balance will fall heavily upon supporting sustainably located housing.

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5.41 It is considered that the LPA will not have a 5 year housing land supply, as was the case then the original planning application was submitted, and it will continue to fail to have a 5 years housing land supply at the time of assessment and therefore the weight to be afforded to the restrictive policy CS31 will be considerable diluted. Given the LPA considered only “moderate weight” should be afforded to policy CS31 with respect to the previous application, the anticipated 5 years HLS should effectively restrict this weighting to “little weight” to be afforded to CS31.

5.42 Given the new standard method approach this has the following implications for Sheffield:

• The 35% uplift requires 2877 dpa.

• The 5 year requirement = 2877 x 5 = 14,385 against a published supply of 12,131 so 4.2 yrs

(But not in use until June 2021) so please note:

5.43 This increase in the number of homes to be delivered in urban areas is expected to be met by the cities and urban centres themselves, rather than the surrounding areas, unless it would conflict with national policy and legal obligations. In considering how need is met in the first instance, brownfield and other under-utilised urban sites should be prioritised and on these sites, density should be optimised to promote the most efficient use of land. This is to ensure that homes are built in the right places, to make the most of existing infrastructure, and to allow people to live nearby the service they rely on, making travel patterns more sustainable.

5.44 There is a transition period for decision-making for those authorities where the cities and urban centres uplift applies. Transitional arrangements will apply for six months from the publication date of this guidance. This means that the local housing need calculation excluding cities and urban centres uplift, can be used, for example when determining the housing requirement for the 5 year housing land supply, until this date. After this date, the new standard method (i.e. with cities and urban centres uplift) will apply for relevant decision- making purposes.

Location Sustainability

5.45 The site is located in a highly sustainable location, in close proximity to Abbeydale Road

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South which provides a direct route into Sheffield city centre, and in close proximity to a number of public transport links.

5.46 Dore and Totley train station, which provides access to direct services to Sheffield and Manchester, is located under 550 metres to the east of the site.

5.47 There are two bus stops (one per direction) on Abbeydale Road South to the east, adjacent to Dore and Totley train station, which are under 500m from the site. These stops provide access to the following services:

• 97: Totley – Totley Brook – Dore – Abbeydale – Millhouses – Nether Edge – Highfield – Sheffield – Burngreave – Ellesmere – Pitsmoor – Norwood – Shirecliffe – Longley – Southey Green – Wadsley Bridge - Hillsborough

• 98: Totley Brook – Dore – Abbeydale – Millhouses – Nether Edge – Highfield – Sheffield – Burngreave – Ellesmere – Pitsmoor – Norwood – Shirecliffe – Longley – Southey Green – Owlerton - Hillsborough

• 798: Totley Brook – Dore – Abbeydale – Millhouses – Nether Edge – Highfield – Sheffield

• Peak Line 218: Sheffield – Sharrow – Sharrow Vale – Brincliffe – Banner Cross – Ecclesall – Parkhead – Abbeydale – Dore – Totley Brook – Totley – Curbar – Baslow – Edensor – Chatsworth – Pilsley - Bakewell

5.48 In addition, there are a further two bus stops on Abbeydale Road South under 600 metres from the site which provide access to the following service, as well as providing access to the 97, 98, 798 and Peak Line 218 services.

• 781: Millhouses – Dore – Notre Dame School – University via Ecclesall – Hallamshire Hospital

5.49 There are several local facilities and services located in close proximity to the site, including (but not limited to) the following:

• Abbeydale Park Sports Ground – Located to the south east (< 300 metres)

• Abbeydale Park Badminton Club – Located to the south (< 400 metres) 35 YK5518/1P Land at the rear of 45 Dore Road, Sheffield January 2021 Planning Statement

• Abbeydale Sports Club – Located to the south east (< 400 metres)

• Dore Masonic Hall – Located to the east (< 400 metres)

• Abbeydale Miniature Railway – Located to the north east (< 400 metres)

• Abbeydale Cottage Nursery – Located to the south east (< 500 metres)

• Saint John the Evangelist of Abbeydale (Church of England Church) – Located to the south east (< 500 metres)

• Dore Delivery Office (Post Office) – Located to the south east (< 500 metres)

• Vicarage Lane Allotments – Located to the south west (< 700 metres)

• Abbeydale Golf Club – Located to the south east (< 800 metres)

• Dore Road Surgery (Doctors) – Located to the south west (< 900 metres)

• Tesco Express – Located to the south (< 900 metres)

• Dore Primary School – Located to the south west (< 1.2 kilometres)

• Dore Local Centre (e.g. two pubs / a café / a Co-op food / the Church Hall / a nursery school) – Located to the south west (< 1.4 kilometres)

• King Ecgbert School – Located to the south west (< 1.4 kilometres)

Benefits

5.50 The delivery of housing at the site will offer a number of clear planning benefits which should be given considerable weight in the overall planning balance. The following benefits are accrued:

• Delivery of two dwellings: this will make a contribution to the Council’s overall housing land supply and provide much needed housing in the locality, borough and sub region. The housing can be delivered in the short term. This is considered to represent a significant material benefit.

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• Housing in a sustainable area: the site lies within the settlement of Dore, in a Housing Policy Area, close to a range of amenities and public transport routes, as detailed in Section 3 above. This is considered to represent a significant material benefit.

• High quality development: the proposed development has been carefully designed to be sensitive to, and in keeping with, the existing character of the area whilst also being contemporary to create a visually attractive scheme. Each dwelling significantly exceeds internal space standards and amenity standards to ensure that future residents have ample living conditions. This is considered to represent a significant material benefit.

• Housing in Flood Zone 1: the appeal site lies outside an area of land subject to the risk of flooding. Developing housing outside an area of flood risk is considered to represent a significant material benefit.

• Employment opportunities during construction: construction at the site will lead to the creation of a short-term economic boost to the local economy during the construction process. This is considered to represent a minor material benefit.

• Support for local services: introducing new households in Dore will increase spending powers in the locality, therefore assisting the retention of local facilities. This is considered to represent a modest material benefit.

5.51 Ultimately, the proposed development would result in a number of positive benefits which are important material considerations in the determination of this application. When considered cumulatively, these result in sustainable development. Overall, it is considered that the proposed development, accords with the Development Plan as a whole, and as there are no material considerations which indicate that a decision should be taken other than in accordance with the plan, and in consequence, the application should be approved.

Community Infrastructure Levy

5.52 Sheffield City Council’s Community Infrastructure Levy (CIL) Charging Schedule was adopted in June 2015. The schedule identifies that the site is located in CIL Charging Zone 5, which means that the CIL charge is £80 per square metre + indexation for any new build

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residential development on the site. The application is accompanied by the requisite CIL Additional Questions Form.

Policy CS31 Character Assessment

5.53 In respect of the previously refused scheme for three new dwellings on the site, the only development plan policy cited in the reason for refusal is Policy CS31. Policy CS31 seeks to safeguard and enhance the character of the south west area of Sheffield, stating: “In South- West Sheffield, priority will be given to safeguarding and enhancing its areas of character. The scale of new development will be largely defined by what can be accommodated at an appropriate density through infilling, windfall sites and development in district centres and other locations well served by public transport.”

5.54 It is the applicant’s contention that Policy CS31 is out of date, and inconsistent with the NPPF, as it is overly restrictive and fails to comply with the objectives of the NPPF. In addition, the policy was adopted at a time (in 2009) when the character of the south west of Sheffield, including where the application site is located and its immediate surrounding area/the general Dore area, was different. This is due to the fact that between 2009 when the policy was adopted, and the present day (2020), a considerable number of developments (a number of which are similar in nature to the development proposed as part of this application (i.e. in residential gardens/backland development)), have been approved and built out. In short, the building out of developments that have been approved in the last 11 years has evolved / changed the character of the area where the application site is located and as such the character of the area has changed significantly since 2009. In addition, these developments clearly show that the Council has taken an inconsistent application/approach to Policy CS31. As such, it is considered Policy CS31 should be afforded negligible weight in the decision making process.

5.55 Notwithstanding the negligible weight that should be afforded to Policy CS31, it is the applicant’s strong contention that the development proposals are of a high quality and the density reflects the character of the existing area and as such, the development proposals are considered to be in accordance with Policy CS31 (and by virtue, paragraph 127 of the NPPF).

5.56 To confirm, the application site is an attractive domestic garden, but it has no legal protection to retain trees or landscaping, nor does it benefit from any specific designation and it is not

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identified in any policy document as being of merit. Equally, the garden benefits from full permitted development rights which could also significantly increase the amount of ancillary built form which could be conceived as altering the character of the area should such matters be progressed. Further, it is clear that other areas of the same “character” in Dore have been developed upon in a similar manner (this is expanded upon below).

5.57 The scheme will not be highly visible from the public highway due to the retention of the existing dwelling which could be deemed a characteristic feature of the street scene. Equally, the vast majority of substantial trees are also to be retained at the site frontage, therefore retaining the character of the existing street scene. It is therefore considered the character of Dore Road will be retained in its entirety. There will be no visual harm and extremely limited change when viewed from Dore Road.

5.58 As demonstrated on the proposed plans and accommodation schedule, each of the individual plots has ample sized dwellings, amenity space and separation distances (as is characteristically common in this area of Sheffield) and proposes the use of high quality traditional materials which reflect the general arcadian character of the area. The South Yorkshire Design Guide (2011) provides clear guidance on matters of design, including separation distances, light and overbearing. This proposal meets and considerably exceeds the standards applied to new housing. In light of this, the development proposals are also considered to be appropriate in respect of this element of design/character .

5.59 Whilst it is accepted that the application proposals will bring a degree of change to the area, though the addition of built form, this is inevitable and should be appropriately weighed against any harm that this change would bring. It is the applicant’s contention that the proposed development would not bring harm to the character of the area. The position is that the proposed development is considered acceptable in the context of the surrounding area and the general Dore area’s character, which have evidently experienced changes and evolutions in recent years.

5.60 Below are a number of examples of developments of a similar nature to the application proposals (i.e. development within a residential garden / backland development) in the immediate Dore area. The Officer Report commentary on Policy CS31 for each example is also provided. The table below provides details of these examples of a similar nature to the development proposal. An aerial view of where each permission is located (including its site

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location boundary) is also provided, followed by a map showing the location of the permissions in relation to the application site. These permissions demonstrate that this type of development can be acceptable in this area and demonstrate Policy CS31 is being applied inconsistently.

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Address and planning Proposal and decision Officer report commentary permission reference on Policy CS31

Greenclose, 3 Cavendish Erection of a detached “In terms of this in principle Avenue (Map key ref. 1) single-storey eco-dwelling consideration, the dwelling with green roof and below proposed is within a specific 19/00378/FUL ground car parking and part of the Dore area where a provision of new means of number of back land vehicular access and developments have taken driveway - Granted place. The pattern of conditionally on 17 July development to the rear of 2020 this northern side of Cavendish Avenue includes many individual infill dwellings in rear gardens such that it forms part of the character….Therefore whilst CS31 in particular seeks to avoid such developments in principle, the present character of this specific portion of the Dore area is such that a sensitive scheme could be supported and would not harm the general character.”

Land at rear of 79 Dore Erection of seven “The recommended density Road (Map key ref. 2) apartments in a three storey for a site such as this, which building with basement car is within an urban area but 18/02607/FUL parking and associated more than 400 metres away landscaping – Granted from a District Shopping conditionally on 20 Centre or high frequency bus February 2019 route, is between 30 and 40 dwellings per hectare, as set out in Policy CS26. This scheme achieves a density of approximately 34 dwellings per hectare, which is within the acceptable density range. As such the proposals are considered to comply with the above policies.”

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Site of 2A Kerwin Road Erection of a dwellinghouse No reference to policy CS31. (Map key ref. 3) and garage and provision of a new means of vehicular 18/03240/FUL access – Granted conditionally on 17 October 2018

Abbeydale Tennis Club Erection of 14no dwellings The proposals represent a (off Water Lane) (Map key including ancillary parking, density of c.24.5 hectares ref. 4) landscaping and access which, although below the works - Granted typical 40-60 per hectare 17/04282/FUL conditionally on 7 February policy requirement, is 2018 explained to an extent by the amount of larger property type which are certainly characteristic of this part of the city, and in part by the shape of the site and the need to accommodate a new access road and parking / turning facilities for the retained tennis club. The report then concludes with “as such, when considered in the round this assessment demonstrates that the proposals accord with Policy CS26 & CS31 within the CS”.

This demonstrates that density is the issue to consider as part of Policy CS31, not whether the area is different or looks attractive.

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27A Dore Road (Map key Demolition of existing “The density of the proposed ref. 5) dwellinghouse and erection development equates to of a dwellinghouse and a approximately 8 units per 16/01263/FUL detached tripple hectare which falls well below garage/annexe - Granted the range given in Policy conditionally on 1 June CS26. However, the 2016 restricted vehicular access, character of the area and desire to safeguard mature tree planting in the long term are considered sufficient to justify the significant shortfall and comply with Policies CS26 and CS31.”

Land between 62 and 62A Erection of dwellinghouse “Weight can also be given to Dore Road (Map key ref. and triple garage and the development being 6) creation of driveway representative of the pattern passing space – Granted of development in the 15/04032/FUL conditionally on 22 immediate area. There are December 2015 some 12 dwellings in backland locations to the rear of Nos 48-72 Dore Road. This point merits limited weight but demonstrates that there would be no conflict with SDF Core Strategy Policy CS31. This policy seeks to ensure that new housing development safeguards and enhances the areas of character to the south-west of the City.”

43 YK5518/1P Land at the rear of 45 Dore Road, Sheffield January 2021 Planning Statement

3 Ryecroft Glen Road Demolition of dwellinghouse Policy CS31 is quoted in the (Map key ref. 7) and erection of 10 report but there is no apartments with associated commentary provided. 14/00543/OUT car parking accommodation – Granted conditionally (legal agreement) on 18 July 2014

Land between 62 and 62A Erection of dwellinghouse “Weight can also be given to Dore Road (Map key ref. and triple garage – Granted the development being 6) conditionally on 18 representative of the pattern February 2013 of development in the 12/03937/FUL immediate area. There are some 12 dwellings in backland locations to the rear of Nos 48-72 Dore Road. This point merits limited weight but demonstrates that there would be no conflict with SDF Core Strategy Policy CS31.”

44 YK5518/1P Land at the rear of 45 Dore Road, Sheffield January 2021 Planning Statement

Land adjacent to 31 Erection of 4 detached “Whilst the proposed layout Brickhouse Lane (Map dwellinghouses with has a lower density of key ref. 8) associated access – dwellings than would be Granted conditionally on 8 desired, the character of the 11/02416/OUT November 2011 area is maintained as illustrated above. As such the proposed layout of four dwellings is considered to meet the Council’s planning policies regarding efficient use of land and development within the South West Area.”

Land at rear of 79 Dore Erection of 5 detached No reference to policy CS31. Road (Numbered 1 – 5 dwellinghouses – Granted Dore Lodge Gardens) conditionally (unilateral (Map key ref. 2) agreement) on 28 October 2010 10/00230/FUL

45 YK5518/1P Land at the rear of 45 Dore Road, Sheffield January 2021 Planning Statement

Land between 62 and 62A Erection of dwellinghouse “Weight can also be given to Dore Road (Map key ref. and triple garage – Granted the development being 6) conditionally on 14 representative of the pattern September 2010 of development in the 10/02132/FULR immediate area. There are some 12 dwellings in backland locations to the rear of Nos 48 – 72 Dore Road. This point merits limited weight but demonstrates that there would be no conflict with SDG Core Strategy Policy CS31 (Housing in the South-West Area).”

90 Totley Brook Road Erection of a dwellinghouse “It is considered that there is (Map key ref. 9) and erection of detached no obvious and distinctive double garage to serve character along Totley Brook 10/00637/FUL existing dwellinghouse – Road – there is great Granted conditionally on 3 variation in property sizes, August 2010 types and materials and, there is also evidence of variations in garden sizes and layouts. Quite significantly, there is also evidence along Totley Brook Road of recent developments where backland developments for new housing have already been carried out. It is considered that the application plot is of a considerable size and is capable of accommodating a new dwelling whilst still achieving adequate separation distances and garden sizes.”

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79 Dore Road (Map key Erection of 13 N/A – The application was ref. 2) dwellinghouses including determined prior to the associated car parking and adoption of the Core Strategy 08/04870/FUL landscaping works – in March 2009. Granted conditionally (legal agreement) on 16 December 2008

Land at rear of 79 Dore Erection of five N/A – The application was Road (Map key ref. 2) dwellinghouses – Allowed determined prior to the on appeal on 20 October adoption of the Core Strategy 06/04871/FUL 2008 in March 2009.

Table 5. Immediate Dore Area Planning Permissions

47 YK5518/1P Land at the rear of 45 Dore Road, Sheffield January 2021 Planning Statement

Figure 4. Location of the Immediate Dore Area Planning Permissions

5.61 Overall, whilst it is acknowledged that all planning applications are judged on their individual merits, it is considered important to highlight the fact that there is an inconsistent approach to decision making on housing in exactly the same policy area in the locality.

5.62 The general ethos of the Officer report commentary on Policy CS31 for development proposals of a similar nature to this application is that weight can be given to development which is representative of the pattern of development in the immediate surrounding area. The application site is clearly infilling land within a Housing Policy Area, in a sustainable location. In terms of density, the density proposed is very much in keeping with the surrounding housing and as evidenced above, is at a lower end of the density ranges previously accepted by the Council.

5.63 In addition, there are a number of characterful dwellinghouses which are now the subject of substantial alterations (both traditional and contemporary in the design) which have been

48 YK5518/1P Land at the rear of 45 Dore Road, Sheffield January 2021 Planning Statement

permitted in the locality. Such changes clearly demonstrate the dynamic and flexible approach to design and architecture which is developing along this evolving residential environment.

5.64 Indeed, substantial alterations and extensions to the neighbouring property, 47 Dore Road, were approved on 17 May 2019 (ref. 18/04286/FUL). It is clear from the existing and approved proposed elevations shown below, this approval significantly increases the amount of built form in the area, and introduces a different character to the area. This application must therefore also be considered in the context of this immediately adjacent scheme. It is noted the Officer’s Report in respect of this application made no reference to Policy CS31.

Figure 5. Exiting Elevations

Figure 6. Approved Elevations

5.65 In light of the above, we reiterate our previous comments that the proposed development is considered acceptable with regards to Policy CS31 and paragraph 127 of the NPPF.

National Design Guide

5.66 The National Design Guide, which sets out the characteristics of well-designed places and demonstrates what good design means in practice, was published on 1st October 2019. The Guide forms part of the Government’s collection of planning practice guidance and should 49 YK5518/1P Land at the rear of 45 Dore Road, Sheffield January 2021 Planning Statement

be read alongside the separate planning practice guidance on design process and tools. The Guide is also capable of being a material consideration in planning applications and appeals, meaning that where relevant Local Planning Authorities should take it into account when decision taking.

5.67 In regard to existing local character and identity, the Guide states that well-designed new development is influenced by the following:

• An appreciation and understanding of vernacular, local or regional character, including existing built form, landscape and local architectural precedents; • The characteristics of the existing built form; • The elements of a place or local places that make it distinctive; and • Other features that are particular to the area

5.68 In regard to well-designed, high quality and attractive places, the Guide states that well- designed places contribute to local distinctiveness in a number of ways, which may include:

• Adopting typical building forms, features, materials and details of an area; • Drawing upon the architectural precedents that are prevalent in the local area, including the proportions of buildings and their openings; • Using local building, landscape or topographical features, materials or planting types; • Introducing built form and appearance that adds new character and difference to places; • Creating a positive and coherent identity that residents and local communities can identify with

5.69 The proposed development will be visually attractive, and the materials used will be of a high quality. The proposed development has been carefully designed to be sensitive to, and in keeping with, the existing character of the area whilst also being contemporary to create a visually attractive scheme. The design approach of the proposed development is also comprehensive and co-ordinated which creates a positive and coherent identity for the site. The proposed dwellings are two storey which creates a human scale of built form and the dwellings are sited in such a way that means each dwelling significantly exceeds internal space standards and amenity standards to ensure that future residents have ample living

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conditions, and so that they are hidden from view from the public domain. The orientation of the dwellings provides each dwelling with a private garden to the south east and shared paved and landscaped courtyard access to the north west.

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6.0 CONCLUSION

6.1 This Planning Statement has been prepared by DLP Planning Ltd on behalf of David and Stephanie Wosskow in support of a full planning application for erection of two residential dwellings following demolition of existing garden chalet to facilitate access at land at the rear of 45 Dore Road, Sheffield, S17 3NA.

6.2 An application for the erection of three residential dwellings following demolition of the existing garden chalet to facilitate access at the site was refused by Sheffield City Council on 30 October 2020 (reference: 19/03983/FUL). The application was refused under delegated powers, and the decision notice listed two reasons for refusal, summarised as follows:

1) The layout and general form of the proposed 3 new dwellings will result in a scheme that is totally out of character with the general layout and form of existing residential properties in the immediate area and on this section of Dore Road, and as such, this development will be contrary to Policy CS31 and Paragraph 127 of the NPPF.

2) The proposed first-floor gable-end windows to each of the master bedrooms would, because of their close proximity to the boundary, result in direct overlooking and loss of privacy to the occupiers of neighbouring property (at no. 47 Dore Road), and as such, the proposal would be contrary to Policies BE5 and H14, Guideline 5 of the adopted 'Designing House Extensions' Supplementary Planning Guidance (SPG) and Paragraph 127 of the NPPF.

6.3 It is the Applicant’s position that this decision was erroneous and that there are compelling grounds to contest the reasons for refusal. An appeal has therefore been submitted in this regard. Notwithstanding this, this current application comprises a revised scheme, reducing the number of proposed dwellings to two, whilst responding to the previous reasons for refusal.

6.4 Section 38(6) of the Planning and Compulsory Purchase Act 2004 requires all planning decisions to be made in accordance with the Development Plan unless material considerations indicate otherwise. Approving this application directly accords with the Development Plan for the City. Evidence has been provided to demonstrate that development of the site for two residential dwellings is representative of the pattern of

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development in the immediate surrounding area, whereby a considerable number of developments which are similar in nature to the development proposed as part of this application (i.e. in residential gardens/backland development)), have been approved and built out in the area, and as such have evolved / changed the character of the area.

6.5 Whilst it is acknowledged that all planning applications are judged on their individual merits, it is clear that the Council is taking an inconsistent approach to decision making on housing in exactly the same policy area in the locality, specifically with regards to the application of Policy CS31. Further, it is considered that Policy CS31 is out of date, and inconsistent with the NPPF, as it is overly restrictive and fails to comply with the objectives of the NPPF. The policy was also adopted at a time (in 2009) when the character of the south west of Sheffield, including where the application site is located and its immediate surrounding area/the general Dore area, was different.

6.6 The application site is clearly infilling land within a Housing Policy Area, in a sustainable location. The revised scheme removes the gable end windows in the master bedroom for each dwelling, therefore ensuring the scheme is acceptable in terms of its relationship with 47 Dore Road. In addition, the number of dwellings has been reduced, thereby improving the overall amenity of the existing and proposed dwellings. Ultimately, it is considered this revised scheme comprises a high quality contemporary design that responds positively to its local context, resulting in an exemplar, modern, sustainable development.

6.7 It is also worth noting that while the Council is currently claiming to have a 5.1 year housing land supply, evidence suggests that there is considerable reason to question the robustness of this supply. It is therefore considered that the development proposal should be viewed positively in accordance with the presumption in favour of sustainable development.

6.8 However, new methods of calculating housing needs which will come into effect in June 2021 clearly indicates that Sheffield will experience a 35% uplift in Housing numbers required. This in turn will have a substantial impact upon the 5 years housing land supply it is calculated that at best, the Council will be able to demonstrate a 4.2 year supply.

6.9 In this case, and given the emerging direction of travel towards delivery additional housing on underused, sustainable urban areas, the case for the tilted balance to be weight heavily in favour of this appeal proposal is considered to be considerable.

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6.10 Other material considerations only support the grant of permission in this instance. The scheme will provide high quality, sustainable development, positively contributing and providing wider benefits to the local community, services, businesses and social infrastructure. The development will also boost housing supply and make a positive contribution to the City’s strategic housing needs, sitting comfortably alongside and supporting the wider urban area of Dore. Clearly, as sustainable development, the scheme proposes a range of economic, social and environmental benefits. It is considered that the proposal would not result in any adverse impacts that would significantly and demonstrably outweigh these benefits.

6.11 The proposed scheme complies with all the relevant policies of the Development Plan and the relevant provisions of the NPPF. On this basis it is considered justified to grant planning permission for the proposed development.

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