AGENDA ITEM NO.
DEVELOPMENT CONTROL PANEL 14 JULY 2008
Case No: 0801416FUL (FULL PLANNING APPLICATION)
Proposal: ERECTION OF TWO DWELLINGS
Location: LAND NORTH OF 208 HIGH STREET, OFFORD CLUNY
Applicant: MR EAYRS
Grid Ref: 522021 267426
Date of Registration: 15.05.2008
Parish: OFFORD CLUNY
RECOMMENDATION - REFUSE
1. DESCRIPTION OF SITE AND APPLICATION
1.1 The application site of 0.1 hectare is undeveloped land located at the northern extent of the village Conservation Area in the village of Offord Cluny. There is an access which serves Whitwell Farm which runs along the northern edge of the site. To the south of the site is the listed thatched cottage, No. 208 High Street and to the west is the large modern farm building associated with Whitwell Farm.
1.2 This application is for full planning permission for the erection of two detached dwellings fronting High Street, with a detached building to accommodate garaging for the two dwellings. A new vehicular access to the High Street is proposed. The application also proposes the planting of a new woodland area on land to the north of the site, although this land is not included within the site boundary.
2. PLANNING POLICIES
For full details visit the government website http://www.communities.gov.uk and follow the links to planning, Building and Environment, Planning, Planning Policy.
2.1 PPS1: ‘Delivering Sustainable Development’ (2005) – sets out policies on different aspects of land use planning in England
2.2 PPS3: ‘Housing’ (2006) – Advises on housing policy.
2.3 PPS7: ‘Sustainable Development in Rural Areas’ (2004) - concerns development proposals in the countryside with development to be strictly controlled and requiring good quality design, which respects the character of the countryside and safeguards the distinctiveness of its landscape.
2.4 PPG15: ‘Planning and the Historic Environment’ (1994) – concerns development proposals in / affecting Conservation Areas and / or listed buildings.
2.5 PPG24: ‘Planning & Noise’ (1994) – guides planning authorities on the use of planning powers to minimise the adverse impact of noise.
3. PLANNING POLICIES
Further information on the role of planning policies in deciding planning applications can also be found at the following website: http://www.communities.gov.uk then follow links Planning, Building and Environment, Planning, Planning Information and Guidance, Planning Guidance and Advice and then Creating and Better Place to Live
3.1 East of England Plan - Revision to the Regional Spatial Strategy (May 2008)
Policies viewable at http://www.go-east.gov.uk then follow links to Planning, Regional Planning then Related Documents
• ENV7: ‘Quality in the Built Environment’ - requires new development to be of high quality which complements the distinctive character and best qualities of the local area and promotes urban renaissance and regeneration.
• ENV6: ‘The Historic Environment’ - Within plans, policies, programmes and proposals local planning authorities and other agencies should identify, protect, conserve and, where appropriate, enhance the historic environment of the region including Conservation Areas and Listed Buildings.
3.2 Cambridgeshire and Peterborough Structure Plan (2003)
Saved policies from the Cambridgeshire and Peterborough Structure Plan 2003 are relevant and viewable at http://www.cambridgeshire.gov.uk follow the links to environment, planning, planning policy and Structure Plan 2003.
• P9/8 – sets out the approach towards securing infrastructure provision
3.3 Huntingdonshire Local Plan (1995)
Saved policies from the Huntingdonshire Local Plan 1995 are relevant and viewable at www.huntingdonshire.gov.uk/localplan95
• H31 - explains that new dwellings will only be permitted where appropriate standards of privacy, amenity and parking can be achieved.
• En2 - requires that any development involving or affecting a building of special architectural or historic interest have proper regard to that building.
2 • En5 – explains development will be required to preserve or enhance conservation areas.
• En6 – requires high standards of design and consideration of scale and form and use of materials required in Conservation Areas.
• En9 - development should not impair open spaces, trees, street scenes and views into and out of Conservation Areas.
• En18 – states that important trees, hedges and meadowland will be protected.
• En20 – explains development proposals will be made the subject of landscaping conditions where appropriate.
• En25 - Requires new development to respect the character of the locality.
• T18 – new development to be accessed by new highways of acceptable design and construction.
• T19 – new development should provide safe and convenient pedestrian routes.
• T28 – Requires new development proposals to allow include appropriate parking provision.
3.4 Huntingdonshire Local Plan Alterations (2002)
Saved policies from the Huntingdon Local Plan Alterations 2002 are relevant and viewable at www.huntingdonshire.gov.uk/localplan - Then click on "Local Plan Alteration (2002)
• STR1 – sets out the settlement hierarchy
• STR2 – explains housing development definitions
• HL5 - Requires all new housing development to incorporate good design and layout, achieve an efficient use of land and mix of dwelling sizes, types and affordability.
• HL7 – promotes the re-use of previously developed land
• HL9 - scale of development appropriate in infill villages
3.5 Huntingdonshire Interim Planning Policy Statement 2007
Policies from the Huntingdonshire Interim Planning Policy Statement 2007 are relevant and viewable at http://www.huntsdc.gov.uk click on Environment and Planning, then Planning then Planning+Policy then Informal policy statements where there is a link to Interim Planning Policy Statement 2007
3 • P3 : States that a development must contribute to the social and economic well-being of the district. One of the criteria to be considered is the need to limit the need to travel.
• P7 : settlement hierarchy which defines smaller settlements.
• P8 : Considers development outside the defined limits of the Market Towns and Key centres (Potential and Limited Growth) and outside the existing built-up framework of the Smaller Settlements.
• B1 : States development proposals should demonstrate a high quality of design.
• B4 : States development should not have an unacceptable impact upon amenity.
• B7 : Development affecting the fabric or setting of a listed building should not harm its special interest.
• B8 : Development within the Conservation area should seek to preserve and enhance the character.
• G2 – Requires development proposals to respect and respond to landscape character.
• G3 - states that important trees, hedges, meadowland and other environmental features will be protected.
• G6 – sets out the need to have regard to Strategic Greenspace Enhancement.
• G7 – requires development proposals to have regard to Biodiversity.
• H1 – considers the location of housing development.
• H2 – requires the efficient use of land.
• H3 – explains that development proposals should include an appropriate mix of sizes and types of dwellings.
4. PLANNING HISTORY
4.1 0601787FUL – Erection of two dwellings – REFUSED on the grounds of adverse affect on the character of the area, transition from open country to built settlement, highway safety, Conservation Area and setting of the adjacent listed building.
5. CONSULTATIONS
5.1 Offord Cluny Parish Council – NO OBJECTION (copy attached)
5.2 Local Highway Authority – NO OBJECTION .
4 5.3 HDC Highways Manager – NO OBJECTION subject to precise details of the access.
6. REPRESENTATIONS
6.1 None received.
7. SUMMARY OF ISSUES
7.1 The main issues to be considered here are: the principle of residential development at the site; Conservation Area and Design impact; trees and landscape issues; relationship with existing residential properties; highway safety; and, other material considerations.
Principle of Development and Development Plan Policies
7.2 In accordance with Section 38 (6) of the Planning and Compulsory Purchase Act 2004 applications should be determined in accordance with the Development Plan unless other material considerations indicate otherwise. In this case the Development Plan comprises the East of England Plan Regional Spatial Strategy 2008, the Cambridgeshire and Peterborough Structure Plan 2003, the Huntingdonshire Local Plan 1995 and the Huntingdonshire Local Plan Alteration 2002.
7.3 The Huntingdonshire Local Plan defined environmental limits for all of the villages in the area and this site is within those defined ‘village limits’. Paragraph 7.38 of the Local Plan states that land within village limits will be considered for development in the context of every relevant Local Plan Policy and there is no presumption in favour of development within village limits. In terms of the principle of the development i.e. the erection of two dwellings, the other development plan documents do not contain relevant policies. They do however contain policies which relate to sustainability or impact upon the Conservation Area and these will be discussed later in the report.
Other Material Considerations
7.4 The Huntingdonshire Interim Planning Policy Statement doesn’t define settlement boundaries of smaller settlements but instead requires an assessment of the existing built framework of the settlement, excluding “buildings [and gardens] that are clearly detached from the main body of the settlement …. especially where those gardens relate more to the surrounding countryside than they do to the built-up parts of the village”. In this case the site of agricultural land is clearly outside of the existing built framework of the village and more closely related to the surrounding countryside, with this rural character reinforced by the lack of a pedestrian footway on this side of the B1043. As such the site cannot be considered as still forming part of the pattern of the built framework of the village, and as such should be considered to lie within the open countryside.
7.5 Central government guidance in the form of PPS7 advises that isolated new housing in the countryside will require special justification for planning permission to be granted. The advice is clear and is supported by Policy P8 of the Huntingdonshire interim Planning Policy Statement which states that there is a general
5 presumption against housing development in the countryside with the exception of dwellings required for the efficient management of agricultural forestry and horticulture. The residential dwellings proposed in this application are not required for the efficient management of agriculture, forestry or horticulture and, in the absence of any special justification, would be by definition, contrary to policy.
Impact upon Conservation Area and Listed Buildings
7.6 The Offord Cluny Conservation Area Character Statement highlights the positive contribution the ‘loose nature of development’ and open space between buildings makes to the character of the area as the transition to open countryside is made. From the north, the spatial character of built development, open space and road width / alignment helps to funnel in views and provide a sense of enclosure as you move into the village. It is considered that the proposed two dwellings would be out of keeping with the openness of the northern part of the village which is integral to its character and therefore fail to preserve and enhance the character and appearance of the Conservation Area.
7.7 The scale of the existing listed building, No. 208 High Street, a thatched 1½ storey cottage and outbuilding, is a suitable end to a linear village, which in terms of scale and status usually diminish as the edge of the settlement approaches. As such, there is no pressing requirement in conservation or urban design terms to build on this site to preserve or enhance the character or appearance of the Conservation Area.
7.8 The proximity of the southernmost dwelling to the listed building will also affect the setting of the listed building by intruding into the openness of its surroundings which are an important part of the building’s setting and character.
Trees and Landscape Issues
7.9 The application proposes the planting of a woodland of 0.173 hectares on land to the north of the site. This would amount to a tree belt of approximately 75 metres width and 15 metres depth. A mix of Oak, Ash, Field Maple and Birch are proposed. The submitted Design and Access Statement states that the tree planting is to create a distinctive village edge and provide a sense of enclosure and soft transition between the village and surrounding countryside. Whilst the views of the unattractive modern agricultural building from the north are acknowledged, the building is somewhat off-set and the eye is drawn to the thatched cottage, No 208. As such it is not considered that the potential advantage of the woodland is such that planning permission should be granted for dwellings outside the built up framework of the village.
Relationship with existing Properties
7.10 It is not considered that the proposed dwelling would give rise to conditions that would cause any adverse impact upon neighbours’ residential amenity.
6 Highway Safety
7.11 The previous application which was refused proposed the shared use of the agricultural access whereas this application proposes a new access. The access arrangement now proposed, off High Street, is considered to be acceptable. Following the receipt of an amended plan, adequate on-site vehicle manoeuvring space would be provided.
Other Material Considerations
7.12 No concerns have been raised by the Council’s Environmental Protection Team with regards to the noise climate at the site and the relationship with the mainline railway to the west of the site. The Noise Assessment Report submitted in support of the previous application demonstrated that the site would with a worst case scenario be considered to fall within Noise Exposure Category B where PPG24 does not prevent residential development.
7.13 The proposed erection of two dwellings on a site of approximately 0.1 hectares would equate to a density of development of approximately 20 dwellings per hectare whilst the efficient use of land sought by Local plan policy and central government guidance would require at least three properties to be built to give a density of 30 dwellings per hectare. However, given the site constraints and presumption against development, this matter does not require further consideration.
Conclusion
7.14 The principle of providing dwellings on this site, outside of the built framework of the village and as such within the open countryside, would be contrary to planning policy and guidance. The dwellings would not be required for the efficient management of agriculture, forestry or horticulture enterprises and would represent an unsustainable form of development. Additionally, there would be objections to the impact upon the existing character and appearance of the Conservation Area and the setting of the Listed Building at 208 High Street. As such, and the light of national guidance, Development Plan policies and other material considerations planning permission should be refused for the development as proposed.
8. RECOMMENDATION – REFUSE, for the following reasons:
8.1 The site is located outside the built up framework of the village. The development of this site therefore constitutes development in the open countryside with no agricultural justification and would also adversely affect the character of the area and the transition from open country to built settlement. The proposal would therefore be contrary to Policies P8 and G2 of the Huntingdonshire Interim Planning Policy Statement 2007.
8.2 The proposed dwellings by virtue of their siting, design and external appearance would fail to preserve or enhance the existing character or appearance of the Conservation Area, the setting of the adjacent listed building and be detrimental to the general streetscene and the wider countryside setting. The development would thereby be
7 contrary to Policies ENV6 and ENV7 of the East of England Plan Regional Spatial Strategy, Policy HL5 of the Huntingdonshire Local Plan Alteration (2002), Policies En2, En5, En9, and En25 of the Huntingdonshire Local Plan 1995 and advice contained in PPS1, PPS3 and PPG15 on design quality.
Background Papers:
Planning Application File Reference: 0801416FUL Cambridgeshire and Peterborough Structure Plan, 2003 Huntingdonshire Interim Planning Policy Statement 2007 Huntingdonshire Local Plan Alteration, 2002 Huntingdonshire Local Plan, 1995
CONTACT OFFICER - enquiries about this Report to Jennie Parsons, Development Control Team Leader ( 01480 388409.
8