North Area Committee - 7th February 2008

Application 1) 07/02599/FUL Numbers: 2) 07/2598/CAC

Decision Due by: 14th January 2008

Proposal: 1) 07/02599/FUL Erection of replacement 2/3 storey dwelling, replacement of existing 1.7m close boarded fence with 1.7m brick wall.

2) 07/2598/CAC Conservation area consent for demolition of existing two storey dwelling and attached single storey garage.

Site Address: Garford House Garford Road (Site map at appendix 1).

Ward: St Margarets Ward

Agent: Gray Baynes & Shew Applicant: Peregrine & Hester Riviere

Application Called in – by Councillors – Campbell, Brundin, Hollander and Goddard for the following reasons – Overbearing impact

Recommendation: Application be Approved

For the following reasons:

1 The Council considers that the proposal accords with the policies of the development plan as summarised below. It has taken into consideration all other material matters, including matters raised in response to consultation and publicity. Any material harm that the development would otherwise give rise to can be offset by the conditions imposed. subject to the following conditions, which have been imposed for the reasons stated:-

Application 07/02599/FUL 1 Development begun within time limit 2 Samples in Conservation Area 3 Revised details of dormer windows 4 Design - no additions to dwelling (i.e. permitted development rights removed) 5 Revised parking layout 6 Landscape protectin of trees shown on plan 7 No felling, lopping, cutting

REPORT 8 Landscape plan required 9 Landscape by completion

Application 2) 07/2598/CAC 1 Commencement of works – conservation area consent 2 Conservation area consent in accordance with approved plans 3 Building not to be demolished prior to contract for redevelopment

Main Local Plan Policies: Oxford Local Plan 2001-2016 CP1 - Development Proposals CP6 - Efficient Use of Land & Density CP7 - Urban Design CP8 - Design Development to Relate to its Context CP15 - Energy Efficiency TR3 - Car Parking Standards TR4 - Pedestrian & Cycle Facilities HE7 - Conservation Areas HS19 - Privacy & Amenity HS21 - Private Open Space

Other Material Considerations: This application is in or affecting the Victorian Suburb Conservation Area. Oxfordshire Structure Plan 2016 PPS3 Housing PPG15 Historic Environment

Relevant Site History: 58/6680/A_H Dwelling house and garage for private car. APPROVED 22.4.58

Representations Received: 7 Representations received making the following comments:

• Size, mass form height and scale of proposal is out of keeping with surrounding residential dwellings • Loss of privacy • Increased footprint • Proposal will detract from the character and appearance of the area • Proposal is out of character with the homogeneity of Garford Road and their low key scale and appearance • Proposal comes too close to boundaries with neighbours • Design is non cohesive and aims to produce as big a house a possible • Proposal will be overbearing and oppressive • Application site is on sloping ground and therefore the site is higher and will be more overbearing to neighbours • Loss of light to neighbours • Parking and access proposed to rear of plot • Hard landscaping out of character

REPORT • Loss of trees • Proposal does not respect the history of the site in that the plot was part of the original Blackhall Farm

Statutory and Internal Consultees: Neighbourhood Association, Oxford Preservation Trust, no responses. Environment Agency Thames Region: No impact Thames Water Utilities Limited: No objections Tree Officer: No objections Highways Authority: Inadequate parking and turning space

Issues: Principle of demolition of existing building Impact of proposed replacement on character and appearance of conservation area Impact on neighbours Highway safety

Sustainability: This is an accessible location being close to good public transport services. There are also cycle lanes providing access to the City Centre. The proposal represents an efficient use of a brownfield site.

Officers Assessment:

Site Location and Description 1. The application site is located half a mile north of Oxford city centre, within the North Oxford Victorian Suburb Conservation Area. The site is currently occupied by Garford House which is a large detached dwelling constructed in the late 1950s. The site was formerly part of the garden of Blackhall Farm, which is located on the north east corner of and Garford Road.

Proposals 2. The applications propose the demolition of the existing buildings on the site and replacement with a detached dwelling of 2 storey in height with a third floor contained in the roof and lit by dormer windows. It is proposed to replace the existing fence that fronts Garford Road and replace it with a 1.7m high brick wall, with the retention of trees and shrubs behind. The existing vehicular access is retained as is the arrangement of the existing driveway to the rear of the plot. The existing garage will be removed and parking is proposed to the rear of the dwelling.

Principle of Development 3. The Planning (Listed Buildings and Conservation Areas) Act 1990 requires that in the determination of planning applications special regard should be paid to the desirability of preserving or enhancing the character or appearance of the conservation area. This requirement is given effect in policy HE7 of the Oxford Local Plan 2001 –2016 which seeks to ensure that new development preserves or enhances the character or appearance of the conservation area.

REPORT

4. Government Advice in PPS3 Housing. encourages the efficient use of previously developed land in a way that protects the character of the local environment. This is core to the Housing policies in the Local Plan.

5. PPG15 Planning and the Historic Environment states that when considering applications for the demolition of buildings within a conservation area, ‘the general presumption should be in favour of retaining buildings which make a positive contribution to the character or appearance of a conservation area’. It adds that where a building makes little or no contribution then there is the opportunity for redevelopment which could add to the character or appearance of the conservation area and the loss of the existing building can be accepted. This is on the presumption that there are acceptable plans for redevelopment.

6. PPG15 states that when considering proposals for new development in conservation areas ‘special regard should be had for such matters as scale, height, form, massing, respect for the traditional pattern of frontages vertical or horizontal emphasis and detailed design (e.g. The scale and spacing of window openings, and the nature and quality of materials). What is important is not that new buildings should directly imitate earlier styles, but that they should be designed with respect for their context, as part of a larger whole which has a well-established character and appearance of its own’. The emphasis is on managing change rather than preventing all forms of new development.

Analysis of conservation area 7. The Conservation Area Appraisal for North Oxford is in its final revision stages following consultation with the local community. It explains the character of this part of the conservation area east of Banbury Road and is a material consideration in the consideration of this application.

8. The development of the Bardwell Estate introduced a new architectural language to North Oxford. The influence of Wilkinson and Moore, the predominant architects of much of North Oxford up until the turn of the century, diminished and new wave architects, Frank Mountain, Arthur Martin and Christopher Wright designed in the more fashionable styles of the Arts and Crafts, Queen Anne and Neo-Georgian. This led to an eclectic mix of styles within the area where tall gothic piles gave way to broader lower buildings with hipped roofs, timber sash or casement windows, brickwork, roughcast render or timber framing, symmetrical and asymmetrical facades, with chimneys positioned to reinforce the formality or the informality of the design. Chadlington Road, Linton Road, Northmoor Road and Garford Road all exhibit these characteristics.

The Existing Building 9. The existing detached house on the site was built in 1958 on part of the land belonging to Blackhall Farm. It is a design of its time, sited back from the front boundary on a generously sized plot. The house is of a scale and design that does not reflect the characteristics or appearance of the

REPORT conservation area and would, if it were more visible in the road, have a negative impact on the conservation area. As it is, screened by the boundary fence and trees, its contribution could be described as neutral. There is no objection to its demolition provided that there are acceptable plans for its replacement.

Proposed replacement building 10. The proposed new dwelling has its roots in the arts and crafts traditions, expressing externally the way the building functions. It thus has an informal arrangement of forms, with sweeping roofs, prominent chimneys, and a mix of window proportions and designs. It is shown set well back in the site to maintain the generous front garden and landscaping and to relate to the alignment of Blackhall Farm. It is a collection of ‘building blocks’ with a main range and a T shape series of ‘extensions’ to the front and rear. Whilst its foot print is larger than the existing, this form of development enables it to maintain ridge heights that are comparable with its neighbours and delivers an organic form to the building’s mass that responds to the area’s built characteristics. It is clearly not an imitation of historicist styles that prevail but it is intended as a contemporary interpretation of the architectural movements that influenced the development of this part of the North Oxford Victorian Suburb.

Visual Impact / Impact on Neighbours 11. Officers recognise that the existing building does not make a contribution to the special interest or appearance of the conservation area. Whilst the proposed building represents a significant increase in floor area and has a bigger footprint, given the size of the plot and the character of the area it is considered that the site is capable of accommodating such a building without detriment.

12. Concern has been expressed about the design, appearance and prominence of the proposed dwelling. The application site was once part of the garden to Blackhall Farm. This plot was subdivided in 1958 with development of the current dwelling and the current situation is a building that makes no contribution to the conservation area. It is not an option to attempt to recreate that original layout with a new building that is subservient to Blackhall Farm. That would be to deny the history of the development of the suburb. Officers’ view is that it is the right approach to design a building that reinforces the changed architectural approach to the suburb.

13. The new building has a long principal ridge running parallel to the road, but it is set well back into the site behind a well landscaped front garden and with the offsetting cross wings the impact of the additional floorspace is reduced. Officers have requested that the dormer windows be reduced in size in order that they appear less bulky and more in keeping with the Arts and Crafts style. This can be secured via condition. Officers do not consider that the building will be imposing or intrusive within the street scene.

REPORT 14. Whilst the proposed building comes closer to Blackhall Farm, there will be a distance of 5.6 metres to the boundary. Blackhall Farm is located a further 9.3 metres from the shared boundary. On the west elevation of the proposal, the roof of the two storey element has a reversed half hip, beyond which the building drops down to a single storey. It is considered that this will reduce the impact of the proposed dwelling to Blackhall Farm and as such it will not be overbearing or result in a loss of light. There are no windows on the west elevation facing Blackhall Farm and as such there will be no loss of privacy. There is a further range of first floor windows in the forward projecting west elevation that look towards Blackhall Farm. These windows are set 20 metres from the boundary and Officers do not consider that overlooking from them would result in a loss of privacy to the neighbour.

15. The existing dwelling on site is set at a slight angle. The proposal sites the new dwelling so that it is parallel with the east boundary. As such the proposed dwelling will be closer to the neighbouring dwelling but still 6 metres from the boundary. The southernmost section of the proposal comes 6 metres further forward than the existing dwelling, however this part of the proposal is one and a half storeys in height and is subservient to the main part of the house. Officers do not considere that it will be overbearing to the neighbour at No. 1 Garford Road. Two side windows are proposed in the east elevation at first and second floor level. As there is a distance of 6 metres to the boundary and there are mature trees and shrubs on the boundary it is not considered that these would result in a loss of privacy.

16. Many of the proposed windows in the rear (north) elevation serve non habitable rooms. There are rear facing windows in the existing house and the proposed windows reflect the existing situation. Therefore it is not considered that there will be a loss of privacy as a result of the proposal. In the north east corner of the proposed development, the building drops to a single storey and principal windows face over the garden (i.e towards the west). As such it is not considered that the proposal would be overbearing to, or result in a loss of privacy to 43 Charlbury Road.

17. The existing access and driveway are retained to the rear of the site. Vehicles will go further into the site than previously, with a parking area at the rear. Officers do not consider that this will have a detrimental impact on neighbours because this is a residential use there will not be a significant number of vehicular movements a day.

18. It should be remembered, as explained in PPG15, that it is not the City Council’s role to dictate a particular architectural style, the focus should be on contextual matters of scale, mass and materials. On these issues it is considered that, subject to suitable conditions to control the detail and selection of materials, the proposal demonstrates an understanding and intelligent response to the site’s constraints.

Trees

REPORT 19. There are many mature trees and shrubs on the site. It is proposed to remove 4 trees and a shrub. The Council Tree Officer has no objection to these proposals. Conditions can be attached to secure protection of the remaining trees during demolition and construction. Replacement tree and shrub planting would be secured via condition in order to provide screening to neighbours should Committee be minded to approve the application.

Parking and Highway Safety 20. The Highways Authority comments that three parking spaces should be provided for the proposed development. The plans do not show sufficient room for parking or turning on site. Should the application be approved, additional parking and turning space should be required via condition.

Conclusion: The demolition of the current building on the site will not be detrimental to the conservation area and as such North Area committee is recommended to grant conservation area consent subject to the conditions set out in this report. Officers consider that the proposed development is appropriate in size, scale and massing in relation to the street scene, adjoining properties and in relation to the Conservation Area. Officers do not consider that there would be any adverse impact on neighbouring residential amenities. North Area Committee is therefore recommended to support the proposals

Human Rights Act 1998 Officers have considered the Human Rights Act 1998 in reaching a recommendation to grant planning permission, subject to conditions. Officers have considered the potential interference with the rights of the owners/occupiers of surrounding properties under Article 8 and/or Article 1 of the First Protocol of the Act and consider that it is proportionate.

Officers have also considered the interference with the human rights of the applicant under Article 8 and/or Article 1 of the First Protocol caused by imposing conditions. Officers consider that the conditions are necessary to protect the rights and freedoms of others and to control the use of property in accordance with the general interest. The interference is therefore justifiable and proportionate.

Section 17 of the Crime and Disorder Act 1998 Officers have considered, with due regard, the likely effect of the proposal on the need to reduce crime and disorder as part of the determination of this application, in accordance with section 17 of the Crime and Disorder Act 1998. In reaching a recommendation to Approve officers consider that the proposal will not undermine crime prevention or the promotion of community safety.

Background Papers: Application file 07/02599/FUL

Contact Officer: Nick Worlledge/Mary Rowe Extension: 2160 Date: 8th January 2008

REPORT REPORT