Merton Council...Jul 19, 2012 · order for the Committee to consider the officer’s...

PLANNING APPLICATIONS COMMITTEE 19 July 2012

Item No: 07

UPRN APPLICATION NO. DATE VALID

12/P1144 24/04/2012

Address/Site 28 Lingfield Road, Wimbledon SW19 4PU

(Ward) Village

Proposal: Conversion of four x self-contained flats into a single dwellinghouse, involving demolition of existing single storey timber rear extension and erection of new terrace with external staircase.

Drawing Nos 28/PA001, 28/PA100, 28/PA101, 28/PA300A, 28/PA301A and Design and Access Statement

Contact Officer: Richard Allen (8545 3621) ___________________________________________________________________

RECOMMENDATION

REFUSE Planning Permission

_______________________________________________________________

CHECKLIST INFORMATION

� Heads of agreement: None� Is a screening opinion required: No� Is an Environmental impact statement required: No� Has an Environmental Impact Assessment been submitted: No � Press notice-Yes� Site notice-Yes� Design Review Panel consulted-No� Number neighbours consulted – 22� External consultants: None� Density: n/a � Number of jobs created: n/a� Archaeology Priority Zone: Yes

N:\Combined Reports 19th July 2012\07) 28 Lingfield Road, Wimbledon\01) Report.doc

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1. INTRODUCTION

1.1 This application has been brought to the Planning Applications Committee in order for the Committee to consider the officer’s recommendation to refuse planning permission in light of the a previous decision to allow a similar change of use at 29 Lingfield Road and due to the representations received..

2. SITE AND SURROUNDINGS

2.1 The application property comprises a large detached building currently occupied as four flats situated on the south side of Lingfield Road. The application property is a locally listed building and is within the Merton (Wimbledon West) Conservation Area.

3. CURRENT PROPOSAL

3.1 The current application seeks the conversion of the four existing self- contained flats (one x 2 bedroom and two x 3 bedroom and one x 4 bedroom units) into a single dwellinghouse, involving demolition of the existing single storey timber rear extensions and the erection of a new terrace with external staircase.

3.2 The existing timber structure situated on the rear elevation would be replaced with a terrace with brick balustrade and external stairs to the garden. New French doors would provide access to the terrace. The other alterations would be internal, removing doors and partitions to reinstate the original floor plan of the house.

3.3 It is also proposed to reduce the amount of parking in the front garden and enhance the areas of soft.

4. PLANNING HISTORY

4.1 28 Lingfield Road In 1952 planning permission was granted for the use of the property as a private residence with allocation for two rooms for piano and singing instruction until 30/09/1966.

4.2 In November 1952 planning permission was granted for the conversion of the property into four self-contained flats and addition of garage until 30/09/1967 (Ref.WIM1282).

4.3 In November 1967 planning permission was granted for the permanent use of the property as four flats (Ref.MER831/67).


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4.4 In March 2001 planning permission was refused for a change of use of the property from four flats to a single family dwellinghouse (LBM Ref.01/P0198). Planning permission was refused on the grounds that:-

‘The proposed conversion from four flats to a single dwelling would result in the loss of smaller units of accommodation which would result in a reduction in housing supply and increase pressure for residential redevelopment on non-designated housing sites in the borough, contrary to Policy HP.8 9b) of the Second Deposit Draft Merton UDP (October 2000) and government guidance PPG3’.

4.5 The applicant appealed against the Councils refusal of planning permission and the Planning Inspector dismissed the Appeal on 20 September 2001 (Ref.APP/T5720/A/01/1067172). The Planning Inspector concluded that ‘the loss of (relatively) small residential units, which would occur if the appeal were allowed and the proposal implemented, would reduce the actual and potential supply of such units in the borough. This in turn would increase the pressure on supply. This would harm the boroughs housing supply in general. The Inspector continued ‘the policy objective of protecting smaller housing units form changes of use has the sanction of an emerging policy which merits considerable weight. In broad terms it is backed up by national and regional policy guidance. In the absence of any strong case to the contrary, (or indeed, of any housing-needs-based case). I think it deserves support. In addition, the proposal would not be conductive to the most efficient use of urban land. Given that the proposal would probably have a broadly neutral effect on the conservation area, and that no other planning issues are raised this is why the appeal must fail’.

4.6 Number 28 Lingfield Road is a locally listed building. The local listing dates from April 1998 and also includes numbers 27, 29, 29A Lingfield Road.

4.7 Of relevance to the current application is the planning history for 29 Lingfeild Road.

29 Lingfield Road In December 1949 planning permission was granted for the change of use from nursing home to guest house for a period of three years (Ref.WIM563).

4.8 In March 1953 planning permission was granted for a change of use from nursing home to guest house until 13/12/1959 (Ref.WIM1392).

4.9 In December 1959 planning permission was granted for a change of use from nursing home to guest house until 31/12/1969 (Ref.WIM4669).

4.10 In July 1965 planning permission was granted for the conversion of the property into four self-contained flats (Ref.MER316/65).

4.11 In November 2008 an application for a lawful development certificate in respect of the change of use of the property from four flats to a single family


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dwellinghouse was submitted (LBM Ref.08/P3169/NEW). However, the applicant withdrew the application on 09/03/2009.

4.12 In May 2009 planning permission was granted under delegated powers for the change of use of the property from four flats into a single family dwelling house and the erection of new front boundary wall and piers and restoration of second floor bay window and chimney stacks on north west elevation (LBM Ref.09/P0422).

4.13 In December 2011 planning permission was granted under delegated powers for the renewal of extant planning permission LBM Ref.09/P0422 dated 06/05/2009 (LBM Ref.11/P3106).

5. CONSULTATION

5.1 The application has been advertised by Conservation Area site and press notice procedure and letter of notification to occupiers of neighbouring properties. In response three letters of objection have been received. The grounds of objection are set out below:-

-The occupier of flat 1, 28 Lingfield Road states that currently Lingfield Road has a balance of houses converted into reasonably priced flats and expensive houses, a good mix. -Number 29 Lingfield Road has already has approval for conversion into a single dwelling, losing the road 4 x three bedroom flats, and if number 28 was also granted planning approval there would be a further loss of 4 x three bedroom flats, reducing reasonably priced accommodation by 8 units. -The loss of units is in contravention with Merton’s housing policy CS9 (Housing Provision) and is at odds with the target for more three bedroom units in policy CS14. -The proposed change of use would result in loss of family accommodation and is not in the interest. -The Wimbledon Society state that the society wishes to draw attention of the Council for the current trend to allow change from multiple occupancy of large, older properties into single family homes and requests that the overall loss of smaller units is noted and that this does not result in the shortage of homes.

6. POLICY CONTEXT

6.1 The relevant policies within the Adopted Merton Core Strategy (July 2011) are CS8 (Housing Choice), CS9 (Housing Provision), CS14 (Design) and CS20 (Parking, Servicing and Deliveries).

6.2 The Retained Policies within the Merton UDP (October 2003) are HP.2 (Retention of Residential Units), HS.1 (Housing Layout and Amenity),

BE.1 (Conservation Areas; New Development, Change of Use, Alterations and Extensions), BE.11 (Local List Rehabilitation and Maintenance), BE.15 (New Buildings and Extensions: Daylight, Sunlight, Privacy, Visual Intrusion


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and Noise), BE.23 (Alterations and Extensions to Buildings), BE.25 (Sustainable Development).

6.2 The London Plan (July 2011) The relevant policies within the London Plan are 3.3 (Increasing London’s

Housing Supply), 3.4 (Optimising Housing Potential), 3.5 (Quality and Design of Housing Developments), 3.8 (Housing Choice), 5.1 (Climate Change Mitigation), 5.2 (Minimising Carbon Dioxide Emissions) and 5.3 (Sustainable Design and Construction).

7. PLANNING CONSIDERATIONS

7.1 The main planning considerations concern the loss of residential units and design and appearance of the proposed alterations and their impact upon neighbour amenity and upon the character and appearance of the locally listed building and the conservation area.

7.2 Loss of Residential Units The current proposal would result in the loss of two x 3 bedroom, one x 2 bedroom and one x 4 bedroom family sized flats and as such the proposed change of use would be contrary to retained UDP policy HP.2 (Retention of Units) and Adopted Merton Core Strategy Policy CS9 (Housing Provision). The applicant has referred to the grant of planning permission for a change of use of 29 Lingfield Road from four flats to a single family dwelling house approved by planning permission LBM Ref.09/P0422 on 06/05/2009. That was subsequently renewed by LBM planning permission LBM Ref.11/P3106 on 23/12/2011 (as setting a precedent for a further change of use). However, whilst the proposed change of use at 29 Lingfield Road was considered to be acceptable in terms of preserving the character and appearance of the conservation area, the officer’s reports on both applications did not consider the loss of residential units. Since the original application was considered in respect of the change of use of 29 Lingfield Road from four flats to a single family dwellinghouse, the Merton UDP has been superseded by the Merton Core Strategy (Adopted in July 2011). Policy HP.2 (Retention of Units) is a retained policy from the Merton UDP and Policy CS9 (Housing Provision) of the Adopted Merton Core Strategy both seek to prevent the loss of residential units.

7.3 The Mayor’s London Plan of 2011 ‘recognises the pressing need for more homes in London in order to provide a real choice for all Londoners in ways that meet the needs at a price they can afford’ (policy 3.3 p81). To this end the Mayor has set an annual target of 32,210 additional new homes for London. The Mayor acknowledges the potential from brownfield housing capacity particularly with regards to intensification and sensitive renewal of existing residential areas. Policy 3.4 in particular states ‘taking into account local context and character, the design principles…and public transport capacity, development should optimise housing output for different type of location…Development proposals that compromise this policy should be resisted’.


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7.4 The application form describes the existing building as containing two x 2 bedroom and two x 3 bedroom flats. However the flats are large units and the lower ground floor unit also has a room marked study on the submitted plans that could easily be a single bedroom, so it is a four bedroom unit. The second floor also has a large stud which could be a bedroom which results in this being a 3 bedroom flat no a two bedroom unit.

The proposal to convert the property into a single family dwellinghouse would therefore result in the loss of four family sized flats and would be contrary to retained UDP policy HP.2 and Adopted Core Strategy Policy CS9 and London Plan Policies 3.3 and 3.4.

7.5 Design Issues As well as internal alterations pursuant to the change of use from four flats to a single dwellinghouse, the proposal would involve the removal of the timber rear addition and the erection of a new terrace and external staircase. The design of the external terrace and new French doors and external staircase id considered to be acceptable in terms of retained UDP policies BE.1 and BE.23.

7.6 Neighbour Amenity In terms of neighbour amenity, the only issue relates to the provision of a raised external terrace are to the side/rear elevation of the building. The existing timber structure detracts from the appearance of the building and its removal would result in a visual improvement to the side and rear elevation of the building. The existing timber structure also incorporates a raised terrace area and timber steps to the garden. The replacement terrace would be in a similar position so that the impact upon neighbour amenity would be no worse than the existing situation in terms of potential overlooking and/or loss of privacy. The proposed terrace is therefore considered to be acceptable in terms of retained UDP policy BE.15.

7.6 Conservation Area/Locally Listed Building Issues The removal of the timber rear addition and the construction of a small terrace and external staircase, together with the general refurbishment of the building and the enhancement of the soft landscaping in the front garden would preserve and enhance the character and appearance of the Merton (Wimbledon West) Conservation Area, and enhance the appearance locally listed building. The proposal is therefore acceptable in terms of retained UDP policies BE.1 and BE.11.

SUSTAINABILITY AND ENVIRONMENTAL IMPACT ASSESSMENT REQUIREMENTS

9.1 The proposal does not constitute Schedule 1 or Schedule 2 development.Accordingly there is no requirement for an EIA submission.


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9.2 The proposal involves a change of use and there are no sustainability requirements.

9.3 Local Financial Considerations The proposal involves a change of use and therefore the proposal would not

be subject to the Mayor of London’s Community Infrastructure Levy requirements.

10. CONCLUSION

10.1 It is recognised that the proposal would result in an improved front parking area. However, this marginal visual benefit does not outweigh the loss of family accommodation. The proposed change of use from four flats to a single family dwellinghouse would result in the loss of four family sized flat units and result in a reduction of housing supply and increase pressure for development on non-designated housing sites within the borough contrary to retained UDP policy HP.2 and Adopted Core Strategy Policy CS9 and London Plan Policies 3.3 and 3.4. Accordingly, it is recommended that planning permission be refused.

RECOMMENDATION

REFUSE Permission

On the grounds that:-

The proposed change of use of four family sized flats to a single family dwellinghouse would result in a net loss of residential units and would be contrary to retained Policy HP.2 (Retention of Residential Accommodation) of the Merton UDP (October 2003), Policies CS.8 (Housing Choice) and CS.9 (Housing Provision) of the Adopted Merton Core Strategy (July 2011) and Policies 3.3 (Increasing Housing Supply) and 3.4 (Optimising Housing Potential) of the London Plan (July 2011).

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