Item No 4(a)

Site: Land Adjacent to 63 Yarborough Road, Lincoln, LN1 1HS

Application No: 2012/0346/F

Target Date:

Agent: Andy Hey

Applicant: Mr Antony Woodward

Development: Erection of 8 dwellings

Background The application is for the erection of 8 dwellings on land adjacent to 63 Yarborough Road. The site is currently a vacant piece of land and runs from Yarborough Road at its southern edge, up the escarpment slope to Alexandra Terrace to the north. The properties which sit adjacent to the site on Yarborough Road generally take the form of two or three storey semi detached Villa style properties, whilst to the north are predominantly two storey Victorian terraces on Alexandra Terrace.

The northern part of the site was previously occupied by garages but these were demolished some time ago. A pair of two storey semi detached properties have recently been developed fronting Alexandra Terrace immediately adjacent to the site to the north-east, whilst to the north west the land remains open as part of the rear gardens of the properties fronting Yarborough Road. This area does, however, accommodate varying degrees of surface level parking, whilst further to the north west sits Liquorice Park which forms an area of open space between Yarborough Road and Carline Road.

The semi detached properties recently constructed

The Proposal The properties would be arranged in two blocks of four terraces, with plots 1 – 4 accessed from Yarborough Road and plots 5 – 8 fronting Alexandra Terrace. The

properties fronting Yarborough Road accommodate two and three bedrooms and would be three storeys to the front and two storey to the rear, taking account of the escarpment slope. The properties would be set back from the road and accessed via steps from the main footpath along Yarborough Road. Those fronting

Alexandra Terrace would have three bedrooms and be two storeys positioned at back edge of footpath. These properties would mirror the scale, form and appearance of those already constructed immediately to the east.

Planning History The site has been the subject of numerous proposals in the past, the most recent of which was approved by Planning Committee in 2004. Committee resolved to grant the 8 two bed apartments fronting Yarborough Road and refuse the 1 dwelling and apartment over garage facing Alexandra Terrace, as part of a split decision. The Alexandra Terrace part of the development was, however, subsequently granted on appeal by the Planning Inspectorate. The approved scheme can be seen below: -

Site Visit Undertaken on 14th September 2012 Issues The principle of development in relation to local and national planning

policy Visual amenity, design and the character and appearance of the area Residential amenity Highway Safety and Parking Slope Stability

Policies Referred to Local Policy Policy 34: Design and Amenity Standards Policy 56A: New Housing (self-contained) National Policy National Planning Policy Framework (NPPF) – Chapter 4: Promoting sustainable transport Chapter 6: Delivering a wide choice of high quality homes Chapter 7: Requiring Good Design Other Policy Lincoln Townscape Assessment Character Area Statement (LTA)

Previous approval in 2004

Consultations Consultations were carried out in accordance with the Statement of Community Involvement, adopted June 2006. Responses Mr K J Pratt Upper Witham Drainage Board Comments

West End Residents Association 176 West Parade Lincoln LN1 1RU

Comments

Beatrice Kelly 79, Alexandra Terrace Lincoln LN1 1JF

Objection

R J Neate 21 Broadway Lincoln LN2 1SQ

Objection

Helen Townsend 91 Alexandra Terrace Lincoln Lincolnshire LN1 1JF

Objection

Highways & Planning Lincolnshire County Council No Objections

The objections principally relate to issues of parking along Alexandra Terrace, the impact of the proposal during construction, issues of slope stability with particular reference to the foundation design and the scale and height of the proposal being inappropriate for the area and causing overlooking to Alexandra Terrace. West End Residents Association have requested that the site be subject to a Section 106 agreement for no students and the applicants are happy to commit to this. Consideration The Principle of Development in Relation to Local and National Planning Policy The site lies within an area shown as being in predominantly residential use within the City of Lincoln Local Plan, and as such Policy 56A: New Housing (self-contained) directs new residential development to such areas. National Planning Policy states that housing developments should also be considered within the context of the presumption in favour of sustainable development, directing new development to previously developed land. In accordance with the definition of such land within the NPPF, given the site has previously accommodated garages this would be Brownfield Land and I am satisfied such land can be brought forward for development in this context.

In addition, the site has been the subject of relatively recent previous approval for housing development, whilst the site is well located within an established residential area and close to the City Centre. It is also in proximity to the public transport network as well as other local facilities on Burton Road and Steep Hill, and I therefore consider this to be a suitable and sustainable location for new housing in principle. Visual Amenity, Design and the Character and Appearance of the Area Given the site has two principle road frontages, to Alexandra Terrace and Yarborough Road, the development needs to assimilate effectively with two different residential areas each with their own distinct character. Alexandra Terrace lies half way up the north escarpment and consists almost entirely of terraced houses dating to the Late Victorian/Edwardian Period. Houses have a strong repeating form along streets and are consistent height, creating a strong horizontal building line along east/west streets, and a vertical stepped pattern of roofs and façades along roads running up/down the escarpment. The continuous building line results in a regular and strong sense of enclosure along streets. In terms of Yarborough Road, the area is dominated by large-scale, individually styled Late Victorian/Edwardian buildings, which benefit from extensive views off the escarpment slope as well as a close location to the city centre. The changing gradient of the escarpment slope strongly influences many elements of the urban form, such as the size of housing plots, accessibility, road layout, the aspect of buildings, and the rhythm of buildings up and down the escarpment slope. There is a low building density throughout much of the area, possibly because of the problematic steepness of the escarpment slope, as well as the generally large scale of buildings set in spacious plots. The larger scale properties are mainly located on the upper parts of the escarpment slope, with smaller scale terraced houses located in less prominent positions on the southern side of the street. The photograph here details the properties immediately to the west of the site on Yarborough Road (73, 75, 77 and 79). The proposal has been the subject of detailed pre-application advice given its prominence and positioning on the escarpment slope, and I am satisfied that both elements respond positively to the surrounding pattern of development. In terms of scale and location on the plot of the Yarborough Road properties, this

has been raised by the objections. This appears, however, generally characteristic of the area, the height of the building stepping down slightly from the adjacent property to the west in an attempt to address the scale of both adjacent properties, the property to the east being two storey in height, and being of a scale which befits its prominent location on the escarpment slope. In addition, the property is set back in line with both adjacent properties with a pedestrian, stepped access from the footpath which again mirrors the established development in the surrounding area.

Although a terrace of four properties, the built form is articulated and proportioned to mirror that of other, semi detached properties within the area whilst the overall design incorporates many of traditional elements which are an established part of the Yarborough Road street scene. The development incorporates correctly proportioned square and splayed bays with projecting timber gables, as well as more intricate details such as cast stone bay surrounds, headers and cills, recessed doorways and eaves detailing. Such details serve to give the building a traditional appearance which befits its location and I am therefore satisfied that the design is appropriate.

The properties to Alexandra Terrace also mirror the form of the traditional terraces present along this Street, matching the recent development constructed directly adjacent. Although not attached to this development, it is close enough to ensure that the proposal appears as a terrace which compliments the street scene and offers the characteristic enclosure associated with this form of development. This area of Alexandra Terrace currently lacks definition given its lack of built form and this proposal enhances the street scene, continuing the design of the recently built dwellings exactly to mirror the repetition usually associated with terraced properties.

Proposed Yarborough Road frontage

I am therefore satisfied that the development is a well designed and characteristic addition to both Alexandra Terrace and Yarborough Road, as well as the wider area, particularly when assessed against the design of that previously approved and given the untidy nature of the existing site, and contributes positively to visual amenity.

Existing Proposed

Rear of properties fronting Yarborough Road

Existing and proposed Alexandra Terrace frontage

Residential Amenity In terms of impact on residential amenity, plots 1 – 4 fronting Yarborough Road would sit basically in line with both neighbouring properties. To the west the side elevation of 73 Yarborough Road (pictured right from Alexandra Terrace top and Yarborough Road bottom), does contain a high level window in the main facing elevation, and this does appear to be to a bedroom. Given this is a side window, however, it cannot be afforded the same weight in the planning process as windows on more prominent elevations, and any form of development on this site would directly impact on this window. I am therefore satisfied that although there is undoubtedly a loss of outlook from and light to this window, it cannot be considered significant enough in this context to warrant refusal of the application. The two storey off shoot of no.73 also contains facing windows, however these would not be unduly impacted upon by the built form, and similarly the loss of light to the rear garden would be restricted to a period in the late morning. To the east, the proposal would again be in line with the front and rear elevations of 63 Yarborough Road (pictured right from Yarborough Road top and Alexandra Terrace bottom). Again this property does contain windows which would face onto the side elevation, however I am satisfied this impact would not be unacceptable in accordance with the reasons outlined previously. Given the orientation of the proposed dwelling in relation to no.63, there would be no loss of light to the rear garden whilst the overall built form would not appear unduly dominant or overbearing given its adherence to the existing, established building line. The side elevations of the proposed dwellings would accommodate facing windows, however all of these would be to bathrooms or en-suites and would therefore be obscure glazed. It should also be noted that the previously approved application on this site approved a building on a similar footprint which was slightly higher than this proposal, and I am therefore satisfied that the impact of the proposal would not be unduly harmful to neighbouring properties on Yarborough Road.

To the north, Plots 5 – 8 would face Alexandra Terrace. In terms of the impact on Alexandra Terrace, consultation responses have raised concern in relation to overlooking and subsequent loss of privacy. This proposal does, however, replicate the relationship approved on the adjacent site, allowing a degree of separation here of approximately 12.5m, and this relationship is typical of the Street. In addition, the previous application on this site approved a building fronting Alexandra Terrace, and the appeal inspector in approving the proposal acknowledged this as a typical relationship for the area. I am therefore satisfied that the impact on the Alexandra Terrace properties would be acceptable. There would also be an impact to the south given the elevated position of the new properties to Yarborough Road, and the dwellings would present a two storey elevation to the rear, and the site section below details this relationship. The main impact would be on the new plots 1 – 4 which would front Yarborough Road, however the degree of separation of approximately 17m is an acceptable one. In addition, the first floor windows would be to sitting rooms but high level and looking over the Yarborough Road properties, whilst the remaining facing windows would be rooflights.

Floor Plans and side elevations of the properties fronting Yarborough Road

A similar relationship has also been approved given the positioning of the dwellings adjacent, illustrated by the CGI (above) but particularly by the picture adjacent which details the new, recently completed dwellings to the right and 63 Yarborough Road to the left, and I am therefore satisfied the two blocks are positioned appropriately in relation to one another. The new dwellings would be positioned at an angle to 73 Yarborough Road, which would be the closest existing property, and again given the degree of separation and overall design of the plots 5 – 8, I am satisfied this would be an acceptable relationship and the development overall would not have an undue impact on neighbouring amenity. Highway Safety and Parking A number of residents have raised issues with the impact of the proposed development in relation to the existing on street parking situation. Alexandra Terrace is part of a residents parking scheme administered by the City Council, and this development contains no parking as part of the proposal. Parking at the site was discussed as part of the pre-application discussions, however was discounted given the impact this would have had on the design and overall layout of the scheme. Access off either Street would not be characteristic of the wider area, and although access has been afforded off Alexandra Terrace to facilitate parking for flats fronting Yarborough Road to the south east of the site, this

CGI detailing the relationship between the Yarborough Road and Alexandra Terrace

fractures the street scene. The ability of the development to provide the characteristic enclosure to Alexandra Terrace would therefore have been lost. In addition, the development is sustainably located in proximity to the goods and services within the City Centre, and the associated range of public transport options this offers. Chapter 4: Promoting sustainable transport of the NPPF states that ‘encouragement should be given to solutions which reduce green house gas emissions and reduce congestion’ and should ‘facilitate the use of sustainable transport methods’ (para 30). Where a site is within a sustainable location within an existing urban environment, developments can assimilate effectively with the wider area without accommodating parking and this view is shared by the Highway Authority. In assessing the proposal, they are satisfied that car parking is not an essential part of development given the sustainable location of the site, and I am therefore satisfied this proposal is acceptable. Slope Stability The NPPF is clear in stating that, in terms of slope stability, ‘the responsibility for securing a safe development rests with the developer and/or landowner’ (para 120). Given the positioning of the proposal on the escarpment slope, the application is therefore accompanied by a slope stability analysis and this is an issue which has been raised as part of the objections received. The report indicates that the site is currently stable and is suitable for the development proposed, and states that a more detailed site investigation will be carried out should permission be granted, including at least one borehole to determine the stability of the land at depth. This will clearly strongly influence the choice of foundation design and the need for further measures, such as retaining structures, and should therefore form a condition of any consent. Conclusion The development of the site in the manner proposed would accord in principle with planning policy, being sustainably located adjacent to the City Centre and within an existing residential area. The scale and layout of the properties would be characteristic of the area, whilst the proposal is well designed and offers a visual improvement to both Yarborough Road and Alexandra Terrace. Although the development offers no parking, the proposal is located close to sustainable transport alternative within the City Centre and the provision of parking would harmful to the scheme in urban design terms. The land is currently stable and the stability report indicates it could be developed in the manner proposed, subject to a condition in relation to the detailed foundation design. The proposal is therefore in accordance with local policy and implements the provisions of the National Planning Policy Framework in a positive manner. Financial Implications None. Legal Implications Yes – section 106 agreement stating that the properties cannot be occupied as shared student houses. Application negotiated Either at Pre-Application or During Process of Application Yes.

Equality Implications None. Application Determined Within Target Date No – Section 106 legal agreement.

Recommendation Delegate to grant subject to the signing of the Section 106 agreement restricting occupation of the properties as shared student houses. Conditions Standard years and plans Landscaping Surfacing Samples of Materials Contaminated Land Surface Water Drainage Further site investigation in relation to Slope Stability Details of boundary walls and fences including any retaining structures Land levels and finished floor levels Report by: Development Service Manager

LINCOLNSHIRE COUNTY COUNCIL

HIGHWAYS AND TRANSPORTATION – NORTH DIVISION.

HIGHWAYS STATEMENT

PLANNING REFERENCE: 2012/0346/F APPLICATION SITE: 63 YARBOROUGH ROAD, LINCOLN.

The application is for a development of 8 town houses on land adjacent to 63 Yarborough Road in Lincoln. The site lies within a residential area, within easy walking distance to the City centre. Car parking provision has not been provided. However, the highways authority does not consider car ownership to be essential as the site is situated in a sustainable location. It is within walking distance of local amenities and has good links to public transport, as both the central bus and railway stations are only a short walking distance away. Parking restrictions are already in force along Yarborough Road and Alexandra Terrace. Any additional parking requirements will be managed by Lincoln City Council, as part of the residents parking scheme. Liz Burnley IEng FIHE, Senior Highways Officer, Lincolnshire County Council. 18 September 2012.