Report of Head of Building and Development Services

L
TO:
PLANNING COMMITTEE
DATE:
17 December 2008
REPORT OF:
HEAD OF BUILDING & DEVELOPMENT
SERVICES
AUTHOR:
John McInally
TELEPHONE: 01737 276204
EMAIL:
AGENDA ITEM:
14
[email protected]
WARD: Various
SUBJECT:
LOCALLY LISTED BUILDINGS: PROPOSED
ADDITIONS TO THE LOCAL LIST AND
MODIFICATION OF LISTING CRITERIA
PURPOSE OF THE
REPORT:
This report recommends public consultation on the
proposed designation of an additional 98 locally listed
buildings and recommending to the Executive
modification of the Council’s listing criteria to assist in
considering buildings for designation in the future
RECOMMENDATIONS:
1.
Authorise officers to formally consult owners on the designation of the
buildings listed in Annex 1 as buildings of local architectural or historic
interest and these views to be reported back to the Planning Committee for
further consideration.
2.
Recommend to the Executive the proposed revised criteria for local listing as
set out in appendix 3.
Planning Committee has authority to determine the recommendations.
1.0
BACKGROUND
1.1
Historic buildings form an important part of our heritage, improving our
quality of life by adding to the character and identity of our towns and
countryside. They illustrate both history and architecture and reinforce local
distinctiveness in their use of materials and architectural styles typical of the
area.
1.2
The Borough has 1,120 historic buildings and structures. These include 424
statutory listed buildings, plus 149 protected buildings of interest within their
curtilage (such as barns in the grounds of farmhouses) and 526 locally listed
buildings. Whilst English Heritage designates statutory listed buildings, local
listing is a Borough Council responsibility. A major review of locally listed
buildings was carried out by the Council between 1988 and 1992, which
resulted in the increase in the number of the locally listed buildings from the
previous 70 buildings.
1.3
Since 1992, a number of buildings have been added individually. Whilst the
list has been updated, and is available to view on the Council’s web site, it is
appropriate to carry out a comprehensive review of the list.
2.0
STATUTORY PROVISION
2.1
National recognition of the leading edge work by the Borough in the field of
locally listed building is reflected in the recent Government Heritage white
paper for the forthcoming Heritage Protection Bill. Reference is made
obliquely to the Council’s success at appeal and widespread use of Article 4(1)
Directions, which control external alterations to locally listed buildings is
recommended, an approach pioneered by the Borough Council. The White
Paper refers to the Boland IHBC article on Local Listing which describes the
work done at Reigate & Banstead Borough Council. Recognising the
widespread support for local listing, the Government is intending to introduce
statutory provision and demolition control for locally listed buildings,
probably some time after 2010. However, at present, local listing does not
confer any additional controls over demolition or alteration of buildings,
which can be carried out without needing planning permission in some
circumstances. Local listing is already a material consideration in planning
applications and is recognised by Local Plan and Structure Plan policies.
3.0
CONSULTATION WITH LOCAL AND NATIONAL SOCIETIES
3.1
A consultation process was begun in 2005 and has continued through the
comprehensive review process to identify additional buildings and structures
that met the relevant selection criteria. All suggestions for local listing have
been reviewed and it is concluded that 108 buildings and structures currently
unprotected are worthy of local listing. More than half of these buildings are
structures, including street furniture. The buildings proposed for listing are
set out in Annex 1.
3.2
When considering buildings for local listing, it is important that the selection
criteria are rigorously applied and that the buildings are of the appropriate
standard. In general terms only 1% of all buildings are likely to meet the
criteria for local listing. The Council’s current criteria for local listing are set
out in Annex 2 and proposed revisions are discussed in section 4 below.
3.3
The consideration of the consultation responses is summarised as follows:
Members of the Council
3.4
A number of member suggestions were received. Those recommended in this
report for inclusion include a house in The Chase, Reigate, Reigate Station,
Reigate Signal Box and three Metropolitan Drinking Troughs. Driftways
Cottage & Crossways Cottage, Reigate Road, Epsom Downs, estate cottages
built by the Earl Egmont in 1890 are proposed for inclusion as landmark
buildings but it is felt the designation of the neighbouring cottages at 302 &
304 Reigate Road would not be justified to their simpler composition, loss of
form in extension and less prominent location.
Banstead History Research Group & Park Road Residents’ Association
3.5
The Anti-Aircraft Ammunition Depot of 1938 in Park Road, Banstead has been
accepted as meeting the criteria. It is one of only six in the whole country and
the only one surviving in the London region.
Holmesdale Natural History Club
3.6
Longmead in Holland Close, Redhill, a former school building of 1910 has
been accepted as meeting the criteria.
Hooley Residents’ Association
3.7
Officers have researched suggestion of the old forge by the Forge Bridge on
the Brighton Road, but have concluded that the surviving cottage is not
worthy of local listing. The remains of the forge were demolished in the
1970s. The adjacent cottage appears to have had a brick first floor added in
the C19th and was completely remodelled in the 1970s, with extensions to the
rear, unsympathetic window additions and render to the first floor and side
elevations.
Horley Local History Society
3.8
The C16th Stoney Way in Victoria Road, Horley is felt to meet the criteria. It is
also intended to add the cast iron mileposts on the A23, which the society had
previously suggested.
Meath Green Protection Society
3.9
A number of buildings in Meath Green Lane have been considered and it is
felt that a group of buildings with blue header bricks is worthy of inclusion.
Plateau (the Banstead Archaeology Group)
3.10
A milestone in Brighton Road, Banstead was suggested. However it has since
been hit by a car and removed by the County Council.
The Redhill Family & Local History Society
3.11
Of a number of suggestions, twelve were felt to meet the criteria. These
include the St. John’s Schools and the Boys Air Raid Shelter, Redhill with its
decorative murals and a number of items of street furniture.
The Reigate Society
3.12
Four of the Society’s suggestions have been accepted. A number of the other
suggestions do not meet the relevant criteria for local listing but could form
the basis of a proposed Conservation Area, which will be the subject of a
separate report. Two post-war houses were suggested but rejected. The
criteria for post-war listing in future are considered in section 4 below.
Surrey Gardens Trust
3.13
The Trust is the primary body involved with garden history at the county
level. The Edwardian garden at Walwood, Park Road, Banstead by Guy
Dawber, a notable architect of the period meets the criteria. Gardens are
mentioned in the local list criteria and a local list of 37 gardens was adopted in
2001. These have now been included in the general list of historic buildings.
3.14
A number of other Societies responded but their comments related to either
corrections to the list or archaeological sites. The County Council designates
archaeological sites under a separate process.
4.0
SELECTION CRITERIA
4.1
Given the passage of time and the increased importance placed on heritage
matters, it would be useful to consider a number of changes to the criteria
adopted in 1988, set out in Annex 2. Those criteria have stood the test of time
well and therefore only a few minor changes are suggested.
4.2
Firstly, a consideration of post-war listing criteria. The Borough’s criteria
currently terminate in 1945. Whilst buildings more than 30 years old - and
exceptionally over 10 years old - can be listed nationally, Surrey as a whole
has few post-war listed buildings, about 0.1% of all listed buildings.
4.3
Given the limited geographical area of the Borough, it is unlikely that there
are any buildings of the 1950s or 1960s that meet the criteria for selection.
Given the rarity of such buildings, it is considered that the local list criteria are
extended, but strong emphasis be given that local listing of a building that
young would be a rare occurrence. In the case of buildings of this date, in the
first instance, where considered worthy, encouragement would be given to
submitting the case to English Heritage, for consideration of statutory listing.
If the English Heritage listing report recommends local listing rather than
statutory listing, this could be considered on an individual basis. The only
post-war building presently recommended for inclusion in local list is the BBC
Research Building at Kingswood Warren built in 1949, the oldest purpose
built television studios in the world and the location for the first UK colour TV
demonstration. English Heritage declined to add it to the statutory list, but
considered it to be of local interest.
4.4
Another problem area is the structures of World War II. There are some 250
military structures such as pillboxes and tank traps in the Borough, due it
forming part of the General Headquarters Line, which was intended to stop
the advance of any invasion from the coast. Three select examples have been
included: Monty’s Hideout at Reigate Hill, being one of the headquarters for
the 1944 invasion of Normandy; a rare gun emplacement at Sidlow Bridge;
and the Anti-Aircraft Ammunition Depot at Banstead mentioned earlier. The
other structures are too numerous for practical inclusion in the list. It is
suggested, however, that a statement is included in the list criteria that these
military structures are of interest.
4.5
A similar problem arises with the numerous mines and man-made caves in
the Borough. While a selection has been identified it would be impossible to
include all these as an automatic identifiable constraint, as they cover such a
large underground area of the Borough but it is suggested a statement is
included in the list criteria that they are of interest.
4.6
Where a building in the grounds of a listed building is protected, it is known
as a curtilage structure. Curtilage law is complex and related to ownership,
both current and historic – for example, the curtilage of Reigate Priory as a
listed building extends further than the curtilage of the school currently
occupying the building. Occasionally it has been demonstrated that a
building is not within a curtilage in listed building terms. It is suggested that
for the Borough’s list, that where a building of known interest is found not to
be a curtilage structure, that it is automatically added to the local list. This is
because such identified buildings have already been identified as of
architectural or historic interest.
5.0
PRESSURE FOR DEVELOPMENT
5.1
It is important to note that development pressure cannot justify designating a
locally listed building, although it may present a “list it or lose it” choice
warranting earlier consideration of designation. The justification for listing
must be on the basis of the building’s character. Development pressure may
result in more requests for local listing, which can be assessed using the
standard criteria. However, having just carried out a comprehensive review,
there is good reason to be confident that an appropriate standard of protection
is in place.
5.2
In the current White Paper on Heritage it is intended to strengthen the local
list powers by introducing demolition control. This would give “teeth” to
local listing and so is to be welcomed.
6.0
RESOURCE IMPLICATIONS
6.1
Whilst heritage resources are very limited, the greater certainty in the
development management process arising from this comprehensive review
will considerably reduce time spent on negotiation, discussion of proposals
and the lengthy individual spotlisting process.
7.0
LEGAL IMPLICATIONS
7.1
The status of locally listed buildings is expected to change with the Heritage
Protection Bill, in terms of statutory protection. The Bill will not be included
in the parliamentary programme of 2009, and is unlikely to be in force until at
least 2011.
8.0
CONCLUSIONS
8.1
It is recommended that the buildings identified are worthy of designation, as
they contribute significantly to the character of the Borough. Without
protection, the gradual loss of these buildings would not only undermine their
own environment but would also have a negative effect on the character of the
Borough. There is no statutory duty to consult when adding buildings to the
local list but it is highly desirable. It is recommended that consultation takes
place with owners, where practical, and the views expressed are reported back
to Planning Committee for further consideration. This will enable these views
to be fully considered and, if necessary, the list altered.
Background Papers:
None
ANNEX 1
PROPOSED ADDITIONS TO REIGATE & BANSTEAD’S LIST OF BUILDINGS
OF LOCAL ARCHITECTURAL AND HISTORIC INTEREST
(Abbreviations indicate the Society that suggested additions, including: RS - Reigate
Society, HNHC - Holmesdale Natural History Society, BHRG - Banstead History
Research Group, HLHS - Horley Local History Society, RFLHS - Redhill Family &
Local History Society, SGT - Surrey Gardens Trust, MGPS - Meath Green Protection
Society, PRRA - Park Road Residents’ Association)
ANNEX 2
EXISTING CRITERIA FOR LOCAL LISTING ADOPTED IN 1988
I. The following criteria were agreed as a guide to consideration of buildings for the list ;
1. All buildings built before 1700.
2. Most buildings between 1700 and 1840, particularly before 1800.
3. Between 1840 and 1914 ;
a) Buildings of definite quality and character.
b) Landmark/key buildings, large and grand domestic buildings and institutions.
c) Group value buildings of quality and character, examples of ‘early’ town
planning.
d) Unusual examples of building types, including social and economic
e) Works of notable and famous architects.
f) Buildings associated with famous people or events.
g) Buildings built principally of local stone (Reigate Stone, Greensand, Wealden
Sandstone, Horsham Slab).
4. A select list of buildings between 1914 and 1945. Works of quality individually
designed by notable architects including Blunden Shadbolt , will be included.
II. The following additional criteria were agreed as relevant in considering cases ;
1. The presence of historic fabric and /or quality design will be important determinants.
2. Mass produced standard or poor quality designs would not meet the criteria.
3. All manmade structures above and below ground will be eligible, including
buildings, landscapes features, gardens, footscape, street furniture, external or
internal features and works of art.
4. The Local List will also include existing DoE Local List buildings and SCC
Antiquities.
5. Buildings on Conservation Area designation maps, marked as “Desirable to Keep”,
will be added to the list if of sufficient quality.
6. Separate lists will be established for archaeological sites and protected structures
within Listed Building cartilages.
7. Buildings may be removed from the list if altered beyond redemption or, of course,
demolished.
ANNEX 3
PROPOSED CRITERIA FOR LOCAL LISTING
I.The following criteria were agreed as a guide to consideration of buildings for the list ;
1. All buildings built before 1700.
2. Most buildings between 1700 and 1840, particularly before 1800.
3. Between 1840 and 1914 ( some of which is also a useful guide to features of interest for
buildings of other periods) ;
a) Buildings of definite quality and character.
b) Landmark/key buildings, large and grand domestic buildings and institutions.
c) Group value buildings of quality and character, examples of ‘early’ town planning.
d) Unusual examples of building types, including social and economic
e) Works of notable and famous architects.
f) Buildings associated with famous people or events.
g) Buildings built principally of local stone (Reigate Stone, Greensand, Wealden
Sandstone, Horsham Slab etc ).
4. A select list of buildings between 1914 and 1945. Works of quality individually
designed by notable architects including Blunden Shadbolt , will be included.
5. Buildings built after 1945 must be of outstanding quality or interest, and generally
must be at least 30 years old, and or 10 years old in very exceptional cases. In applying
the high standard and selectivity expected for theses cases it would be expected that few,
if any, buildings may meet this criteria for certain post war periods given the limited
geographical area of the Borough.
II.The following additional criteria were agreed as relevant in considering cases;
1.The presence of historic fabric and /or quality design will be important determinants.
2.Mass produced standard or poor quality designs would not meet the criteria.
3.All manmade structures above and below ground will be eligible, including buildings,
landscapes features, gardens, footscape, street furniture, external or internal features and
works of art.
4.The Local List will also include existing DoE Local List buildings and SCC Antiquities.
5.Buildings on Conservation Area designation maps, marked as “Desirable to Keep”, will
be added to the list if of sufficient quality.
6.Separate lists will be established for archaeological sites and protected structures within
Listed Building curtilages. Where a building is determined not to be a curtilage structure
for legal reasons, it will be added automatically to the local list because of its
architectural or historic interest.
7.Buildings may be removed from the list if altered beyond redemption or, of course,
demolished.
8. All caves and mines and World War II military structures are considered to be of
interest, even where not specifically listed, and their conservation shall be a material
consideration in any development proposals.