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| Chapter 10 |
| Conservation of the
Built Environment |
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Introduction |
| 10.1 |
In an area of predominantly recent buildings,
Peterborough's older buildings and street patterns, boundary walls
and other features represent an important record of the area's social
and economic history and an amenity for local residents. Such features
are a vital element in maintaining a stimulating environment for local
people as well as attracting visitors and new business investment.
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| 10.2 |
Almost all the villages are consolidations
of early settlements. In the Urban Area, most buildings of architectural
and historic interest are concentrated in and around the City Centre
and the old village centres within the townships. These areas contain
fine examples of historic buildings, townscape design and layout and
many of them have been designated as conservation areas. |
| 10.3 |
There are also sites of great archaeological
importance within and outside the built-up area which all confirm
the long history of settlement in the District. Of particular significance
are the prehistoric remains at Flag Fen and those along the Welland
Valley, the Roman remains around the Roman town of Durobrivae and
the historic core of the City - the ancient settlement of Medeshamstede
or Burgh. The Cathedral, with its associated gardens and ecclesiastical
buildings, continues to be a valued feature of the City. |
| 10.4 |
The City Council seeks to ensure that
developments are directed and guided so as to minimise their impact
on the historic environment and provide the basis for environmental
improvements. Policies for all forms of development which have implications
for the historic built environment are set out in this chapter. |
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Aims |
| 10.5 |
The aims of the Plan for the conservation
of the built environment are: |
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- to protect and enhance areas of archaeological importance and
ensure that where sites of archaeological value are to be disturbed,
satisfactory arrangements are made for preservation, excavation
and recording;
- to protect, conserve and enhance the setting, appearance and
character of historic buildings and areas of special architectural
or historic interest; and
- to protect and conserve the fabric of historic buildings, structures
and other features.
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Archaeology |
| 10.6 |
Archaeological remains are an important
part of Peterborough's historic environment. They constitute an important
resource for understanding our past, and often survive as significant
landscape features. Many archaeological sites constitute significant
resources for public amenity and education. Archaeological remains
are a finite and non-renewable resource and in many cases they are
highly fragile and vulnerable to damage or destruction. Particular
care must be taken to ensure that archaeological remains are not needlessly
or thoughtlessly destroyed. Appropriate management is essential in
order to ensure that they survive in good condition. |
| 10.7 |
Prospective developers are advised to
undertake discussions with the City Council at the earliest stage
of forming development proposals, before any detailed plans are drawn
up, in order to address the possibility of archaeological remains
at proposed development sites. |
| 10.8 |
A check of records held on the Peterborough
City Council Sites and Monuments Record (SMR) is essential in order
to appraise the archaeological potential of proposed development sites.
Archaeological remains listed in the SMR either have a confirmed archaeological
value which has been determined by investigation, or provide an indication
of potential archaeological value which may only be fully determined
through further investigation. It is likely that there are archaeological
remains which are as yet unknown and so not recorded by the SMR. The
SMR will be periodically updated and reviewed as archaeological discoveries
are made and knowledge increases. |
| 10.9 |
Where there is evidence to suggest that
important archaeological remains are threatened by development, the
City Council will request a prospective developer to carry out archaeological
investigation of the site in order to assist the determination of
a planning application. Such work may comprise a desktop assessment
followed by a field evaluation, the results of which should be forwarded
with a planning application. Alternatively, if archaeological remains
of lesser significance are anticipated, the City Council may wish
to secure a programme of archaeological work through the application
of planning conditions or voluntary agreements. |
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Archaeological Remains
of National Importance |
| CBE1 |
The City Council will not
grant planning permission for any development which may adversely
affect the preservation or setting of scheduled or other nationally
important archaeological remains. |
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| 10.10 |
A number of sites of national importance
are designated as 'scheduled monuments'. These are shown on the Proposals
Map and are listed in Appendix VIII. Other remains of national importance
may not yet have received this designation but are recorded by the
SMR. These are not shown on the Proposals Map, but are subject to
policy CBE1. In addition, previously unknown remains which are of
national importance may be encountered during archaeological investigations
or through other works. |
| 10.11 |
There is a presumption in favour of physical
preservation of nationally important remains in situ, and the City
Council would not grant planning permission for schemes involving
significant alteration, damage or harm to such remains or their setting. |
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Other Areas of Archaeological
Potential or Importance |
| CBE2 |
Planning permission will
only be granted for development which would have a detrimental effect
on other areas of archaeological potential or importance if the need
for development outweighs the intrinsic importance of the remains;
and if satisfactory arrangements can be made for the preservation,
or investigation and recording of those remains. |
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Where development is permitted,
conditions will be imposed or planning obligations sought to secure
satisfactory arrangements for the preservation or investigation and
recording of the archaeological remains. Their removal or preservation
in whole or in part, if justified, will be required prior to development.
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| 10.12 |
In other areas of archaeological potential
or importance, planning permission will only be granted if physical
'preservation in situ' is not justified following an assessment of
the individual merits of the case. This will take into account all
relevant policies of the development plan, an archaeological evaluation
which assesses the intrinsic importance of the remains and the need
for the development. |
| 10.13 |
Where preservation of archaeological remains
in situ is not appropriate or desirable and development is permitted,
an appropriate level of archaeological investigation will be required
in advance of, or during, development so as to ensure 'preservation
by record'. This may be ensured through the use of conditions or planning
obligations. |
| 10.14 |
The provisions for preservation in situ
or preservation by record should be secured by the developer and all
work carried out in accordance with briefs or specifications agreed
with the City Council. |
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Buildings and Areas of
Architectural or Historic Interest |
| 10.15 |
The Local Plan aims to ensure that buildings
and areas of architectural or historic interest are adequately protected
and sensitively restored and that new development respects the context
within which it takes place. |
| 10.16 |
Formal designation of conservation areas
enhances a local planning authority's influence over some demolition
of unlisted buildings and structures, the felling of trees and the
design of new buildings. The preservation of existing character can
be achieved by the careful retention of trees and hedgerows, the conservation
of existing buildings, monuments and other structures, stone and brick
walls, iron railings and other traditional features, and the achievement
of high standards of design for all aspects of new development. |
| 10.17 |
The City Council will keep under review
and revise where necessary the boundaries of existing designated conservation
areas, and will designate new areas where appropriate. It should be
noted, however, that this process is carried out as a separate procedure
to the Local Plan. |
| 10.18 |
Proposals for specific alteration, conversion,
change of use or demolition of listed buildings (of which there are
over 1,000 within Peterborough District) or for the demolition of
buildings within conservation areas will need to be judged against
the policies in this chapter. |
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Development affecting
Conservation Areas |
| CBE3 |
The City Council will require
all proposals for development which would affect a conservation area
(whether the site of the development is inside or outside the boundary)
to preserve or enhance the character or appearance of that area. |
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| 10.19 |
Proposals for development in conservation
areas, as shown on the Proposals Map, must meet the objective of preserving
or enhancing the character or appearance of the area. The objective
of preservation may be achieved either by development which makes
a positive contribution to an area's character or appearance, or by
development which leaves the character and appearance unharmed. |
| 10.20 |
Material considerations will include: |
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- the size, form, position, scale, design and detailing of the
proposed building(s) and other works;
- the relationship of the proposed building(s) with other buildings
and spaces of townscape and/or landscape importance;
- the choice of materials; and
- the retention or restoration of existing features of interest.
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| 10.21 |
Development outside a conservation area
can also affect its setting or important views into or out of the
area. Therefore, the desirability of preserving or enhancing the conservation
area will be a material consideration in assessing proposals which
lie outside the boundary. |
| 10.22 |
When an outline application for development
affecting a conservation area is received, the City Council will normally
require detailed plans showing the siting, design, proportions, architectural
detailing and materials of the proposed and existing buildings, in
order to give full consideration to its likely impact. |
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Demolition of Buildings
in Conservation Areas |
| CBE4 |
The City Council will not
grant consent for proposals to demolish any unlisted building which
makes a positive contribution to the character or appearance of a
conservation area unless: |
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(a) |
there are overriding environmental,
economic or practical reasons; or |
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(b) |
there are firm proposals
to replace the building with a development which makes an equal or
greater positive contribution. |
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| 10.23 |
Conservation area designation introduces
control over the demolition of most buildings within conservation
areas. The City Council will seek the preservation of buildings which
contribute positively to the character or appearance of conservation
areas but are not themselves listed. |
| 10.24 |
A prerequisite for granting conservation
area consent for the demolition of such buildings will be the provision
by the developer of satisfactory evidence to show that every possible
effort has been made to save the building. Where the building makes
little or no contribution to the conservation area, the City Council
will require detailed information about what is proposed for the site
after demolition, with acceptable and detailed plans for redevelopment
or reuse of the site. |
| 10.25 |
Where consent is given for full or substantial
demolition, the City Council will normally impose conditions requiring
that before any works of demolition are commenced: |
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- detailed planning permission for the redevelopment or re-use
of the site, where required, must have been granted; and
- a contract has been made to carry out the works of redevelopment.
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The purpose of this is to avoid cleared
sites remaining unused and derelict. |
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Demolition of Listed
Buildings |
| CBE5 |
The City Council will not
grant consent for the demolition of all or a substantial part of any
listed building. |
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| 10.26 |
Although there will be a general presumption
against the demolition of listed buildings, there may be very exceptional
circumstances where there is no alternative to the demolition or substantial
demolition of a statutorily protected building. Before granting listed
building consent for demolition, the City Council will require the
developer to provide satisfactory evidence to show that every possible
effort has been made to save the building. |
| 10.27 |
The City Council, before reaching a decision
on any application for demolition, will bear in mind the possibility
that the building or structure which is the subject of the application
may shelter protected species of animals - in particular, bats and
barn owls. Where this is possible, the recommendations of English
Nature will be sought before a decision is made. |
| 10.28 |
If consent is granted, conditions will
normally be imposed requiring one or more of the following: |
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- that before any works of demolition are commenced, a contract
for the redevelopment or re use of the site must have been made
and detailed planning permission been granted for the work for
which the contract provides;
- that before any works of demolition are commenced, the opportunity
is given for the building to be adequately recorded by English
Heritage;
- that a suitably qualified person be appointed to observe any
operations carried out on site;
- that building materials be salvaged, stored securely under cover,
and where possible re-used in the scheme of redevelopment; and
- that the applicant cease operations and notify the City Council
if during the course of demolition or other works, features of
a listed building or its site are revealed which did not form
part of the original listed building consent.
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Alterations, Extensions
or Other Works to a Listed Building |
| CBE6 |
The City Council will not
grant consent/permission for the alteration, extension or carrying
out of other works to a listed building or building which is within
its curtilage where it would: |
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(a) |
be unsympathetic to the
character of the original building or its setting in scale, form,
materials or situation; or |
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(b) |
be detrimental to the long-term
stability of the fabric of that building; or |
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(c) |
result in the removal of
internal or external features of a listed building, or features within
its curtilage, which contribute to its architectural or historic interest. |
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| 10.29 |
For the District's stock of historic buildings
to retain their value as living historical records, the overriding
philosophy must be for as few changes as is possible. The perceived
need for many changes arises from lack of regular maintenance, the
fashion of the day, misinformed schemes of 'improvements', or works
to subdivide the building in order to enable a new or more intensive
use. However, some alterations will clearly be necessary to adapt
old buildings to modern standards of comfort, hygiene and accessibility.
The City Council has published a broadsheet to guide owners of smaller
historic buildings. |
| 10.30 |
In the interests of the preservation of
the maximum amount of historic fabric, options for repairs and restoration
should be considered for each part of the building and the most sympathetic
method chosen. Such works can be placed into one of the following
categories: |
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- do nothing (repairs not required);
- preserve as found;
- traditional repairs with traditional methods and materials;
- traditional repair methods with modern materials;
- modern repairs and materials;
- replace in replica;
- replace with modern alternatives.
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| 10.31 |
Normally the practical option highest
in the above list should be adopted. In the case of listed buildings,
work falling within the last four categories will usually require
listed building consent. |
| 10.32 |
Where, exceptionally, the City Council
grants planning permission for any new development associated with
the restoration of a listed building, it will normally seek to enter
into a planning obligation with the developer to ensure that all necessary
works to the listed building are carried out. |
| 10.33 |
Applications for listed building consent
for any comprehensive programme of repairs or restoration should be
accompanied by a scaled and detailed survey drawing of the existing
structure and an analysis of the condition and importance of each
part of the building's historic fabric. |
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Development affecting
the Setting of a Listed Building |
| CBE7 |
The City Council will not
grant planning permission for any new building within or beyond the
curtilage of a listed building if it would be detrimental to the setting
of that listed building. In considering such proposals, the design,
size, height, location and orientation of the proposed development
will be assessed. |
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| 10.34 |
New building within or outside the curtilage
can adversely affect the setting of a listed building, particularly
where that building is part of a streetscene or village whose character
derives from the harmony produced by a whole range or complex of buildings.
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Sub-division of the
Grounds of a Listed Building |
| CBE8 |
The City Council will not
grant consent/permission for development which would sub-divide the
grounds or gardens of a listed building. |
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| 10.35 |
The curtilage and setting of listed buildings
is often an integral and indivisible part of the original design.
Division and subsequent development of grounds or gardens can seriously
detract from the architectural or historic character of the building
and/or its curtilage. Therefore, even where restoration and repair
of the original building is necessary, or consent has been given for
new uses of the building, the City Council may not accept that consent
for development within the grounds or gardens should be given. |
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Change of use of Listed
Buildings |
| CBE9 |
The City Council will not
grant planning permission for the change of use of any listed building
or its curtilage, if the works associated with the change would be
damaging to the fabric, appearance, character or setting of that building.
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| 10.36 |
The best use for an historic building
is the use for which it was originally designed, but with changing
social and economic factors it must be accepted that new uses need
to be found for many buildings, including almshouses, maltings and
historic farm buildings and out-buildings. Indeed, the retention and
upkeep of many listed buildings may rely on finding a viable appropriate
use. |
| 10.37 |
When considering applications for the
change of use of listed buildings, the City Council will require sufficient
information to be provided by way of detailed plans, in order to judge
the effect of the proposed use on the fabric and character of the
building in accordance with policy CBE6. Any alterations implicit
in the change of use will also require listed building consent. |
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Alterations to Buildings
Protected by Article 4 Directions |
| CBE10 |
Where planning permission
is required, any proposals affecting a property protected by an article
4 direction should retain its original exterior features and traditional
appearance. |
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| 10.38 |
A considerable number of properties within
the older parts of the District are subject to article 4 directions
made under the provisions of the Town and Country Planning (General
Permitted Development) Order 1995; these bring certain works (which
would otherwise be 'permitted development') under planning control.
The buildings, whilst not having the status of listing, are regarded
as being of great importance by the City Council, having been built
at the time of Peterborough's first major development expansion during
the Victorian and Edwardian periods. The article 4 directions are
used to prevent unsympathetic alterations or extensions which otherwise
would not have required planning permission. |
| 10.39 |
Inappropriate alterations to the exterior
of buildings protected by article 4 directions may have a profound
and detrimental effect on their character or the area in which they
are situated. The City Council will seek to protect properties from
unsympathetic change and retain an attractive streetscene. Works affected
by the directions generally include alterations to windows, doors,
roofs, rendering and front boundaries. |
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Buildings of Local
Importance |
| CBE11 |
Proposals for development
will not be permitted if they would involve the demolition of, or
substantial alteration to the external appearance of, any building
designated as of local importance, unless: |
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(a) |
all reasonable steps have
been taken to retain the building, or retain it unaltered, including
examination of alternative uses compatible with its local importance;
and |
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(b) |
retention of the building,
or retention unaltered, would be demonstrably impracticable; or |
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(c) |
the building could not
be practicably retained, or retained unaltered, as part of a redevelopment
scheme for which there are firm and detailed proposals; and |
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(d) |
the benefits of the scheme
outweigh the local importance of the building. |
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| 10.40 |
The City Council has identified a number
of buildings of 'local importance' which are considered to make a
positive contribution to the character of the area in which they are
situated or have local significance. Whilst these buildings are not
considered of sufficient national importance to merit listing and
do not enjoy the full protection it affords, they are noted for their
contribution to the local scene or for historical associations. Proposals
for conversion to new uses necessary to ensure their survival will
be sympathetically considered, provided they do not unacceptably harm
the qualities that justify their protection. These buildings are shown
on the Proposals Map and listed in Appendix IX. |
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