OFFICERS’ REPORTS TO
PLANNING POLICY & BUILT HERITAGE WORKING PARTY – 12 SEPTEMBER 2011
PUBLIC BUSINESS – ITEMS FOR DECISION
1.
CROMER CONSERVATION AREA MANAGEMENT PLAN
Approval is sought to the draft Cromer Conservation Area Management Plan and for
it to form the basis for public consultation, prior to its further review and formal
adoption.
1. Introduction
The District’s built heritage and natural environment significantly enhances the quality
of life for people living and working in the District as well as those visiting it or
investing in it. North Norfolk has 82 Conservation Areas, which together with over
2,250 Listed Buildings and 83 Scheduled Ancient Monuments, make an enormous
contribution, to the character and appeal of the District. However all Local Planning
Authorities need to ensure that the character and setting of Conservation Areas are,
from ‘time to time’, reviewed, and maintained and enhanced where possible.
Many of the District’s Conservation Areas, including Cromer, were designated in the
1970s and 1980s and are long overdue a review.
Since 2008 the District Council’s Conservation, Design & Landscape Service has
undertaken reviews in 23 Conservation Areas and Conservation Area Character
Appraisals and Management Proposals have been adopted in key settlements at
North Walsham, Fakenham and Holt as well as for important villages such as
Mundesley and Melton Constable.
The benefits of a review of a Conservation Area are as follows:
(a) A fully adopted Appraisal and set of Management Proposals provides additional
support and guidance for decision-making through the Development Management
process, since they become, on adoption, a material consideration for the Local
Planning Authority when dealing with applications for development.
(a) An up to date Conservation Area Appraisal and Management Plan provides the
backcloth, together with the planning policies contained in the North Norfolk Local
Development Framework, to good decision-making, particularly in respect of
applications for development.
(c) Experience has shown that the preparation of Conservation Area Appraisals and
Management Plans can offer a real and practical opportunity for local communities to
engage in the future management of their local environment and as such the process
contributes very positively to the emerging ‘localism’ agenda.
Cromer has one of the District’s most outstanding Conservation Areas, where, as
well as there being a richness of built heritage resource, a substantial public and
private investment in terms of historic building repair and public realm enhancement
has taken place in recent years (Cromer underwent a programme of regeneration
through a Townscape Heritage Initiative (THI) and a wider regeneration programme
between 2002-6).
Planning Policy & Built Heritage Working Party
1
12 September 2011
There is a need to ensure that the investment made is safeguarded and the
achievements of the regeneration years are not wasted. Consequently Cromer is
very much a priority for consideration and review at this time. The Character
Appraisal and Management Plan prepared in draft reflect this need. It seeks to
engender a coordinated approach to management of the environment both within
and outwith the District Council.
2. Statutory Background
Conservation Areas are designated under the provisions of Section 69 of the
Planning (Listed Buildings and Conservation Areas) Act 1990. A Conservation Area
is defined as ‘an area of special architectural or historic interest the character or
appearance of which it is desirable to preserve or enhance’.
Section 71 of the same Act requires local planning authorities to formulate and
publish proposals for the preservation and enhancement of these conservation
areas. Section 72 also specifies that, in making a decision on an application for
development within a conservation area, special attention must be paid to the
desirability of preserving or enhancing the character or appearance of that area.
The appraisal document now being considered conforms with current English
Heritage guidance. Additional government guidance regarding the management of
historic buildings and Conservation Areas is set out within Planning Policy Statement
No 5: Planning and the Historic Environment (PPS5) and the emerging National
Planning Policy Framework. The District’s adopted Local Development Framework
(LDF) provides the local planning policy context.
3. Purpose
The purpose of a Conservation Area Appraisal and Management Plan is to:
•
Define the special architectural or historic interest of the Conservation Area
and identify the issues which threaten its special qualities (Part 1: Character
Appraisal).
•
Identify revised policy or practical projects which can safeguard and/or
enhance the character of a Conservation Area (Part 2: Management
Proposals).
Copies of the draft Cromer Conservation Area Management Plan are available for
inspection in the Members’ Room or from the Conservation, Design and Landscape
Team on request.
4. Assessment of the Cromer Conservation Area
The format of the Conservation Area Appraisal includes the planning policy context; a
summary and assessment of special interest including location and setting; historic
development and archaeology; layout and plan form; architectural and townscape
character; spatial analysis and key views; character analysis including the qualities of
buildings; prevailing uses and the contribution of green spaces and suggested
boundary changes. However; it should be noted that no character appraisal can ever
be completely comprehensive and the omission of any particular building, feature or
space should not be taken to imply that it is of no interest.
Planning Policy & Built Heritage Working Party
2
12 September 2011
Cromer’s Conservation Area was designated as such by North Norfolk District
Council in 1975 and the area was extended in 1993.
Many of the District’s Conservation Areas have been seriously damaged over the
years by the gradual erosion of character and appearance caused by the ‘permitted
development’ rights which accrue to all householders and Cromer is no different.
Indeed, there is the potential for this situation to be exacerbated owing to the recent
and projected relaxation of planning regulations. As a result it will be essential to
consider the introduction of local controls (Article 4 Directions) to prevent further
damage.
2.1 Key characteristics
The key characteristics of Cromer’s Conservation Area are as follows:
•
•
•
•
•
•
•
•
•
•
•
•
•
•
A large number of Listed Buildings
Fine and often panoramic views and vistas of buildings from many directions.
Landmark structures and buildings such as Cromer Pier, the Parish Church
and Hotel de Paris
Distinctive styles of architecture and architectural detailing with the Victorian
and Edwardian period dominating
An impressive landscape setting with the town perched upon raised cliffs and
located between hilly or raised headlands, unfortunately visually blemished by
large caravan sites to the west.
Narrow lanes and alleyways with interesting vistas
A busy though road that provides the main form of road communication along
the North Norfolk Coast.
A mix of small and independent shops and some national or regional
multiples.
A resort atmosphere and ambience prevails for most of the year, jostling as it
does with what remains of the town’s crab fishing industry.
Outside the ‘town centre’ some fine residential villas or town houses, often in
multiple occupation or converted to flats and apartments
The emergence of some ‘signature’ contemporary architecture.
Large expanses of beach space along the seafront.
Important public open spaces and parkland at North Lodge Park, above the
beach at Runton Road and at Evington Gardens with a ‘lung’ of open space
extending from the adjacent Cromer Hall through to The Meadows Car Park.
Some areas of negative townscape such as along Church Street.
2.2 Key issues
•
•
•
•
•
•
Need to review the Conservation Area boundary.
The prevalence of poorly designed modern shop fronts and signage and the
continued pressure from national retailers to install inappropriate designs.
Need for better landscaping in town centre car parks.
Need to ensure that the public realm works delivered under the THI and
related regeneration programmes are properly maintained, including trees
and public art features.
Permitted development resulting in the gradual erosion and loss of
architectural detail.
The general standard of architectural design, particularly in respect of
alterations and extension still needs to be addressed.
Planning Policy & Built Heritage Working Party
3
12 September 2011
•
•
•
•
How to handle major infill developments such as those identified in the Site
Allocations Development Planning Document.
Need to adopt a list of Buildings of Local Interest.
Need to introduce Article 4 Directions to prevent loss of character.
Need for further guidance and education of the public in respect of what
constitutes good design and sustainable solutions in a historic setting
3. Conclusion
Cromer and its Conservation Area have seen substantial physical, economic and
social change since 1975, but its inherent architectural quality remains intact.
However urgent actions are needed now to:(a) Arrest the gradual erosion of architectural character
(b) Identify opportunities for co-operating with other agencies and bodies in delivering
further improvements and enhancements.
(c) Protect the investment made in the historic built heritage and ‘public realm’ made
during the years of regeneration and the THI
(d) Once again draw the attention of the people of Cromer to the quality of Cromer’s
built heritage and the need for sensitivity when making alterations to properties
(design guidance)
(d) Ensure that all District Council services are mind full of their impact on the
character and setting of the Conservation Area
(e) Review and update the boundary of the Conservation Area
4. Timetable for public consultation and formal adoption
It is envisaged that a three week public exhibition and consultation period should take
place during the coming autumn and winter. This will include an ‘open meeting’ for
the public. The draft document will also be placed on the Council’s Website and
comments invited. It is anticipated that an amended document will be brought to
Committee for final adoption in June 2012.
5. Budgetary Implications
There are no immediate budgetary implications at this stage. However adoption of
some of the management proposals may have some financial implications and these
will be assessed as part of the adoption report to be prepared for the Committee
following public consultation. Of more significance are the management proposals
and the need to comprehensively review the way in which the various Council’s
services are delivered within the Conservation Area in conjunction with external
bodies, agencies and statutory undertakers.
Planning Policy & Built Heritage Working Party
4
12 September 2011
5. Recommendations
That Cabinet be recommended to consider this report and to resolve as
follows:
•
That the Draft Cromer Conservation Area Management Plan,
incorporating proposed boundary changes be approved for public
consultation purposes.
•
That following consultation, the final version of the Cromer
Conservation Area Management Plan, incorporating a Character
Appraisal, is brought back to the Working Party and Cabinet for
adoption
(Source: Philip Godwin, Conservation, Design & Landscape Manager (Ext. 6131))
PUBLIC BUSINESS – ITEM FOR DECISION
2.
Criteria for Local Listing of Buildings of Special Architectural or Historic
Interest
Approval is sought for the adoption of Criteria for the Local Listing of Buildings or
Structures of Special Architectural or Historic Interest (non-designated Heritage
Assets).
1.0 Introduction
North Norfolk has a very rich stock of historic buildings and structures. There are
over 2250 statutory Listed Buildings, 83 Scheduled Ancient Monuments and 82
Conservation Areas. As well as these designated heritage assets, there are many
buildings or structures which are valued by the local community and which contribute
positively and very substantially to the character of the District. The local listing of
such structures or buildings offers the opportunity to recognise their importance and
for this to be taken into account as a ‘material consideration’ in the planning process.
2.0 Policy Context
The adopted Core Strategy for North Norfolk includes a commitment to the
preparation of a local list of buildings or structures of special architectural or historic
interest (adopted Policy EN8). Similarly government policy continues to give
provision for local authorities to draw up such lists of locally important nondesignated heritage assets which do not merit national listing.
In addition to the above Policy HO9: Conversion & Re-use of Rural Buildings as
Dwellings is also relevant. This policy allows the conversion of suitably constructed
buildings to residential use within areas identified in the Designated Policy Areas
associated with HO9. This includes areas closely related to the District’s principal
and secondary settlements, selected service villages and other settlements or
villages where sustainable development objectives can be met. Within these areas
conversion and re-use is usually acceptable. Outside of the Designated Policy Areas
it may also be possible to convert a building to a residential use if the building in
question is eligible for inclusion on the local list. Consequently the adoption of the
criteria in this report is central to decisions on the re-use or conversion of rural
buildings in particular. However wherever a building or structure is considered
eligible for local listing and an application is made for re-use or conversion the
Planning Policy & Built Heritage Working Party
5
12 September 2011
alterations or changes proposed must not detract, diminish and disregard the original
character of a property.
3.0 Criteria
The full recommended criteria are to be found in Appendix 1. The suggested criteria
are based on:
(i)
(ii)
(iii)
(iv)
(v)
(vi)
(vii)
(viii)
(ix)
Architectural Importance
Townscape or Group Value
Historical Association
Age
Archaeological Interest
Rarity
Landscape Interest
Landmark
Social or Communal Value
4.0 Application
Government guidance currently provides clear advice and instruction on how to
assess the eligibility for local listing; the criteria contained in Appendix 1 to this
report follow this guidance. In North Norfolk so far locally listed buildings have to date
been identified through the programmed review of Conservation Areas and the
preparation of Appraisals and Management Proposals or Plans. This is recognised
as best practice. It incorporates a public consultation process and is part of a
recognised ‘plan making process’. Both English Heritage and the Government have
recommended this approach and in fact North Norfolk District Council was ahead of
both in this field since this is exactly the approach that has been taken since the it
started the review of its Conservation Areas.
However given the implications of Policy HO9 and the number of important local
buildings or structures that can lie outside Conservation Areas some flexibility in the
mechanisms used to decide on the merits for inclusion on the local list is necessary.
As a result the following routes for inclusion on the list are recommended:
(a) Where an adopted Conservation Area Appraisal identifies a qualifying building
or structure, or
(b) Where the assessment of planning applications, including those made to re-use
buildings for residential purposes under Policy HO9 both inside or outside the
Designated Areas concludes that the building or structure should be included on the
list, and
(c) Where a request from a Parish or Town Council or other recognised community
group has been received to consider local listing
It is recommended that in all cases a ‘local listing’ will need to be ratified by Cabinet
via the Planning Policy and Built Heritage Working Party. In urgent cases the relevant
Cabinet Member and Local Member’s approval will be sought.
5.0 Conclusion
The identification of locally listed buildings offers the opportunity for the Council to
identify a range of non-designated heritage assets which are valued by local people
and which form part of the ‘local scene’. These buildings are often treasured by local
communities but are not recognised nationally. Having local listing status does not
offer statutory protection but it does mean that the buildings concerned are given
extra consideration in the development management process (along with other
designations such as Conservation Areas status). Moreover by compiling a list of
Planning Policy & Built Heritage Working Party
6
12 September 2011
locally listed buildings the Council is actively addressing the ‘localism agenda’ and
engaging with the local community and residents of the district
6.0
RECOMMENDATIONS
That Cabinet be recommended to:
(1)
Approve the criteria for the local listing of buildings and structures of
special architectural or historic interest as contained in Appendix 1 to this
report and that the criteria be accordingly adopted.
(2)
Ratify the local listing status of all those buildings or structures already
considered eligible for local listing and included within adopted
Conservation Area Appraisals.
(3)
Confirm the process by which buildings will be identified for local listing
or assessment in cases where Policy HO9 applies (as contained in
Section 4 of this report).
(Source: Philip Godwin, Conservation, Design and Landscape Manager Ext 6131)
PUBLIC BUSINESS – ITEM FOR INFORMATION
3.
Local Development Framework Progress Report
This report provides a general update in relation to the Local Development
Framework and related policy documents and the work of the Major Development
Team in relation to allocated Development Sites.
1. Introduction
This report provides a general update on the work of the Planning Policy and Major
Development Teams.
2. Vision and Development Brief for Site NW01 – North Walsham
A draft vision has been prepared. This vision will provide the basis for the preparation
of a Development Brief for the site. A separate item in relation to this is included on
this Agenda.
3. Site Development Guides
Draft Site Development Guides have been produced for the housing allocations at
Horning and Overstrand. These Guides are intended to provide the basis for pre
application advice to prospective developers and do not have the same status as
formal development briefs or adopted Development Plan policies both of which have,
or will be, subject to extensive public consultation and adoption by the Council. Each
Guide provides an overview of the policy requirements applicable to the site and an
indication in relation to how the site might be developed. Preparation of each guide
has included consultation with the relevant Parish Council.
Copies of the Overstrand and Horning guides will be available at the meeting. Copies
have also been placed in the Members’ Room.
Planning Policy & Built Heritage Working Party
7
12 September 2011
4. Applications and pre application discussions
The following table provides an overview of the current position in relation to the
larger scale allocations made in the site allocations Development Plan.
Cromer
C17 – Railway
Triangle, Norwich
Road
C14 – Land at
Roughton Road.
Fakenham
F01 – Land North
of Rudham Stile
Lane
Holt
H01 – Land West
of Woodfield Road
H09 – Land at
Heath
Farm/Hempstead
Road
Hoveton
HV03 - Land off
Stalham Road
North Walsham
NW01 – Former
HL Foods and
adjacent land
Sheringham
SH06 – Land at
Sheringham
House
Stalham
ST01 – Land
Adjacent to
Church Farm
A full planning application for 50 dwellings was submitted at the
end of last year. Development Committee has considered the
proposal which has been deferred for discussions in relation to
design, compliance with sustainable construction criteria and
the provision of affordable housing. Compliance with both
affordable housing and sustainable construction policies is
stated by the developer to be unviable. The application is likely
to be considered further at the October meeting of the
Development Committee.
Initial pre-application discussions with a local housing developer
have commenced.
A draft Master Plan for this site was prepared by the majority
land owner (Trinity College, Cambridge) to support the
preparation of the Allocations Plan and demonstrate
deliverability. Agents working on behalf of Trinity have been
instructed to finalise work on the Master Plan and it is
anticipated that a revised document will be subject to public
consultation before the end of the year or early in the new year.
The revised draft Master Plan will be reported to the Working
Party to seek endorsement of its content as a basis for wider
public consultation.
An outline planning application for approximately 85 dwellings
was submitted in August. Public consultation is programmed
until the end of September. Development Committee is likely to
consider the application in October or November.
Agents working on behalf of a consortium of three land owners
are preparing a draft Development Brief for local consultation.
This will be reported to the Working Party to seek endorsement
of its content as a basis for wider public consultation.
A full application for 120 dwellings was submitted in late June.
Development Committee is likely to consider the application in
October.
See separate report
Pre application consultation was undertaken by the site
owner/developer earlier in the year. A planning application may
be made shortly.
A national house builder is understood to have an option on the
site and is looking to commence pre application discussions
with the Council and the community shortly.
Planning Policy & Built Heritage Working Party
8
12 September 2011
Wells
W01 – Land at
Market Lane
Site owner (Holkham Estate) has prepared a draft vision for the
development of the site and requested informal comments prior
to wider community consultation.
5. Community Infrastructure Levy
A report has been prepared for consideration by Overview and Scrutiny Committee
on 20 September which recommends that the Authority develops proposals for the
introduction of a Community Infrastructure Levy applicable to new development
proposals in the District and that this Working Party oversees the process, with final
approval being sought from Cabinet in due course following the required process of
public engagement and consultation.
6. Site Visits
At the Working Party Meeting in July it was agreed that site visits would be arranged
to some large residential development sites to consider good and bad practice. It is
proposed that this should take place on the date of the programmed Working Party
Meeting on 7 November, combined with a short training/briefing session on the
Building for Life criteria and assessment process. The Building for Life criteria are a
series of 20 questions which are widely used to evaluate the quality of new housing
developments and the Core Strategy encourages developers to take these into
account in designing their proposals.
RECOMMENDATION:
The Working Party is asked to note the contents of this report.
(Source:
6325)
Mark Ashwell, Planning Policy and Property Information Manager. Extn
PUBLIC BUSINESS – ITEM FOR INFORMATION
4.
North Norfolk Local Development Framework – Site Allocation NW01 – Mixed
use development, Land off Norwich Road, North Walsham
This report seeks endorsement of a Vision Statement for Site Allocation NW01 as the
basis for preparing a Development Brief.
1. Introduction
The adopted Site Allocations Plan of the North Norfolk Local Development
Framework allocates a large site off Norwich Road, North Walsham (NW01) for a
mixed use development to include approximately 400 dwellings, 5 hectares of
employment land, 4 hectares of public open space and provision of car parking to
serve the railway station. The site is one of the largest and most complex allocated
through the Plan involving a number of landowners, a mix of brownfield and
greenfield land uses, established businesses and some constraints relating to the
nearby gas condensate facility.
Planning Policy & Built Heritage Working Party
9
12 September 2011
ATLAS (Advisory Team for Large Applications), a division of the Homes and
Communities Agency, exists to provide free advice and support to local authorities
developing proposals for large and complex site allocations. ATLAS has agreed to
support the District Council in preparing a development brief for the North Walsham
site. It is anticipated that ATLAS’S involvement will also help to build and develop the
skills of the Council’s Major Development Team in taking forward similar exercises in
respect of other allocations made through the Site Allocations Plan. The Council’s
engagement with ATLAS was endorsed by Cabinet on 6 June 2011.
2. Development of a Shared Vision
The experience of ATLAS suggests that the most successful projects begin with a
clear vision statement produced collaboratively between all parties. This approach is
particularly relevant to the complex nature of major residential growth to capture the
opportunities that a project site may present and establish constructive working
arrangements to overcome constraints. Agreeing a Vision is considered a vital prerequisite to developing a more detailed Development Brief for a site and establishes
a clear reference point against which future proposals can be judged to ensure key
planning and community objectives are delivered.
ATLAS facilitated an initial workshop on 8 June 2011 in order to begin the process of
identifying a set of key development objectives and generating a Vision which would
then assist the Council, developers and other stakeholders to shape proposals for
the site going forward. The workshop was attended by the Planning and Housing
Portfolio holder, an elected District Councillor for the North Walsham West ward, a
representative from the Homes and Communities Agency Area Team and officers
from both the County and District councils.
Building upon the Town Visions already established in the Core Strategy and through
work undertaken as part of the ‘Leadership of Place’ partnership, the attendees
worked collaboratively to identify opportunities and possible issues and constraints.
These were then subject to further analysis from which emerged some key
development objectives and which formed the basis of an overarching draft Vision for
the Norwich Road Allocation. ATLAS has produced a report setting out the Visioning
Workshop outcomes and the draft Vision, namely:
‘The development on land off Norwich Road (Site Allocation NW01) will create a
positive image for North Walsham by enhancing its market town character, providing
a variety of housing, integrating with surrounding land uses and creation of
employment opportunities. To help achieve this it shall:
•
encompass bespoke architectural solutions to create a locally distinctive
development which is sympathetic in scale to its surroundings
•
incorporate a mix of house types (including affordable housing) and
accommodate a range of housing densities and defined character areas
appropriate to the context of the site
•
ensure the phased provision of employment land/buildings
•
provide an attractive and well connected pedestrian environment together
with good links to the town centre and other facilities beyond the site
Planning Policy & Built Heritage Working Party
10
12 September 2011
•
feature high quality green spaces which are also accessible to the wider local
community
•
facilitate improvements to the adjacent railway station environment and create
a positive approach to the town when arriving by train
•
incorporate comprehensive and timely provision of physical, social, and
environmental infrastructure
3. Testing the Vision and the next step
Currently the Major Development Team are presenting and discussing the Draft
Vision with Key stakeholders, including the Town Council and Local and County
Council members for North Walsham, recognising the strategic importance of the site
allocation to the wider town. To date the Vision has been positively received and
some useful refinements have been suggested. Once local engagement has been
completed a meeting is scheduled with the landowners to share and explain the
development objectives for the site with the objective of agreeing an approach to the
preparation of a comprehensive Development Brief.
Any updates will be reported at the meeting.
RECOMMENDATION:
That the Vision for Allocation NW01 be endorsed to form the basis for the
production of a Development Brief for the site.
(Source: Tracy Armitage, Senior Planning Officer. Extn 6304)
Planning Policy & Built Heritage Working Party
11
12 September 2011