BLACKPOOL COUNCIL
PLACES DIRECTORATE
PLANNING DIVISION : DEVELOPMENT MANAGEMENT SECTION
DEVELOPMENT CONTROL COMMITTEE
29/11/2010
LIST OF PLANNING APPLICATIONS
Any amended plans and/or correspondence received after the preparation of the
reports will be reported orally. All correspondence, including objections, is available
for inspection prior to the Committee meeting.
The applications, plans and replies to consultations are the general background
papers in relation to the applications listed. Any additional background documents
specific to an application will be as stated in the relevant report.
List of Applications for Committee on: 29/11/2010
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APPLICATION NO:
STATUTORY START DATE:
RECOMMENDED DECISION:
PROPOSAL:
LOCATION:
PAGE 17
10/1151
17/09/10
Defer for delegation
Creation of a national standard BMX Track with starting
ramp incorporating a small equipment store.
CRICKET OVAL (ADJACENT MODEL VILLAGE),
STANLEY PARK, WEST PARK DRIVE, BLACKPOOL,
FY3 9HU
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PAGE 31
APPLICATION NO:
10/1292
STATUTORY START DATE: 25/10/10
RECOMMENDED DECISION: Grant Permission
PROPOSAL:
External alterations comprising replacement shopfronts,
ground floor windows and installation of new glazed foyer
entrance on Promenade elevation and new ground floor
windows, fascia and entrance doors on Bank Hey Street
elevation and installation of three louvres on Heywood Street
elevation.
Installation of glazed floor and glazed wall on west elevation
and installation of new climbing wall at tower top levels 1, 2
and 3.
LOCATION:
BLACKPOOL TOWER, BANK HEY STREET,
BLACKPOOL, FY1 4BJ
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PAGE 43
APPLICATION NO:
10/1293
STATUTORY START DATE: 25/10/10
RECOMMENDED DECISION: Defer for consideration by the Secretary of State for
Communities and Local Government.
PROPOSAL:
External alterations comprising replacement shopfronts,
ground floor windows, partial demolition of canopy and
installation of new glazed foyer entrance on Promenade,
new fascia and entrance doors on Bank Hey Street elevation
and installation of three louvres on Heywood Street
elevation. Partial demolition of slab at tower top, installation
of glazed floor/ wall on west elevation and installation of a
bar and climbing wall at tower top levels 1, 2 and 3. Internal
alterations and partial demolition of ceiling above cafe at
floor level 5 and installation of 4D cinema, new retail area
and 'history walk' at floor levels 5 and 6.
LOCATION:
BLACKPOOL TOWER, BANK HEY STREET,
BLACKPOOL, FY1 4BJ
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APPLICATION NO:
STATUTORY START DATE:
RECOMMENDED DECISION:
PROPOSAL:
LOCATION:
PAGE 57
10/1373
09/11/10
Defer for delegation
Installation of replacement entrance doors to Coronation
Street.
WINTER GARDENS, CHURCH STREET, BLACKPOOL,
FY1 1HW
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PAGE 65
APPLICATION NO:
10/1374
STATUTORY START DATE: 09/11/10
RECOMMENDED DECISION: Defer for consideration by the Secretary of State for
Communities and Local Government.
PROPOSAL:
Installation of replacement entrance doors to Coronation
Street, replacement of internal lobby doors, refurbishment of
interior of entrance lobby and the Grand Vestibule including
refurbishment of existing ticket booth, restoration of the
existing 1930s terrazzo floor, repair of the existing grand
stair, re-modelling of disabled access into the building,
refurbishment of the Grand Vestibule and entrance foyer
including renewal of internal redecorations and signage.
LOCATION:
WINTER GARDENS, CHURCH STREET, BLACKPOOL,
FY1 1HW
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COMMITTEE DATE: 29/11/2010
Application Reference:
10/1151
WARD:
DATE REGISTERED:
LOCAL PLAN ALLOCATION:
APPLICATION TYPE:
APPLICANT:
Marton
17/09/10
Protection of Public Open Space
Full Planning Permission
Blackpool Council
PROPOSAL:
Creation of a national standard BMX Track with starting ramp
incorporating a small equipment store.
LOCATION:
CRICKET OVAL (ADJACENT MODEL VILLAGE), STANLEY PARK,
WEST PARK DRIVE, BLACKPOOL, FY3 9HU
----------------------------------------------------------------------------------------------------------------CASE OFFICER
Miss S Parker
INTRODUCTION
Members will recall that at the Committee meeting on 6 September 2010, an
application for a BMX track on the land to the south of the boating lake in Stanley
Park was deferred (10/0853 refers). The application was subsequently withdrawn on
the basis of the anticipated detrimental impact the track would have on the historic
and aesthetic value of this area of the park, given the prominence of the headland
and the clear views of the site across the lake from the more formal areas at the
heart of Mawson’s original design. The current application has evolved out of further
discussions between the case officer and other officers of the Council.
SITE DESCRIPTION
The proposed BMX track would be situated on the existing main cricket oval. The
site, which roughly measures 160m by 140m, is surrounded by pathway and has the
trim trail headland to the north, the Model Village to the east, playing fields and the
Model Village car park to the south, and the existing freestyle BMX facility to the
west. The site is grassed and slopes gently towards East Park Drive. A stand of
young trees has recently been planted along the western part of the southern
boundary of the site. The site sits approximately 170m to the north of the nearest
residential properties at the junction of East Park Drive and Lawson Road. Stanley
Park is designated Grade II* in the English Heritage Register of Historic Parks and
Gardens and is set within the wider Stanley Park Conservation Area.
The Committee will have visited the site on 29 November 2010.
DETAILS OF PROPOSAL
The application seeks the provision of a national standard BMX track set in an
elongated coil formation. The track would sit towards the south of the existing oval.
The circuit would have two main stretches of track and two corners before branching
into longer and shorter sections of track which would each have a corner turning
riders into the home straight. The shorter track option would have a length of
approximately 400m with the longer straight increasing this length to 425m and
including a more difficult corner for more accomplished riders. Overall, each route
would have three corners. A 5m high starting ramp incorporating an equipment store
would be situated at the south-west corner of the site. The track would be finished in
compacted fine gravel with the corners finished in tarmac. The jumps of the track
would be built up from grassed banking. Soft landscaping is proposed along the
southern boundary of the site to limit the visual impact of the track.
The application is accompanied by a Design & Access Statement, a heritage
assessment and a drainage statement.
MAIN PLANNING ISSUES
The main planning issues are considered to be:
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the principle of developing a BMX track in this location
the impact on amenity
the adequacy of the design
the impact on traffic and highway safety
the acceptability of the loss of facilities
These issues will be discussed in the assessment section of this report.
CONSULTATIONS
Blackpool Civic Trust – strongly object to the proposal, not only in terms of the
proposed position but anywhere within Stanley Park. Noise from the operation of the
starting gate and PA systems would be an issue. There is inadequate explanation of
the financing of the maintenance of the track.
English Heritage – no comments received in time for inclusion in this report. It is
hoped that comments will be received before the date of the Committee meeting and
will be reported through the update note.
Lancashire County Council (County Archaeologist) – no comments received in time
for inclusion in this report.
The Garden History Society – response submitted by the Lancashire Gardens Trust
– the existing cricket oval appears to be playable. The surrounding trees make a
pleasant division between the oval and more formal areas and screening would be
needed to divide the proposed track from the other sections of the park. The unused
area to the south of the oval appears to be very suitable for the use because it is
already well screened. However, the presence of bikers in the park is of concern as
bikers have been encountered riding through flowerbeds and on wheelchair ramps.
The Trust question what protection will be afforded against damage to other areas of
the park.
Lancashire County Council (County Ecologist) – the proposed site is some distance
away from all nearby sites of particular ecological value and where European
Protected Species have been recorded. No trees are to be lost and so no impact on
bats is anticipated. Consequently, the proposal is not anticipated to impact adversely
on biodiversity considerations.
Built Heritage Manager – the site should be accepted as a reasonable compromise
between the trim trail site which was originally proposed, where the heritage impact
would have been significantly higher, and the more peripheral areas which are closer
to the surrounding residential properties. The loss of the cricket oval should not be
considered to be irretrievable, and the suggestion that the track be located close to
the existing Sports Centre is impractical.
Head of Transportation (Traffic Management) – routes to the track should be well
signed from all approaches. The total number of parking spaces available is queried.
A management strategy should be implemented to minimise the impact on the
adjacent highway network when events are staged. All approaches to the site should
be amended to provide suitable access for cyclists.
Head of Housing and Environmental Protection Service – no comments received in
time for inclusion in this report.
Sport England – the site is understood to include a playing field as defined by the
Town and Country Planning (Development Management Procedure) (England)
Order 2010. Development of playing fields is allowed under PPG17 (Planning for
Open Space, Sport and Recreation), and under Sport England policy, where it can
be demonstrated that the provision of the new facility would be of sufficient benefit to
the development of sports as to outweigh the detriment caused by the loss of the
playing field. The English Cricket Board has objected to the proposal on the basis
that the existing cricket pitch is currently used for league cricket and that no
consultation has been held with the Lancashire Cricket Board. Although a second
pitch could be upgraded, this pitch is already in use and so the proposal would still
result in a loss of capacity. No evidence has been provided to demonstrate that the
cricket pitch is no longer required, or that any consultation has taken place. It is not
clear whether the stated demand has been identified as part of a facilities strategy
for Blackpool, or as part of British Cycling’s facilities strategy for new infrastructure
development. The alternative sites appraisal provides insufficient detail.
Consequently, Sport England object to the proposal.
PUBLICITY AND REPRESENTATIONS
Press notice published 30 September 2010
Site notices displayed 11 October 2010
Neighbours notified 27 and 29 September 2010
A letter of objection has been received from the Friends of Stanley Park listing the
following issues – insufficient consideration has been given as to who would be
responsible financially for the ongoing maintenance of the site. Existing facilities
would be unable to cope with the additional demand and are some distance away.
The changing rooms at the arena would have to be updated. Parking provision is
insufficient to support the proposal. Drainage of the area is an issue with the willow
stand to the south of the site having been planted to take up excess water. The
cricket oval is not just used by cricketers but also by families for informal activities.
The proposal would detract from the value of the park. It is not believed that
Blackpool would be able to attract the national events referred to in the application.
Letters of objection have also been received from:
Abbotsford Road; 82
Belverdale Gardens; 8
Bonney Street (Thornton-Cleveleys); 5
Dronsfield Road; 70
Edgeway Road; 68
Kempton Avenue; 12
Kenwyn Avenue ; 28
Langfield Avenue; 38
Lawson Road; 14, 14A, 16, 60
Mariners Close (Fleetwood); 68
Pierston Avenue; 23
Reads Avenue; 175
St. Clements Avenue; 10
Stanah Road (Cleveleys); 46
West Park Drive; 90, 128, 132, 180, 186
These letters raise the following issues:
Visual amenity
 park aesthetics
 damage from spectator footfall
 inadequate drainage
 ongoing maintenance of the track
 a high fence is needed and this would have an unacceptable visual impact
Heritage
 impact on heritage value of park
 loss of tranquillity of park
 loss of family values
 the proposal would be contrary to Mawson’s original designs
Environment
 impact on wildlife
 loss of trees
Residential Amenity, noise and anti-social behaviour from users
 noise from starting gates, PA systems and spectators
 a lighting system will be needed
 the number of events should be limited
 access by motorcyclists/skateboarders
Traffic
 lack of parking
 parking demand is underestimated
 additional car parks would further erode the green space
 extra traffic and congestion
Loss of facilities
 loss of cricket pitch
 loss of open space
 lack of adequate cricket pitches in town
Other issues raised
 Blackpool is being overambitious in aiming for an annual national event
 maintenance costs are likely to be higher than anticipated
 future use is underestimated
 lack of facilities (toilets etc)
 bikers would travel through park to get to existing facilities causing disruption
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inadequate consultation
public meetings should have been held
basic information is unclear, confusing, misleading and inadequate
should be built on the outskirts of town near the M55
not aimed at local young people as national/international track
the existing BMX facility is underused
the facility would only be open during the day
the sport is dominated by male riders and serious competitors and so excludes
females and the poor
the track will not be accessible to all due to its design
inadequate security and supervision
These issues will be discussed in the assessment section of this report.
Letters of support have been received from:
Albion Avenue; 12
Brendon Walk; 48
Bryan Road; 53
Burnside Avenue; 5
Cumberland Avenue; 6
Dumfries Close; 4, 6
Falkland Avenue; 92
Heathway Avenue; 22
Preston New Road; 18
Rectory Road; 59
Sandpiper Close; 20
South Park Drive; 68
The Blackpool Model Village and Gardens
Whitegate Drive; 247A
Letters of support have also been received from PC Johnstone (Tyldesley
Community Beat Manager), The Bike Club Organisation and the Blackpool NHS.
NATIONAL PLANNING POLICY AND GUIDANCE
PPS 5: Planning for the Historic Environment - this document sets out the planning
policy with regard to conserving the historic environment and its heritage assets.
Policies HE6-HE12 relate to Development Management and set out the information
requirements for applications, the principles guiding determination, guidance on
enabling development and the principles guiding the recording of information.
SAVED POLICIES: BLACKPOOL LOCAL PLAN 2001-2016
LQ1: Lifting the Quality of Design - this policy requires all new development to make
a positive contribution to the quality of the surrounding environment
LQ2: Site Context - this policy states that all new development proposals will be
considered in relation to the character and setting of the surrounding area.
LQ6: Landscape Design and Biodiversity - this policy requires new development to
incorporate appropriate landscaping and benefits to biodiversity wherever possible.
LQ10: Conservation Areas - this policy sets out the criteria against which
development proposals in the designated Conservation Areas will be assessed.
BH3: Residential and Visitor Amenity - this policy seeks to prevent developments
which would have an adverse impact on the amenity of those occupying residential
and visitor accommodation.
BH5: Protection of Public Open Space - this policy states that the development of
public open space will not be permitted unless the proposal would support existing
sport or recreational uses or provide new facilities and be incorporated sensitively
into the surroundings, or provision is made for equivalent replacement open space
elsewhere.
AS1: General Principles (Access and Parking) - this policy states that new
development will only be permitted where the access, travel and safety needs of all
affected are adequately met.
EMERGING PLANNING POLICY
The Preferred Option draft of the emerging Core Strategy has recently been subject
to a twelve week period of public consultation which closed at the end of July. The
representations from this consultation period are currently being considered. At the
present time, the Core Strategy is at too early a stage in its development for its
policies to be given material weight in the determination of planning applications.
Relevant emerging policies are S6, Gb and Gb.
ASSESSMENT
The principle of the development in Stanley Park
Stanley Park constitutes the largest area of protected public open space within the
borough. It is a Grade II* listed Historic Park and Garden which offers a range of
formal and informal landscaped areas and recreational facilities. The park was
designed and set out in the 1920s by Mawson and Sons in order to meet the open
space and recreational requirements of the town. As well as offering a varied
landscape, the original design also included putting greens, bowling, tennis courts,
cricket and football pitches, a golf course and the boating lake. Today, the Stanley
Park Sports Centre, the athletics arena, hard-surfaced and astro-turfed sports
pitches and a small skate park complement this provision. Stanley Park has,
therefore, always been a focus for leisure and recreation activities.
The application proposes a national standard BMX track. The proposed track has
been subject to specialist design and would meet all of the criteria for national BMX
events and competitions. As such, the track would bring competitors and spectators
to the town, and would also provide local residents with a valuable recreation and
sports facility. Given that Stanley Park is an established hub for sports and
recreation, the location of the track within the grounds is considered to be acceptable
in principle.
The acceptability of the proposed site
The proposed site has been selected because it is large enough to accommodate a
national standard BMX track and also provides space for the temporary ancillary
areas and facilities which must be provided for larger events. However, the
acceptability of the proposed site rests on certain considerations:
Impact on heritage
A report has been prepared for Blackpool Council which assesses the potential
impact a national standard BMX track would have on the historic environment of this
area of the park. The report identifies the original Mawson design to centre on the
formal Italian Garden and then become more informal towards the edges park in
order to accommodate sports facilities within a natural setting of open space. The
report goes on to state that more recent sporting facilities have been concentrated in
the western sector of the park, in an area originally designated to accommodate
formal sport pitches and courts. It is argued that the proposed location differs from
this western sector by having a more open and uninterrupted, informal character,
albeit in an area still intended for sports and recreation.
Stanley Park as a whole is noted to be a park of significant historic value which has
recently benefited from approximately £5million of restoration funding. Although
some potential benefits of a BMX track are acknowledged, the report identifies a
conflict between the site selection and the objectives of the Stanley Park
Management Plan to priorities the historic value of the park. The loss of the cricket
oval is deemed to be irretrievable, and the visual impact of the proposal is
considered unacceptable. The report also notes that it is not possible to assess the
sustainability of the proposal from the information submitted, and that a
demonstration of need has not been made. Drainage is raised as an issue. The
report concludes that the existing cricket oval is an unacceptable location for the
siting of a national standard BMX track, based on the anticipated impact on the
historic and aesthetic value of this area of the park.
This report has been considered by the Council’s Built Heritage Manager who has
reservations about the practicality of implementing its recommendations, and who
notes that the existing oval could be reinstated with investment if need be. As such,
the loss is not accepted to be irretrievable. The recommendation that the track be
located close to the existing Sports Centre is considered unrealistic given the
proximity to residential properties and the lack of available land. It is also noted that
the land in the south-western area of the park sits at a lower land level and so is
more prone to becoming waterlogged. The Built Heritage Manager concludes that
the proposed site is a reasonable compromise between the far more prominent,
previously proposed Trim Trail site, and more peripheral areas which are closer to
residential properties.
It is therefore felt that the proposal would not conflict with the provisions of Policy
LQ10 of the Local Plan.
Visual Impact and adequacy of design
The existing cricket oval forms part of an uninterrupted green space which stretches
around the southern perimeter of the park from the sports centre in the west to the
Model Village in the east. However, it is not considered that the proposed BMX track
would introduce an unacceptably incongruous and obtrusive feature within the
landscape. The proposed BMX track would be comprised of straight sections of track
incorporating raised bumps or jumps, and tight, inclined corners. The track surface
would be made from compacted fine gravel with tarmaced corner sections. The track
would start with a 5m high ramp at the south-western corner of the site which would
largely conceal a standard construction equipment container.
In order to minimise the visual impact of the track, the sides would be grassed with
only the surface track and corners being finished in gravel and tarmac respectively.
The starting gate with integral storage would also be grassed with the access doors
finished in green to minimise the impact on the surroundings. A screen of soft
landscaping is proposed along the southern boundary of the site to continue the
existing stand of trees and minimise visual impact on the view into the park from
East Park Drive. The track would be some 170m from the nearest residential
properties at the junction of East Park Drive and Lawson Road. It is anticipated that
a landscaping scheme and management plan would be developed in conjunction
with the Parks Division to ensure that the planted areas are appropriate and properly
maintained. As such, the design is considered acceptable.
Damage to the park grounds from spectator footfall has been raised as a concern,
but is not anticipated to be significantly higher than that already arising from use of
the park during periods of poor weather and other events, such as school cross
country events. The drainage statement submitted with the application explains that
the proposal would have a negligible impact on natural drainage systems and the
water table in the area. Reinforced surfacing would be provided around the most
heavily trafficked areas in order to prevent damage. As with any other use or activity
in the park, in the event of extreme weather conditions or a waterlogged surface,
events would have to be cancelled. It should be noted that the majority of BMX
events would be expected to take place during the summer months.
Concern has been expressed over the potential for the appearance of the park to be
detrimentally affected by inadequate on-going maintenance. As will be discussed
later in the report, this is not anticipated to be an issue.
Environmental Impact
The proposal would not result in the loss of any trees or areas of habitat. The site is
a considerable distance away from the Stanley Park Heronry, in the northern part of
the lake, and the Salisbury Woodlands, which are Biological Heritage Sites. The site
is also a considerable distance away from the Marton Mere Site of Special Scientific
Interest (SSSI). As such, the proposal is not expected to have a detrimental impact
on any European Protected Species, areas of ecological value or general
biodiversity. Surface water run-off has not been raised as a concern by any of the
statutory consultees, and is therefore not considered to pose a threat to biodiversity.
Impact on amenity
The application site is approximately 170m from the nearest residential properties at
the junction of East Park Drive and Lawson Road. No permanent public
announcement or flood lighting systems are proposed. Temporary public
announcement systems would be used for events and competitions but these are
likely to be very small, low power systems which would not be anticipated to cause
noise nuisance and disturbance to local residents. National events and competitions
may require larger public announcement systems which could be audible from the
surrounding residential areas. However, it is anticipated that only one national event
could be attracted to Stanley Park each year and so this level of disturbance is not
considered unacceptable. The applicant has stated that any necessary floodlights
and speakers would be positioned and angled so as to minimise their impact on
residential amenity. In order to mitigate the concerns of local residents, it is
recommended that a condition be attached to any permission granted to limit the
number of formal events and competitions that can be held in any one year.
The possibility of providing a fence, with a specially designed access point, around
the track to prevent use by motorcyclists has been explored. However, an access
point wide enough to accommodate cycles would also accommodate small
motorcross bikes, which could equally be lifted over a low level fence. A high level
security fence would have an unacceptable visual impact on this area of the park.
This impact would be exacerbated by the fact that any fence would have to be set
well back from the track so as not to present a hazard to users. Motorbikes are not
allowed off-road in Stanley Park and so it is felt that any attempted use by
motorcyclists could be dealt with by Park security and the Police. Use of the track by
skateboarders is considered to be unlikely.
Some concern has been raised that the start ramps necessary for competitions
would cause noise nuisance. However, East Park Drive is a busy road with a
relatively high volume of traffic. The residential properties at the southern end of East
Park Drive face onto sports pitches and so the occupants are likely to be
accustomed to noise from activity in this area. The use of the start ramps would not
be continuous during events and would only occur during formal practices and
competitions. Nevertheless, given the concerns raised, the Council is exploring the
different start gate mechanisms available, including those with rubber shock pads
and those which use compressed gas to slow the gate after drop and prevent a
crashing sound. Full details of the proposed start gate mechanism have yet to be
received at the time of writing this report, but the applicant is confident that an
acceptable solution can be found. Consequently, it is recommended that a condition
be attached to any permission granted to require the details of the start gates to be
agreed prior to installation. Given the research described above, the separation
distances involved and the nature of the area, it is not anticipated that the proposal
would have a detrimental impact on residential amenity through increased noise or
disturbance.
It is therefore felt that the proposal would not conflict with the provisions of Policy
BH3 of the Local Plan.
Impact on traffic and highway safety
It is anticipated that the majority of casual users would travel to the track by bicycle
or on foot. The existing car parking provision, both on-street and in the car park
adjacent to the Model Village, is considered adequate for users travelling by car for
both casual use and local events and competitions. It is anticipated that only three
national/regional events would be held at the park each year. Whilst it is considered
that the existing parking provision would be sufficient to deal with the requirements
for these events, particularly regional level events, it would be possible for adjacent
areas of the park to be marked out and marshalled for temporary parking if need be.
The proposal is not anticipated to have a detrimental impact on local parking
pressure or highway safety. Nevertheless, an assessment of the parks parking
provision is being undertaken, in response to the concerns raised, in order to ensure
that parking demand is properly met and managed in the future.
No new areas of car park are proposed as part of this scheme.
Loss of facilities
The proposal would result in the loss of the existing main cricket pitch. However, use
of this pitch has declined markedly in recent years and it is understood that only one
team now uses the facility on a sporadic basis. The land slopes gently from north to
south and it is understood that this reduces the quality of play. Based on user
numbers, it is not felt that two free-to-play cricket pitches can be supported within the
park. Consequently, if permission is granted, the applicant is proposing to use some
of the funds allocated for this project to upgrade the secondary cricket pitch to make
it fit for use as the sole free-to-play cricket facility within the park.
The applicant is currently in the process of collating the necessary information to
respond to the objection made by Sport England, and demonstrate that the existing
cricket pitch is no longer required to meet the demand for cricket facilities in the
borough. Although this has not been made available to date, it is hoped that Sport
England will be in a position to retract their objection before the Committee meeting.
Any retraction will be reported through the update note.
As the existing pitch would be replaced by a facility that would introduce a new sport
to the park, which is anticipated to be very popular with young people, and as a
quality, free-to-play cricket facility would be retained in close proximity, the loss of
the existing pitch is considered acceptable. It would be possible to reinstate a cricket
pitch on the site in future if the need arose.
It is therefore felt that the proposal would not conflict with the provisions of Policy
BH5 of the Local Plan.
On-going maintenance
Concern has been raised that the applicant has underestimated the on-going costs
of maintaining the site, and has over-estimated potential income. Consequently, the
visual impact of a poorly maintained track has been raised as an issue. In response
to these objections, the applicant has revisited the predicted capital and revenue
costs of operating and maintaining the track, and the income that could reasonably
be expected from events and club use. This information, which is based on a
conservative forecast, demonstrates that income from equipment hire, club
membership, coaching sessions and events, would be sufficient to cover the ongoing costs of maintaining the track. To allow for the initial development of the track,
the BMX club and the events programme, funds have been set aside from the capital
budget to cover initial maintenance. Consequently, it is believed that the track would
be self-sustaining and would not pose a maintenance issue in the future.
Lack of facilities for spectators and riders
Concern has also been voiced over the lack of toilet and changing facilities in close
proximity to the track, and the fact that track users would have to cycle through the
park, thereby disturbing other users, in order to use the facilities at the arena.
However, BMX riders are already free to use the pathways within the park and, aside
from the freestyle area, have no specific facility to ride on, increasing the potential for
conflict. Furthermore, the existing facilities already serve all informal users of the
park and users of the ramp area and formally marked out pitches and courts towards
the southern end of the park. British Cycling has been consulted on the proposal and
is satisfied with the arrangements with regard to spectator and rider facilities.
Temporary facilities could be provided for larger events, and it is anticipated that the
changing facilities at the arena would be upgraded as part of general improvements.
It is anticipated that the Parks management team would manage the timing of events
to ensure that any major events taking place at the sports arena and BMX track
would not coincide. Consequently, the existing facilities are considered sufficient to
meet anticipated needs, and increased conflict with other park users is considered
unlikely.
Information submitted
Complaints have been made that the information submitted with the application has
been unclear, confusing misleading and inadequate. The applicant’s initial
submission was based on consultation with the Planning division, and included the
information initially considered to be necessary. As Stanley Park is a Grade II* listed
park and garden, the issues surrounding any significant proposed development are
likely to be complex and challenging. In response to objections from local residents
and statutory bodies, further information has been collected and submitted as
appropriate. It is now considered that all necessary information has been provided or
is in the process of being submitted, and that the information is clear and
satisfactory. Conditions have been recommended for attachment to any permission
granted in order to require all necessary details to be agreed by the Planning division
prior to any development taking place.
Consultation
Some local residents have objected to what is perceived to be inadequate public
consultation on the scheme prior to the application being submitted. The Committee
is respectfully advised that the Planning division cannot require an applicant to
undertaken public consultation, and cannot refuse to consider an application
because public consultation has not taken place. All statutory requirements with
regard to public notification of the planning application have been discharged, and a
number of representations have been received as a result.
Other
Other representations have been received suggesting that the track would be better
located on the outskirts of town, that the track is not aimed at local young people,
that the existing freestyle facility is underused, and that the facility would only be
open during the day. It has also been suggested that the design of the track would
prevent use by inexperienced riders and that females and young people from poorer
families would be excluded.
The suitability of the proposed site relative to others in the borough is not a matter for
consideration as part of this application. Explanation of the site selection is provided
in the Design and Access Statement accompanying the application. Members of the
Committee are respectfully reminded that the proposal must be assessed on the
basis of its acceptability in this location, not whether it would be better located
elsewhere. However, it is felt that a location on the outskirts of the town would be
less accessible to local residents, and less sustainable than the proposed site.
Although the track would be capable of hosting national BMX events, it has been
designed to be suitable for use by riders of all ages and abilities. As a sport, BMX
riding is growing in popularity and is considered to be accessible by all, including
those from poorer families. The track would be free to use when not in use for club
training sessions or events. The track would only be available for use when the park
is open to prevent use after dark when floodlighting would be required and when
noise and disturbance would have a greater impact on the residential amenities of
nearby neighbours.
The Committee is advised that the provision of a BMX track at Stanley Park is
supported by local young people and BMX clubs, and by the Police and Police
Community Support Officers who are based in the park and who work with young
people. Objections have been received on the basis that the proposal would
encourage young people to use the park and congregate around the track, with
noise and anti-social behaviour as an inevitable result. However, the Police support
the scheme on the basis that it would provide young people with a positive focus for
their activities, and lead to a reduction in anti-social behaviour. The site would be in
close proximity to the Police office in the park and would be covered by Park
security. As the track would only be in use during daylight hours, and given the
situation of the site relative to the nearest residential properties, noise from use is not
anticipated to have an unacceptable impact on residential amenity.
CONCLUSION
By virtue of its central location and its historical development as a hub for sporting
and recreational activities, Stanley Park is considered to be the most appropriate
location for the siting of a national standard BMX track within Blackpool. Within
Stanley Park, the existing cricket oval is considered to be the most appropriate of the
sites currently or imminently available to accommodate the proposed track. Although
concerns remain regarding the potential impact of the proposal on the heritage value
of the park, this site is considered to be far less sensitive than that previously
proposed. The heritage concerns have also been balanced against the potential
impacts on residential amenity which would arise from the use of sites in more
peripheral areas. As the proposed track would not involve the demolition of any
structures or the loss of trees, and would not require particularly invasive or
extensive foundations, the works are not considered to be irreversible.
Consequently, the Committee is recommended to delegate the application to the
Head of Development Management for delegated approval following the submission
of additional information and subject to the retraction of Sport England's objection,
and subject English Heritage not raising any issues above and beyond those already
evaluated through the submission of Heritage Assessment. If further issues were
raised, or if Sport England uphold their objection, the application would be brought
back to Committee for further consideration.
HUMAN RIGHTS ACT
Under Article eight and Article one of the first protocol to the Convention on Human
Rights, a person is entitled to the right to respect for private and family life, and the
peaceful enjoyment of his/her property. However, these rights are qualified in that
they must be set against the general interest and the protection of the rights and
freedoms of others. The application is not considered to raise any human rights
issues.
CRIME AND DISORDER ACT 1998
The contents of this report have been considered in the context of the Council's
general duty, in all its functions, to have regard to community safety issues as
required by section 17 of the Crime and Disorder Act 1998
Recommended Decision: Defer for delegation
Conditions and Reasons
1.
The development hereby permitted shall be begun before the expiration of three
years from the date of this permission.
Reason: Required to be imposed pursuant to Section 91 of the Town and Country
Planning Act 1990 (as amended).
2.
a) No development shall take place until full details of both hard and soft
landscaping works have been submitted to and approved in writing by the Local
Planning Authority. These details shall include any proposed changes to existing
ground levels, means of enclosure and boundary treatment, areas of soft
landscaping, hard surfaced areas and materials, planting plans specifications and
schedules (including plant size, species and number/ densities), existing
landscaping to be retained, and shall show how account has been taken of any
underground services.
b) The landscaping works shall be carried out in accordance with the approved
details within the first planting season following completion of the development
hereby approved or in accordance with a programme agreed in writing by the
Local Planning Authority (whichever is sooner).
c) Any trees or shrubs planted in accordance with this condition which are
removed, uprooted, destroyed, die, or become severely damaged or seriously
diseased within 5 years of planting shall be replaced within the next planting
season by trees or shrubs of similar size and species to those originally required to
be planted, unless the Local Planning Authority gives its written consent to any
variation.
Reason: To ensure the site is satisfactorily landscaped in the interests of visual
amenity and to ensure there are adequate areas of soft landscaping to act as a
soakaway during times of heavy rainfall with regards to Policy LQ6 of the
Blackpool Local Plan 2001-2016.
3.
Notwithstanding the details shown on the approved plans, the visible elevation of
teh equipment store hereby approved shall be painted in RAL colour 6010 before
the BMX track hereby approved is first brought into use, and shall thereafter be
maintained as such.
Reason: In the interests of the appearance of Stanley Park as a Grade II* Historic
Park and Garden, in accordance with Policies LQ1, LQ2 and LQ10 of the
Blackpool Local Plan 2001-2016.
4.
Details of the surfacing materials to be used shall be submitted to and agreed in
writing by the Local Planning Authority prior to the commencement of the
development.
Reason: In the interests of the appearance of the locality, in accordance with
Policy LQ1 of the Blackpool Local Plan 2001-2016
5.
Prior to the BMX track hereby approved being first brought into use, details of the
starting ramp mechanism shall be submitted to and agreed in writing by the Local
Planning Authority, and this agreed mechanism shall be installed prior to first use
and thereafter retained.
Reason: In order to minimise noise disturbance from track in the interests of the
residential amenity of the occupants of nearby residential properties, in
accordance with Policy BH3 of the Blackpool Local Plan 2010-2016.
6.
No more than 3 national level events and 5 regional level events shall be held at
the track hereby approved in any calendar year.
Reason: In order to minimise the impact on the residential amenity of the
occupants of nearby residential properties, in accordance with Policy BH3 of the
Blackpool Local Plan 2001-2016.
REASONS FOR RECOMMENDED DECISION
1
The BMX track proposed has been considered in relation to Policies LQ1, LQ2, LQ6,
LQ10, BH3, BH5 and AS1 of the Blackpool Local Plan 2001 - 2016 and is in
accordance with those policies and there are no other material considerations which
weigh sufficiently against the proposal such as to warrant refusal.
Advice Notes to Developer
1.
Please note this approval relates specifically to the details indicated on the
approved plans and documents, and to the requirement to satisfy all conditions of
the approval. Any variation from this approval need to be agreed in writing by the
Local Planning Authority prior to works commencing and may require the
submission of a revised application. Any works carried out without such written
agreement or approval would render the development as unauthorised and liable
to legal proceedings.
COMMITTEE DATE: 29/11/2010
Application Reference:
10/1292
WARD:
DATE REGISTERED:
LOCAL PLAN ALLOCATION:
APPLICATION TYPE:
APPLICANT:
Talbot
25/10/10
Principal Retail Core Leisure Zone / Resort Core
Full Planning Permission
Merlin Entertainments (Blackpool) Ltd
PROPOSAL:
External alterations comprising replacement shopfronts, ground floor
windows and installation of new glazed foyer entrance on Promenade
elevation and new ground floor windows, fascia and entrance doors on
Bank Hey Street elevation and installation of three louvres on Heywood
Street elevation.
Installation of glazed floor and glazed wall on west elevation and
installation of new climbing wall at tower top levels 1, 2 and 3.
LOCATION:
BLACKPOOL TOWER, BANK HEY STREET, BLACKPOOL, FY1 4BJ
----------------------------------------------------------------------------------------------------------------CASE OFFICER
Miss C Johnson
INTRODUCTION
Blackpool Council became the owners of Blackpool Tower earlier in 2010 and the
Council has appointed Merlin Entertainments Group as the operators.
The case officer and the Council's Built Heritage Manager have been involved in a
number of pre-application meetings with the agent and English Heritage in relation to
these proposals, including a tour of the relevant areas of the building.
General maintenance and repairs to the building and the Tower structure are
underway and the new operators took over in early November 2010 and work has
started already on proposals approved under Listed Building Consents 10/0861 and
10/0999. It is anticipated that the works proposed in this application would be
completed by September 2011.
SITE DESCRIPTION
The application relates to Blackpool Tower, a Grade I Listed Building, dated 1891-4
and first listed in 1973. Situated in the Town Centre, bounded by Victoria Street,
Bank Hey Street, Heywood Street and the Promenade, the Tower is a national
landmark occupying a prominent position on Blackpool's skyline. It is built in open
steel girders and tapers in from approximately 30 metres wide at its base, to
approximately 10 metres under the main viewing gallery. The top is approximately
158 metres from ground level and at its base is a brick built entertainment complex
on six levels.
Attractions in the Tower include the Blackpool Tower Ballroom, Circus, Tower
Lounge, Jungle Jims play area, Jurassic Walk and an Aquarium. The aquarium and
Jurassic Walk is due to be removed and a new Blackpool Tower Dungeon attraction
installed.
The surrounding area is predominantly retail in character and the Local Plan
designation for this area is part Principal Retail Core (Bank Hey Street side), part
Leisure Zone/Resort Core (Promenade side).
The Committee will have visited the Tower on 29th November 2010.
DETAILS OF PROPOSAL
Members will recall a previous Planning Application for phase 1 works at the Tower
(reference 10/0998) for the installation of entrance ramps to Bank Hey Street
elevation, installation of air handling unit and associated structures to Heywood
Street and installation of new themed signage on the Bank Hey Street elevation.
This application is for proposed phase 2 works which include external alterations
comprising replacement shopfronts, ground floor windows, partial removal of canopy
and installation of new glazed foyer entrance on Promenade, new fascia and
entrance doors on Bank Hey Street elevation and installation of three louvres on
Heywood Street elevation. Partial demolition of a slab at tower top, installation of
glazed floor/ wall on west elevation and climbing wall at tower top levels 1, 2 and 3.
This application is supported by a Design and Access Statement, a Heritage Impact
Assessment, and a Planning Statement. A Conservation Management Plan is being
re-drafted following comments from The Victorian Society and English Heritage on
the previous Listed Building Consent application - reference 10/0999.
An application for Listed Building Consent for the external and internal works has
also been submitted and will appear elsewhere on this agenda (reference 10/1293)
MAIN PLANNING ISSUES


Impact on the Grade I Listed Building and the appearance in the Streetscene
Long term sustainability of Blackpool Tower and the wider resort
CONSULTATIONS
The Head of Transportation has stated that all banners, canopies and signs would
require a licence under S115 of the Highways Act.
The proposed glass wind breaker in front of the main canopy should be removed, this
element of the scheme at the area fronting the Tower is busy with pedestrians and
this will be a further obstacle for pedestrians, how is it going to be protected from
damage by passing vehicles as the area fronting the tower will be a shared scheme
for pedestrians and vehicles. The glass canopy will also project a further 3000mm
from the main canopy (overall projection of canopy and wind breaker from the
building line – 6000mm) and will sit on the Comedy Carpet and will obscure some of
the information that is to be engraved onto the Comedy Carpet. Has also queried
how will the glass wind breaker be maintained.
The Head of Strategic Asset & Estate has not made any representations at the
time of writing.
Any further responses received will be reported in the update note.
PUBLICITY AND REPRESENTATIONS
Site Notices displayed 02/11/2010
Press notice published 04/11/2010
Neighbouring businesses notified 29/10/10
No representations have been made as a result of the public consultation.
Any representations received will be reported in the update note.
NATIONAL PLANNING POLICY AND GUIDANCE
PPS 5
Planning and the Historic Environment
The policies in this PPS are a material consideration which must be taken into
account in development management decisions, where relevant. Therefore the
development management policies in the PPS can be applied directly by the
decision-maker when determining whether development should proceed.
Policy HE7 Policy Principles Guiding the Determination of Application for
Consent Relating to all Heritage Assets
In considering the impact of a proposal on any heritage asset, local planning
authorities should take into account the particular nature of the significance of the
heritage asset and the value that it holds for this and future generations. This
understanding should be used by the local planning authority to avoid or minimise
conflict between the heritage assets conservation and any aspect of the proposals.
Policy HE9 Additional Policy Principles Guiding the Consideration of
Applications for Consent Relating to Designated Heritage Assets
Where a proposal has a harmful impact on the significance of a designated heritage
asset which is less than substantial harm, in all cases local planning authorities
should:
(i) weigh the public benefit of the proposal (for example, that it helps to secure the
optimum viable use of the heritage asset in the interests of its long-term
conservation) against the harm; and
(ii) recognise that the greater the harm to the significance of the heritage asset the
greater the justification will be needed for any loss.
Policy HE11 Enabling Development
Local planning authorities should assess whether the benefits of an application for
enabling development to secure the future conservation of a heritage asset outweigh
the disbenefits of departing from the development plan (having regard to the
requirements of section 38(6) of the Planning and Compulsory Purchase Act 2004) or
from national policies, taking into account whether:
• it will materially harm the significance of the heritage asset or its setting
• it will avoid detrimental fragmentation of management of the heritage asset
• it will secure the long term future of the heritage asset and, where applicable, its
continued use for a purpose sympathetic to its conservation
• it is necessary to resolve problems arising from the inherent needs of the heritage
asset, rather than the circumstances of the present owner, or the purchase price paid
• there is a source of funding that might support the heritage asset without the need
for enabling development
• the level of development is the minimum necessary to secure the future
conservation of the heritage asset and of a design and type that minimises harm to
other public interests.
Note that these criteria are listed as a starting point; what is a material consideration
will always depend on the circumstances of the individual case and this list is not
comprehensive.
SAVED POLICIES: BLACKPOOL LOCAL PLAN 2001-2016
Policy LQ1 Lifting the Quality of Design
All new development will be expected to be of a high standard of design and to make
a positive contribution to the quality of its surrounding environment.
Policy LQ9 Listed Buildings
Policy LQ9 states that proposals for the repair, alteration or extension of a Listed
Building will only be granted consent where:
(i) the essential character of the building is retained, including any features of
architectural or historic interest which contribute to the reasons for its listing.
(ii) the works proposed make use of original and/or sympathetic materials which
match or are in keeping with those found on the Listed Building.
Policy RR1 Visitor Attractions
Within the defined Resort Core the Council will permit and encourage proposals for
the development, extension or improvement of tourism attractions that draw large
numbers of visitors provided that such development meets all of the following criteria:
(a) the proposal makes a strong positive contribution to the physical and economic
regeneration of the Resort Core, targeting, as far as possible, those sites in greatest
need of investment and renewal.
(b) the proposal would increase the range and quality of facilities available to the
visitor and contributes to safeguarding and growing Blackpool's visitor market.
(c) the development proposal and associated activities including trip generation can
be accommodated satisfactorily in a manner that relates well to adjoining uses; other
existing visitor attractions and facilities, holiday and residential accommodation.
(d) new attractions should reinforce the existing concentrations of such uses rather
that leading to a dispersed distribution of attractions.
Policy RR7 Promenade Frontages Within the Resort Core
Development proposals, including changes of use, to introduce contemporary new
visitor attractions, accommodation and facilities on the Promenade frontage within
the Resort Core will be permitted and encouraged provided that they;
(a) comprise high quality buildings of an appropriate scale.
(b) provide an 'active' frontage to the Promenade.
(c) protect and enhance key pedestrian routes into the adjoining Resort
Neighbourhoods..
(d) reinforce the existing concentrations of such uses rather than leading to a
dispersed distribution of attractions.
(e) enhance the amenity, character and appearance of the area.
Proposals must be supported by detailed assessments of all significant impacts
associated with the proposed development.
Policy SR5 Principal Retail Core
Proposals for uses other than the following will not be permitted within the Principal
Retail Core:
(a) retail uses; financial and professional services; restaurants and cafes.
(b) appropriate leisure, residential, hotel or office uses at upper floor level.
(c) civic space/open space.
Proposals, which would be detrimental to the retail function/character of these main
shopping streets, will not be permitted. Public realm improvements in the area will be
promoted and where appropriate contributions secured from development.
Policy SR8 Leisure Zone
This zone is located in the Resort Core where visitor attractions/tourism development
proposals will be permitted subject to Policy RR1. This zone will also be promoted as
the main location for the following uses:
(a) public houses, bars and night clubs.
(b) restaurants and cafes.
Contributions will be sought from all development towards the Quality Management
Initiative including CCTV, wardens etc. The acceptability of proposals will have
particular regard to public disorder issues for late night opening. New developments
should include active frontage uses at ground floor level.
Policy AS1 General Development Requirements
New development will only be permitted where the access, travel and safety needs of
all affected by the development are met as follows:
(a) convenient, safe and pleasant pedestrian access is provided
EMERGING PLANNING POLICY
Core Strategy Preferred Option (April 2010)
Policy S6
Quality of Place
To uplift and enhance the quality of buildings, townscape and landscapes across
Blackpool by:
 Requiring a high standard of design to ensure all new developments make a
positive contribution to the quality, attractiveness, safety and security of their
surroundings.
 Complementing and enhancing the character and distinctiveness of local
neighbourhoods.
 Protecting, conserving and enhancing the heritage and appearance of important
existing buildings and their settings.
 Ensuring new developments as far as practicable retain and provide appropriate
new landscape and biodiversity benefits.
 Sustaining and enhancing the biodiversity of protected species and habitats.
 Protecting the appearance and environmental quality of Blackpool's Promenade
‘shop window’ seafront, coast and foreshore.
 Safeguarding its separate identity, defining the limits of development, and
preventing its merging with neighbouring settlements.
 Safeguarding, improving and creating an enhanced network of green
infrastructure, with high quality public realm.
Policy R1
Resort Renaissance
To physically and economically regenerate Blackpool's resort and town centre core
as the City on the Beach and to reshape and re-invigorate the adjoining holiday
accommodation and residential neighbourhoods. The focus will be on identifying and
supporting major development opportunities which have the potential to become selfsustaining wider catalysts for regeneration to create a sustainable and inclusive
resort:








Pursuing proposals which enable Blackpool to achieve its full potential as the
main centre at the heart of the Fylde Coast.
Identifying and promoting opportunities major new tourism attractions and new
visitor accommodation focused on the town centre and core of the resort.
Safeguarding and enhancing important longstanding attractions, and building on
the resorts heritage, distinctive character and appeal.
Addressing current imbalances in the housing market and reshaping more
balanced and healthy resort and residential neighbourhoods.
Rationalising and uplifting quality in a smaller, more stable and successful holiday
accommodation sector
Establishing a new Blackpool seafront and resort residential offer
Creating visually attractive and distinctive high quality public realm
Raising quality in all aspects of the visitor experience from arriving to leaving the
resort.
Policy R3
Resort Heritage
To exploit the resorts built, social, and cultural heritage to promote a unique and
distinctive Blackpool offer, combining this rich legacy with new innovation and
development and widening its appeal.
In particular, Blackpool Council will promote and pursue proposals to:
 Exploit its mass appeal as the worlds first seaside resort and country's
entertainment capital.
 Appraise the condition, and safeguard and develop the built heritage of key resort
buildings and infrastructure
 Enhance the traditional spectacle of Blackpool Illuminations with contemporary
light shows.
 Capitalise on the heritage of the Victorian Tramway
 Conserve the architectural character of key hotel frontages
 Characterise resort neighbourhoods and identify a local list of historic buildings
across the resort.
Policy R5
Blackpool Town Centre Strategy
Blackpool Council will promote and pursue the development, enhancement and rebranding of the town centre as the centre-piece of “The City on the Beach”, with its
own distinctive and unique offer which re-establishes it as the first choice retail,
business, cultural and leisure destination for Fylde Coast residents and for visitors.
Assistance will be provided to assemble sites and properties where required to
facilitate major redevelopment. An enhanced perception will depend on delivering
real change, focused on:
 It being the location for all major retail development.
 Strengthening the prime retail area, including high quality niche shopping.
 Reconnecting the town centre with the beach.
 Reconnecting and regenerating the different quarters of the town centre.
 Exploiting the heritage of key buildings and entertainment.
 Developing a Blackpool café culture.
 Growing an ancillary office sector.
 Improving access with vibrant welcoming multi-modal transport gateways.
 Enhancing enjoyment of streets, spaces and movement in the centre.
Policy R11 Town Centre Leisure Frontage
To promote and pursue comprehensive enhancement and appropriate
redevelopment of the Promenade Leisure Frontage as the main Town Centre
location for:
 Visitor Attractions
 Leisure Retailing
 Bars, Night Clubs and Entertainment
Development proposals must comprise attractive buildings with active frontages
which make a substantial impact in raising quality and supporting Blackpool's
regeneration.
ASSESSMENT
Any proposals for Blackpool Tower need to carefully balance modern leisure
expectations and wider regeneration aspirations whilst preserving and enhancing the
rich heritage of the building.
Access into and circulation around the building is currently very poor and the internal
layout is quite difficult to negotiate, particularly for wheelchairs and pushchairs. The
approved phase 1 works will improve the circulation around the ground floor and the
proposed phase 2 works would improve the legibility and access into the building and
around levels 5 and 6 and up to the Tower top. The top of the Tower currently serves
as a series of observation platforms, with the level 1 slab including 'The Walk of
Faith' which is a glass panel in the floor which patrons can stand on.
Impact on the Grade I Listed Building and the appearance in the Streetscene
1. External alterations comprising replacement shopfronts, ground floor windows,
partial demolition of canopy and installation of new glazed foyer entrance on
Promenade elevation and new ground floor windows, fascia and entrance doors on
Bank Hey Street elevation and installation of three louvres on Heywood Street
elevation.
The entrance to the Tower and Circus on the Promenade side have had a canopy
since the 1890's and this has been remodelled and extended over the years. The
existing canopy was constructed in the 1970's and runs the full length of the
Promenade elevation. Underneath the canopy, the Promenade side of the building at
level 1 is made up of the main entrance, Tower Lounge entrance, Circus entrance
and eight small independent kiosks. The kiosks on the Promenade side of the
building detract from the buildings overall appearance and their removal/ renovation
is welcomed in principle.
The removal of the canopy from the north and south annex would reveal five original
brick arches which would be refurbished and in principle, this would be very positive
in visually linking the ground floor with the upper floors. The Tower building has a
strong sense of symmetry and this is lost a little on the submitted plans as the Tower
Lounge entrance on the north annex does not read well with the shopfronts on the
south annex.
The principle of enclosing the remaining central canopy section with glazing and
recladding the supports is considered acceptable, although the preference would be
for its complete removal and the reinstatement of all of the original foyer arches. The
erection of a glazed windbreak projecting forward of the canopy is not considered
necessary and appears as an incongruous feature and the Head of Transportation
has requested that this element of the scheme be removed due to highway safety
and how the windbreak would obscure details of the Comedy Carpet scheme which
is currently being installed as part of the highway improvement works/Tower
Headland scheme.
The proposed high level banner signs on both the Promenade and Bank Hey Street
elevations would be intrusive and would obscure large parts of the elevation on
approach from the north and south. The Council is investing large sums of money in
repairing and restoring the elevations and fenestration, and these types of high level
banner signs would undermine those works.
The case officer is negotiating amendments to the scheme to improve the
appearance of the Promenade elevation with particular regard to the entrance into
the Tower Lounge and the main entrance canopy and the new shop fronts and to
remove the high level banners from the proposed scheme. Any amendments will be
reported in the update note.
The Bank Hey Street side of the building at level 1 is made up of a Tower entrance,
staff entrance, Circus entrance, Tower Lounge entrance and a number of
independent kiosks.
It is proposed to remove the two Kiosks between the Staff entrance and the Circus
entrance and to replace them with a new entrance into the Tower which would link
into the wider internal circulation space. The existing Bank Hey Street entrance (on
the corner of Bank Hey Street and Heywood Street) will become the dedicated
entrance to the new Tower Dungeon, which was granted consent under application
10/0999.
The Tower building has a strong vertical emphasis with the elevations deeply
modelled. The Bank Hey Street side of the Tower has 21, 13.2m tall brick pilasters,
most of which have either been overclad or removed at ground floor level. The
overcladding on the pilasters where the new entrance is proposed would be removed
and the pilasters repaired and retained on show. The refurbished pilasters and
narrow fascia would improve the vertical relationship of the ground floor with the
upper floors. The pilasters are the only remaining original fabric in this part of the
Bank Hey Street elevation as the kiosks have been modernised many times over the
years.
With the exception of the high level banner signs, proposals for Bank Hey Street are
considered to be acceptable. The detailed design of the new entrance doors and
windows, frames, fixings, materials and finishes on both Bank Hey Street and the
Promenade should be agreed by condition.
Much of the Heywood Street elevation was designed as a servicing elevation and
has little aesthetic merit compared to the other three elevations. There is already
plant on this elevation and many of the windows have been replaced by glazed
blocks and various grilles or bricked up. During a pre-application discussions it was
proposed to have these additional vents protruding through window openings on the
Promenade elevation. The applicant was advised that the vents should be
accommodated on the Heywood Street elevation as the Council has proposed a
fenestration restoration scheme for the building which is still under consideration by
the Government Office (reference 10/1119) and having these additional vents on the
Promenade elevation would compromise that scheme as well as being detrimental to
the appearance of the Tower buildings. The proposals for Heywood Street would not
be detrimental to the buildings significance and are considered acceptable.
2. Partial demolition of slab at Tower top and installation of glazed floor and glazed
wall on the west elevation and installation of a new bar and climbing wall at Tower
top levels 1,2 and 3.
The top of Blackpool Tower is constructed from concrete platforms and steel bars.
The proposals for Tower Top Level 1 (lowest level) include the removal of part of the
slab and cladding wall on the west elevation and replacement with a glazed wall and
glazed 'Airwalk' floor and taking out the existing 'Walk of Terror' and replacing it with
concrete slab. The proposed glazing which would replace the cladding and floor slab,
would be covered in a one-way 'Contravision' material which would be coloured to
match the Tower structure. The glazing would therefore not be obvious from the
ground floor and would not be detrimental to the appearance of the Tower. Details of
the materials and fixing should be agreed by condition.
Works to Tower Top Level 3 would involve overcladding the existing metal cladding
on the west elevation with a climbing wall and installing a translucent protective top
rail on top of the existing railings adjacent to the climbing wall.
It is considered that the proposals for the Tower Top are acceptable and would not
result in detrimental or irreversible changes to the historic structure and would not
materially affect the appearance of the structure.
Long term sustainability of Blackpool Tower and the wider resort
Blackpool's primary economic driver is Tourism and Blackpool Tower is not only an
instantly recognisable landmark building but is also an important element of the
town's tourism offer.
The proposals would provide new and improved attractions in the Tower. Merlin also
have a large portfolio of other tourist attractions such as Alton Towers, Legoland,
London Eye, Madam Tussauds, Thorpe Park and Sealife Centres.
The proposals in principle would help ensure the future economic sustainability of the
building and would support the wider regeneration aspirations of the Resort in terms
of improving the tourism offer, subject to the amendments which are still being
negotiated.
The new proposals would increase and improve the town's tourism offer in providing
a quality attraction and this is in accordance with saved Local Plan Policies, the
emerging Core Strategy and the Council's wider regeneration aspirations.
LEGAL AGREEMENT AND/OR DEVELOPER FINANCIAL CONTRIBUTION
None
HUMAN RIGHTS ACT
Under Article eight and Article one of the first protocol to the Convention on Human
Rights, a person is entitled to the right to respect for private and family life, and the
peaceful enjoyment of his/her property. However, these rights are qualified in that
they must be set against the general interest and the protection of the rights and
freedoms of others. There are no Human Rights issued raised by these proposals.
CRIME AND DISORDER ACT 1998
The contents of this report have been considered in the context of the Council's
general duty, in all its functions, to have regard to community safety issues as
required by section 17 of the Crime and Disorder Act 1998
ADDITIONAL BACKGROUND DOCUMENTS
Blackpool Council's Heritage Strategy 2006
Recommended Decision: Grant Permission
Conditions and Reasons
1.
The development hereby permitted shall be begun before the expiration of three
years from the date of this permission.
Reason: Required to be imposed pursuant to Section 91 of the Town and Country
Planning Act 1990 (as amended).
2.
Details of the external ramps and steps up to the entrances shall be submitted to
and agreed in writing by the Local Planning Authority prior to the commencement
of the development. The ramps and steps shall be installed in accordance with the
agreed scheme prior to the entrances affected first being brought back into use
and shall thereafter be retained as such.
Reason: In the interests of the appearance of the locality and the Grade I Listed
building, in accordance with saved Policies AS1, LQ1, RR1, RR7 and LQ9 of the
Blackpool Local Plan 2001-2016.
3.
The detailed design of the new entrance doors and windows, frames, fixings,
materials and finishes to be used on the Promenade and Bank Hey Street
elevations shall be submitted to and agreed in writing by the Local Planning
Authority prior to the development being commenced. The new entrance doors
and windows shall then be provided in accordance with the approved details and
shall thereafter be retained.
Reason: In the interests of the appearance of the exterior of the Grade I Listed
building, in accordance with saved Policies RR1, RR7, LQ1 and LQ9 of the
Blackpool Local Plan 2001-2016.
4.
The detailed design of the new shop fronts, frames, fixings, materials and finishes
to be used on the Promenade and Bank Hey Street elevations shall be submitted
to and agreed in writing by the Local Planning Authority prior to the development
being commenced. The new shop fronts shall then be provided in accordance with
the approved details and shall thereafter be retained.
Reason: In the interests of the appearance of the exterior of the Grade I Listed
building, in accordance with saved Policies RR1, RR7, LQ1 and LQ9 of the
Blackpool Local Plan 2001-2016.
REASONS FOR RECOMMENDED DECISION
1
The works proposed have been considered in relation to Policies LQ9, RR1, RR7,
SR5, SR8, LQ9 and AS1 of the Blackpool Local Plan 2001-2016 and it is considered
that the proposals would not be harmful to the character and integrity of the Listed
Building and would aid future restoration projects at Blackpool Tower. The proposal is
therefore in accordance with these Policies and there are no other material
considerations which weigh sufficiently against the proposal such as to warrant
refusal.
Advice Notes to Developer
1.
Please note this approval relates specifically to the details indicated on the
approved plans and documents, and to the requirement to satisfy all conditions of
the approval. Any variation from this approval need to be agreed in writing by the
Local Planning Authority prior to works commencing and may require the
submission of a revised application. Any works carried out without such written
agreement or approval would render the development as unauthorised and liable
to legal proceedings.
COMMITTEE DATE: 29/11/2010
Application Reference:
10/1293
WARD:
DATE REGISTERED:
LOCAL PLAN ALLOCATION:
APPLICATION TYPE:
APPLICANT:
Talbot
25/10/10
Principal Retail Core Leisure Zone/Resort Core
Listed Building Consent
Merlin Entertainments (Blackpool) Ltd
PROPOSAL:
External alterations comprising replacement shopfronts, ground floor
windows, partial demolition of canopy and installation of new glazed foyer
entrance on Promenade, new fascia and entrance doors on Bank Hey
Street elevation and installation of three louvres on Heywood Street
elevation. Partial demolition of slab at tower top, installation of glazed
floor/ wall on west elevation and installation of a bar and climbing wall at
tower top levels 1, 2 and 3. Internal alterations and partial demolition of
ceiling above cafe at floor level 5 and installation of 4D cinema, new retail
area and 'history walk' at floor levels 5 and 6.
LOCATION:
BLACKPOOL TOWER, BANK HEY STREET, BLACKPOOL, FY1 4BJ
----------------------------------------------------------------------------------------------------------------CASE OFFICER
Miss C Johnson
INTRODUCTION
Blackpool Council became the owners of Blackpool Tower earlier in 2010 and the
Council has appointed Merlin Entertainments Group as the operators.
The case officer and the Council's Built Heritage Manager have been involved in a
number of pre-application meetings with the agent and English Heritage in relation to
these proposals, including a tour of the relevant areas of the building.
General maintenance and repairs to the building and the Tower structure are
underway and the new operators took over in early November 2010 and work has
started already on proposals approved under Listed Building Consents 10/0861 and
10/0999. It is anticipated that the works proposed in this application would be
completed by September 2011.
SITE DESCRIPTION
The application relates to Blackpool Tower, a Grade I Listed Building, dated 1891-4
and first listed in 1973. Situated in the Town Centre, bounded by Victoria Street,
Bank Hey Street, Heywood Street and the Promenade, the Tower is a national
landmark occupying a prominent position on Blackpool's skyline. It is built in open
steel girders and tapers in from approximately 30 metres wide at its base, to
approximately 10 metres under the main viewing gallery. The top is approximately
158 metres from ground level and at its base is a brick built entertainment complex
on six levels.
Attractions in the Tower include the Blackpool Tower Ballroom, Circus, Tower
Lounge, Jungle Jims play area, Jurassic Walk and an Aquarium. The aquarium and
Jurassic Walk is due to be removed and a new Blackpool Tower Dungeon attraction
installed.
The surrounding area is predominantly retail in character and the Local Plan
designation for this area is part Principal Retail Core (Bank Hey Street side), part
Leisure Zone/Resort Core (Promenade side).
The Committee will have visited the Tower on 29th November 2010.
DETAILS OF PROPOSAL
Members will recall a previous Listed Building Consent application for phase 1 works
at the Tower (reference 10/0999) for the installation of entrance ramps to Bank Hey
Street elevation, installation of air handling unit and associated structures to
Heywood Street and internal alterations, including the removal of the aquarium,
Jurassic Walk and 3D cinema, to improve circulation and to form new dungeon
attraction and installation of new themed signage on the Bank Hey Street elevation.
This application is for proposed phase 2 works which include external alterations
comprising replacement shopfronts, ground floor windows, partial removal of canopy
and installation of new glazed foyer entrance on Promenade, new fascia and
entrance doors on Bank Hey Street elevation and installation of three louvres on
Heywood Street elevation. Partial demolition of a slab at tower top, installation of
glazed floor/ wall on west elevation and installation of a bar and climbing wall at
tower top levels 1, 2 and 3. Internal alterations and partial demolition of ceiling above
cafe at floor level 5 and installation of 4D cinema, new retail area and 'history walk' at
floor levels 5 and 6.
This application is supported by a Design and Access Statement, a Heritage Impact
Assessment, and a Planning Statement. A Conservation Management Plan is being
re-drafted following comments from The Victorian Society and English Heritage on
the previous Listed Building Consent application 10/0999.
An application for Planning Permission for the external works has also been
submitted and will appear elsewhere on this agenda (reference 10/1292)
MAIN PLANNING ISSUES
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Impact on the Grade I Listed Building
Long term sustainability of Blackpool Tower and the wider resort
CONSULTATIONS
Blackpool Civic Trust: No representations made at the time of writing this report.
English Heritage: No representations made at the time of writing this report.
The Victorian Society is broadly supportive of the aims that inform the proposals but
feels the supporting information is inadequate and object to some of the detailed
proposals. The building owners should be actively managing the future of the building
rather than the lessees. The starting point for this should be the production of a
comprehensive Conservation Management Plan and master plan for the Tower.
Alterations to the external facades: In the absence of a Conservation Management
Plan (CMP) and plans showing the phasing and significance of each part of the
building it is difficult to work out the implications of the proposals. The Victorian
Society is concerned about the lack of detail in the designs for the shopfronts and the
lack of information about the original design. The detailed designs based on historic
form of the shopfronts should be agreed before work starts. The standard aluminium
graphic panels proposed do not relate to the architecture of the Tower.
Proposed works to foyer entrance on Promenade elevation: The Society does not
object in principle to the removal of part of the foyer and works to enclose the rest of
it. However, it considers that a detailed design of the proposed foyer needs to be
produced that reflects the arcading of this facade. The current proposal does not
appear to relate sufficiently to the character of the existing architecture.
Alterations to the Tower top: No information has been presented about the historic
form of the Tower glazing. Additionally there is very little information given about the
proposed form and materials of the replacement glazing at the Tower top. It is difficult
for the Society to form a view on the acceptability of the proposals without this
information. However, the Society does not disagree in principle to the removal of
part of the concrete floor slab and its replacement in glass.
Proposed works to the Tower Ascent Arcade: The Society does not object in
principle to the removal of part of the 1970's mezzanine. However, it is vital that the
extent of any remaining parts of the Oriental Lounge is ascertained. No removal of
historic material should be permitted that would jeopardise the possible future
reinstatement of this decorative scheme.
Conclusion: No further consents should be issued until a comprehensive CMP is in
place; the Society does not want to see piecemeal works, but a properly thought out
strategy. They accept the majority of changes in principle, but object to some aspects
of the detailed design. A comprehensive CMP, phasing and significance plans and a
master plan should be produced and consulted on before any other proposals are
developed. The need to achieve short term improvements is understood, but it is
disappointing that the proposals have been presented prematurely and in the
absence of comprehensive historical information and a long term strategy.
Case Officer response:
The Victorian Society made critical comments on the Draft Conservation
Management Plan which was submitted with phase 1 proposals for the Tower earlier
this year (reference 10/0999). The draft document has not been submitted for this
phase of works as it is being revised following the criticism from both The Victorian
Society and English Heritage.
No historic detail for the form of the original kiosk/shop frontages is available and
amendments are currently being negotiated. Amendments to the canopy are also still
being negotiated.
No historic detail for original glazing systems for the Tower Top is available, but the
Council recognises more detail on replacement fabric is required and this would be
agreed by condition.
The Heritage Impact Assessment suggests that none of the Matcham designed
Chinese Lounge interior at Levels 5 and 6 remain. However, a condition requiring the
retention of any uncovered Chinese Lounge decoration could form part of this Listed
Building Consent.
Any further representations made will be reported in the update note.
PUBLICITY AND REPRESENTATIONS
Site Notices displayed 02/11/2010
Press notice published 04/11/2010
No representations have been made as a result of the public consultation.
Any representations received will be reported in the update note.
NATIONAL PLANNING POLICY AND GUIDANCE
PPS 5
Planning and the Historic Environment
The policies in this PPS are a material consideration which must be taken into
account in development management decisions, where relevant. Therefore the
development management policies in the PPS can be applied directly by the
decision-maker when determining whether development should proceed.
Policy HE7 Policy Principles Guiding the Determination of Application for
Consent Relating to all Heritage Assets
In considering the impact of a proposal on any heritage asset, local planning
authorities should take into account the particular nature of the significance of the
heritage asset and the value that it holds for this and future generations. This
understanding should be used by the local planning authority to avoid or minimise
conflict between the heritage assets conservation and any aspect of the proposals.
Policy HE9 Additional Policy Principles Guiding the Consideration of
Applications for Consent Relating to Designated Heritage Assets
Where a proposal has a harmful impact on the significance of a designated heritage
asset which is less than substantial harm, in all cases local planning authorities
should:
(i) weigh the public benefit of the proposal (for example, that it helps to secure the
optimum viable use of the heritage asset in the interests of its long-term
conservation) against the harm; and
(ii) recognise that the greater the harm to the significance of the heritage asset the
greater the justification will be needed for any loss.
Policy HE11 Enabling Development
Local planning authorities should assess whether the benefits of an application for
enabling development to secure the future conservation of a heritage asset outweigh
the disbenefits of departing from the development plan (having regard to the
requirements of section 38(6) of the Planning and Compulsory Purchase Act 2004) or
from national policies, taking into account whether:
• it will materially harm the significance of the heritage asset or its setting
• it will avoid detrimental fragmentation of management of the heritage asset
• it will secure the long term future of the heritage asset and, where applicable, its
continued use for a purpose sympathetic to its conservation
• it is necessary to resolve problems arising from the inherent needs of the heritage
asset, rather than the circumstances of the present owner, or the purchase price paid
• there is a source of funding that might support the heritage asset without the need
for enabling development
• the level of development is the minimum necessary to secure the future
conservation of the heritage asset and of a design and type that minimises harm to
other public interests.
Note that these criteria are listed as a starting point; what is a material consideration
will always depend on the circumstances of the individual case and this list is not
comprehensive.
SAVED POLICIES: BLACKPOOL LOCAL PLAN 2001-2016
Policy LQ9 Listed Buildings
Policy LQ9 states that proposals for the repair, alteration or extension of a Listed
Building will only be granted consent where:
(i) the essential character of the building is retained, including any features of
architectural or historic interest which contribute to the reasons for its listing.
(ii) the works proposed make use of original and/or sympathetic materials which
match or are in keeping with those found on the Listed Building.
Policy RR1 Visitor Attractions
Within the defined Resort Core the Council will permit and encourage proposals for
the development, extension or improvement of tourism attractions that draw large
numbers of visitors provided that such development meets all of the following criteria:
(a) the proposal makes a strong positive contribution to the physical and economic
regeneration of the Resort Core, targeting, as far as possible, those sites in greatest
need of investment and renewal.
(b) the proposal would increase the range and quality of facilities available to the
visitor and contributes to safeguarding and growing Blackpool's visitor market.
(c) the development proposal and associated activities including trip generation can
be accommodated satisfactorily in a manner that relates well to adjoining uses; other
existing visitor attractions and facilities, holiday and residential accommodation.
(d) new attractions should reinforce the existing concentrations of such uses rather
that leading to a dispersed distribution of attractions.
Policy RR7 Promenade Frontages Within the Resort Core
Development proposals, including changes of use, to introduce contemporary new
visitor attractions, accommodation and facilities on the Promenade frontage within
the Resort Core will be permitted and encouraged provided that they;
(a) comprise high quality buildings of an appropriate scale.
(b) provide an 'active' frontage to the Promenade.
(c) protect and enhance key pedestrian routes into the adjoining Resort
Neighbourhoods..
(d) reinforce the existing concentrations of such uses rather than leading to a
dispersed distribution of attractions.
(e) enhance the amenity, character and appearance of the area.
Proposals must be supported by detailed assessments of all significant impacts
associated with the proposed development.
Policy SR5 Principal Retail Core
Proposals for uses other than the following will not be permitted within the Principal
Retail Core:
(a) retail uses; financial and professional services; restaurants and cafes.
(b) appropriate leisure, residential, hotel or office uses at upper floor level.
(c) civic space/open space.
Proposals, which would be detrimental to the retail function/character of these main
shopping streets, will not be permitted. Public realm improvements in the area will be
promoted and where appropriate contributions secured from development.
Policy SR8 Leisure Zone
This zone is located in the Resort Core where visitor attractions/tourism development
proposals will be permitted subject to Policy RR1. This zone will also be promoted as
the main location for the following uses:
(a) public houses, bars and night clubs.
(b) restaurants and cafes.
Contributions will be sought from all development towards the Quality Management
Initiative including CCTV, wardens etc. The acceptability of proposals will have
particular regard to public disorder issues for late night opening. New developments
should include active frontage uses at ground floor level.
Policy AS1 General Development Requirements
New development will only be permitted where the access, travel and safety needs of
all affected by the development are met as follows:
(a) convenient, safe and pleasant pedestrian access is provided
EMERGING PLANNING POLICY
Core Strategy Preferred Option (April 2010)
Policy S6
Quality of Place
To uplift and enhance the quality of buildings, townscape and landscapes across
Blackpool by:
 Requiring a high standard of design to ensure all new developments make a
positive contribution to the quality, attractiveness, safety and security of their
surroundings.
 Complementing and enhancing the character and distinctiveness of local
neighbourhoods.
 Protecting, conserving and enhancing the heritage and appearance of important
existing buildings and their settings.
 Ensuring new developments as far as practicable retain and provide appropriate
new landscape and biodiversity benefits.
 Sustaining and enhancing the biodiversity of protected species and habitats.
 Protecting the appearance and environmental quality of Blackpool's Promenade
‘shop window’ seafront, coast and foreshore.
 Safeguarding its separate identity, defining the limits of development, and
preventing its merging with neighbouring settlements.
 Safeguarding, improving and creating an enhanced network of green
infrastructure, with high quality public realm.
Policy R1
Resort Renaissance
To physically and economically regenerate Blackpool's resort and town centre core
as the City on the Beach and to reshape and re-invigorate the adjoining holiday
accommodation and residential neighbourhoods. The focus will be on identifying and
supporting major development opportunities which have the potential to become selfsustaining wider catalysts for regeneration to create a sustainable and inclusive
resort:
 Pursuing proposals which enable Blackpool to achieve its full potential as the
main centre at the heart of the Fylde Coast.
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Identifying and promoting opportunities major new tourism attractions and new
visitor accommodation focused on the town centre and core of the resort.
Safeguarding and enhancing important longstanding attractions, and building on
the resorts heritage, distinctive character and appeal.
Addressing current imbalances in the housing market and reshaping more
balanced and healthy resort and residential neighbourhoods.
Rationalising and uplifting quality in a smaller, more stable and successful holiday
accommodation sector
Establishing a new Blackpool seafront and resort residential offer
Creating visually attractive and distinctive high quality public realm
Raising quality in all aspects of the visitor experience from arriving to leaving the
resort.
Policy R3
Resort Heritage
To exploit the resorts built, social, and cultural heritage to promote a unique and
distinctive Blackpool offer, combining this rich legacy with new innovation and
development and widening its appeal.
In particular, Blackpool Council will promote and pursue proposals to:
 Exploit its mass appeal as the world’s first seaside resort and country's
entertainment capital.
 Appraise the condition, and safeguard and develop the built heritage of key resort
buildings and infrastructure
 Enhance the traditional spectacle of Blackpool Illuminations with contemporary
light shows.
 Capitalise on the heritage of the Victorian Tramway
 Conserve the architectural character of key hotel frontages
 Characterise resort neighbourhoods and identify a local list of historic buildings
across the resort.
Policy R5
Blackpool Town Centre Strategy
Blackpool Council will promote and pursue the development, enhancement and rebranding of the town centre as the centre-piece of “The City on the Beach”, with its
own distinctive and unique offer which re-establishes it as the first choice retail,
business, cultural and leisure destination for Fylde Coast residents and for visitors.
Assistance will be provided to assemble sites and properties where required to
facilitate major redevelopment. An enhanced perception will depend on delivering
real change, focused on:
 It being the location for all major retail development.
 Strengthening the prime retail area, including high quality niche shopping.
 Reconnecting the town centre with the beach.
 Reconnecting and regenerating the different quarters of the town centre.
 Exploiting the heritage of key buildings and entertainment.
 Developing a Blackpool café culture.
 Growing an ancillary office sector.
 Improving access with vibrant welcoming multi-modal transport gateways.
 Enhancing enjoyment of streets, spaces and movement in the centre.
Policy R11 Town Centre Leisure Frontage
To promote and pursue comprehensive enhancement and appropriate
redevelopment of the Promenade Leisure Frontage as the main Town Centre
location for:
 Visitor Attractions
 Leisure Retailing
 Bars, Night Clubs and Entertainment
Development proposals must comprise attractive buildings with active frontages
which make a substantial impact in raising quality and supporting Blackpool's
regeneration.
ASSESSMENT
Any proposals for Blackpool Tower need to carefully balance modern leisure
expectations and wider regeneration aspirations whilst preserving and enhancing the
rich heritage of the building.
Access into and circulation around the building is currently very poor and the internal
layout is quite difficult to negotiate, particularly for wheelchairs and pushchairs. The
approved phase 1 works will improve the circulation around the ground floor and the
proposed phase 2 works would improve the legibility and access into the building and
around levels 5 and 6 and up to the Tower top. The top of the Tower currently serves
as a series of observation platforms, with the level 1 slab including 'The Walk of
Faith' which is a glass panel in the floor which patrons can stand on.
The ceiling above the 1894 cafe at level 5 is a mezzanine floor at level 6, between
the tower legs. Level 6 is currently used as an arcade which is enclosed on all sides
and lift access to Tower Top. The tower legs are clad on both levels 5 and 6.
Impact on the Grade I Listed Building
1. External alterations comprising replacement shopfronts, ground floor windows,
partial demolition of canopy and installation of new glazed foyer entrance on
Promenade elevation and new ground floor windows, fascia and entrance doors on
Bank Hey Street elevation and installation of three louvres on Heywood Street
elevation.
The entrance to the Tower and Circus on the Promenade side have had a canopy
since the 1890s and this has been remodelled and extended over the years. The
existing canopy was constructed in the 1970s and runs the full length of the
Promenade elevation. Underneath the canopy, the Promenade side of the building at
level 1 is made up of the main entrance, Tower Lounge entrance, Circus entrance
and eight small independent kiosks. The kiosks on the Promenade side of the
building detract from the buildings overall appearance and their removal/ renovation
is welcomed in principle.
The removal of the canopy from the north and south annex would reveal five original
brick arches which would be refurbished and in principle, this would be very positive
in visually linking the ground floor with the upper floors. The Tower building has a
strong sense of symmetry and this is lost a little on the submitted plans as the Tower
Lounge entrance on the north annex does not read well with the shopfronts on the
south annex.
The principle of enclosing the remaining central canopy section with glazing and
recladding the supports is considered acceptable, although the preference would be
for its complete removal and the reinstatement of all of the original foyer arches. The
erection of a glazed windbreak projecting forward of the canopy is not considered
necessary and appears as an incongruous feature and although not a consideration
for this application, the Head of Transportation, when consulted on the equivalent
Planning Application (reference 10/1292) has requested that this element of the
scheme be removed due to highway safety and has commented that the wind break
would obscure details of the Comedy Carpet scheme which is currently being
installed as part of the highway improvement works/Tower Headland scheme.
The proposed high level banner signs on both the Promenade and Bank Hey Street
elevations would be intrusive and would obscure large parts of the elevation on
approach from the north and south. The Council is investing large sums of money in
repairing and restoring the elevations and fenestration, and these types of high level
banner signs would undermine those works.
The case officer is negotiating amendments to the scheme to improve the
appearance of the Promenade elevation with particular regard to the entrance into
the Tower Lounge and the main entrance canopy and the new shop fronts and to
remove the high level banners from the proposed scheme. Any amendments will be
reported in the update note.
The Bank Hey Street side of the building at level 1 is made up of a Tower entrance,
staff entrance, Circus entrance, Tower Lounge entrance and a number of
independent kiosks.
It is proposed to remove the two Kiosks between the Staff entrance and the Circus
entrance and to replace them with a new entrance into the Tower which would link
into the wider internal circulation space. The existing Bank Hey Street entrance (on
the corner of Bank Hey Street and Heywood Street) will become the dedicated
entrance to the new Tower Dungeon, which was granted consent under application
10/0999.
The Tower building has a strong vertical emphasis with the elevations deeply
modelled. The Bank Hey Street side of the Tower has 21, 13.2m tall brick pilasters,
most of which have either been overclad or removed at ground floor level. The
overcladding on the pilasters where the new entrance is proposed would be removed
and the pilasters repaired and retained on show. The refurbished pilasters and
narrow fascia would improve the vertical relationship of the ground floor with the
upper floors. The pilasters are the only remaining original fabric in this part of the
Bank Hey Street elevation as the kiosks have been modernised many times over the
years.
With the exception of the high level banner signs, proposals for Bank Hey Street are
considered to be acceptable. The detailed design of the new entrance doors and
windows, frames, fixings, materials and finishes on both Bank Hey Street and the
Promenade should be agreed by condition.
It is not clear whether any decorative terracotta work is behind the existing kiosk
fascias. A condition requiring the repair and recording of any decorative terracotta
work behind the existing fascia prior to the installation of a new fascia is considered
necessary.
Much of the Heywood Street elevation was designed as a servicing elevation and
has little aesthetic merit compared to the other three elevations. There is already
plant on this elevation and many of the windows have been replaced by glazed
blocks and various grilles or bricked up. During pre-application discussions it was
proposed to have these additional vents protruding through window openings on the
Promenade elevation. The applicant was advised that the vents should be
accommodated on the Heywood Street elevation as the Council has proposed a
fenestration restoration scheme for the building which is still under consideration by
the Government Office (reference 10/1119) and having these additional vents on the
Promenade elevation would compromise that scheme as well as being detrimental to
the appearance of the Tower buildings. The proposals for Heywood Street would not
be detrimental to the buildings significance and are considered acceptable.
2. Partial demolition of slab at Tower top and installation of glazed floor and glazed
wall on the west elevation and installation of a new bar and climbing wall at Tower
top levels 1,2 and 3.
The top of Blackpool Tower is constructed from concrete platforms and steel bars.
The proposals for Tower Top Level 1 (lowest level) include the removal of part of the
slab and cladding wall on the west elevation and replacement with a glazed wall and
glazed 'Airwalk' floor and taking out the existing 'Walk of Terror' and replacing it with
concrete slab. The proposed glazing which would replace the cladding and floor slab,
would be covered in a one-way 'Contravision' material which would be coloured to
match the Tower structure. The glazing would therefore not be obvious from the
ground floor and would not be detrimental to the appearance of the Tower. Details of
the materials and fixing should be agreed by condition.
Tower Top Level 2 would be refurbished and redecorated and a 'Skyline' graphic
would be applied to sheet metal cladding.
Works to Tower Top Level 3 would involve overcladding the existing metal cladding
on the west elevation with a climbing wall and installing a translucent protective top
rail on top of the existing railings adjacent to the climbing wall. The internal area of
Level 3 would be refurbished as a bar area with seating with a moveable bar which
would be stored in the existing storage area.
It is considered that the proposals for the Tower Top are acceptable and would not
result in detrimental or irreversible changes to the historic structure.
3. Internal alterations and partial demolition of ceiling above cafe at floor level 5 and
installation of 4D cinema, new retail area and 'history walk' at floor levels 5 and 6 and
installation of a stairlift at Level 3.
The 1894 Restaurant sits between the Tower legs, above the circus at level 5 and
has been altered many times over the years. A mezzanine floor has been installed
above the restaurant (level 6) and this is currently used as an arcade and
access/queuing area for the Tower lift. The restaurant and arcade make no
contribution to the significance of the building.
The proposal involves the removal of theming and redecoration of the 1884
Restaurant, installing a new auditorium between the south east and south west legs
of the tower on levels 5 and 6, creating a new curved partition in the play area to
allow for queues, removal of part of the mezzanine floor between levels 5 and 6 and
stripping back the south west Tower leg to expose the steel structure.
Currently the Tower Ascent Arcade at Level 6 where the upper area of the cinema
would be sited, is poorly arranged and decorated and feels cramped and
claustrophobic as the ceilings are very low. There is no original decoration and the
space currently offers nothing to the historic significance of the Tower. Moving out of
the arcade to the east and along corridors to the Tower Top lifts, the Windows on
Bank Hey Street have been covered over making the building difficult to read
internally and detrimentally impacting on the external appearance of the Bank Hey
Street elevation.
At level 6, the theming would be removed and the space redecorated, a new bridge
over the 1884 Restaurant to the Tower tops lifts would be created and the top arch of
windows overlooking Bank Hey Street would be uncovered and a new retail area and
"History Walk" would be provided.
It appears that all of Matcham's Oriental decorative scheme was removed in the
1960s and the mezzanine floor between Levels 5 and 6 was installed in the 1980s, at
the same level as a former bridge which had serviced the Tower Top lifts. The
removal of the mezzanine floor on the east side would not be detrimental to the
significance of the space and would enhance the Bank Hey Street side of the
restaurant by giving back vertical views between Levels 5 and 6. The Jungle Jims
play area would remain largely unaltered apart from the new queuing area for the 4D
cinema, and this wouldn't interfere with the existing play space or obscure any
historic fabric and the freestanding partition wall would be reversible and would not
result in any works to the steel, iron and glass structure.
The operators have a 4D cinema at their London Eye attraction which has proved to
be very popular and its purpose is to build up anticipation and excitement whilst
customers queue. The new 4D cinema auditorium would sit between the Tower's
southern legs where they meet the main stick, under the arch. Along with the
exposure of the south western leg the proposal would increase the legibility of the
Tower structure and give patrons a greater appreciation for the listed building.
The uncovering and refurbishment of windows at Level 6 and installing a "History
Walk" is welcomed and would improve the overall interpretation of the building and
give people a better understanding of the heritage asset. It is considered that
removing parts of the mezzanine and re-exposing the Tower legs, would contribute
the significance of this space and the Tower building as well as improving the visitor
experience of the Tower top ride.
The details of a stairlift at Level 3 should be agreed by condition.
A condition requiring a full photographic survey of the building as existing is
considered necessary.
The proposals in principle would help ensure the future economic sustainability of the
building and would support the wider regeneration aspirations of the Resort in terms
of improving the tourism offer, subject to the amendments which are still being
negotiated.
Long term sustainability of Blackpool Tower and the wider resort
Blackpool's primary economic driver is Tourism and Blackpool Tower is not only an
instantly recognisable landmark building but is also an important element of the
town's tourism offer.
The proposals would provide new and improved attractions in the Tower. Merlin also
have a large portfolio of other tourist attractions such as Alton Towers, Legoland,
London Eye, Madam Tussauds, Thorpe Park and Sealife Centres.
The new proposals would increase and improve the town's tourism offer in providing
a quality attraction and this is in accordance with saved Local Plan Policies, the
emerging Core Strategy and the Council's wider regeneration aspirations.
This application must be referred to the Secretary of State. Committee is requested
to indicate that it is minded to grant consent subject to the amendments being
received.
LEGAL AGREEMENT AND/OR DEVELOPER FINANCIAL CONTRIBUTION
None
HUMAN RIGHTS ACT
Under Article eight and Article one of the first protocol to the Convention on Human
Rights, a person is entitled to the right to respect for private and family life, and the
peaceful enjoyment of his/her property. However, these rights are qualified in that
they must be set against the general interest and the protection of the rights and
freedoms of others. There are no Human Rights issued raised by these proposals.
CRIME AND DISORDER ACT 1998
The contents of this report have been considered in the context of the Council's
general duty, in all its functions, to have regard to community safety issues as
required by section 17 of the Crime and Disorder Act 1998
ADDITIONAL BACKGROUND DOCUMENTS
Blackpool Council's Heritage Strategy 2006
Recommended Decision: Defer for consideration by the Secretary of State for
Communities and Local Government.
Conditions and Reasons
1.
The development hereby permitted shall be begun before the expiration of three
years from the date of this permission.
Reason: Required to be imposed pursuant to Section 18 of the Planning (Listed
Buildings and Conservation Areas) Act 1990 (as amended).
2.
Details of the decorative colour scheme and finishes for the interiors which are
affected by the works hereby approved shall be submitted to and agreed in writing
by the Local Planning Authority prior to the works being commenced. The scheme
shall be undertaken in accordance with the agreed details prior to each affected
area first being brought back into use.
Reason: In the interests of the appearance of the interior of the Grade I Listed
building, in accordance with saved Policy LQ9 of the Blackpool Local Plan 20012016.
3.
No works shall take place on the site until the applicant or their agent, has
undertaken a full photographic survey of the building, including;


the 1894 Cafe and Jungle Jims;
the arcade and Tower lift waiting area at level 6;.



the Promenade and Bank Hey Street elevations;
the Tower Top Levels 1, 2 and 3;
The interior of the kiosks on both the Promenade and Bank Hey Street which
are included in the scheme
This Level 3 survey shall be submitted to and agreed in writing by the Local
Planning Authority prior to the works hereby approved, first being commenced.
A further photographic survey shall be undertaken during the demolition works.
Reason: To ensure and safeguard the recording and inspection of matters of
historical importance associated with the building, in accordance with saved Policy
LQ9 of the Blackpool Local Plan 2001-2016.
4.
Details of the external ramps and steps up to the entrances shall be submitted to
and agreed in writing by the Local Planning Authority prior to the commencement
of the development. The ramps and steps shall be installed in accordance with the
agreed scheme prior to the entrances affected first being brought back into use.
Reason: In the interests of the appearance of the locality and the Grade I Listed
building, in accordance with saved Policy LQ9 of the Blackpool Local Plan 20012016.
5.
Any new air handling plant or ducting shall not penetrate ceilings or walls through
new openings unless otherwise agreed in writing with the Local Planning Authority
prior to the commencement of the works hereby approved.
Reason: In the interests of the appearance of the Grade I Listed building, in
accordance with saved Policy LQ9 of the Blackpool Local Plan 2001-2016.
6.
Details of materials to be used on the Promenade canopy and Promenade and
Bank Hey Street fascias shall be submitted to and agreed in writing by the Local
Planning Authority prior to the development being commenced.
Reason: In the interests of the appearance of the exterior of the Grade I Listed
building, in accordance with saved Policy LQ9 of the Blackpool Local Plan 20012016.
7.
Details of the glazing materials to be used for the 'Airwalk' at Tower Top Level 1
and the method of fixing shall be submitted to and agreed in writing by the Local
Planning Authority prior to the development being commenced. The new agreed
glazing materials shall then be provided in accordance with the approved details
and shall thereafter be retained.
Reason: In the interests of the appearance of the Grade I Listed building, in
accordance with saved Policy LQ9 of the Blackpool Local Plan 2001-2016.
8.
The Local Planning Authority shall be notified in writing prior to the
commencement of works at Levels 5 and 6.
Reason: To determine whether there remains any of the Matcham decorative
'Chinese Lounge' in accordance with saved Policy LQ9 of the Blackpool Local Plan
2001-2016.
9.
Details of the design, location and fixings of the stair lift at Level 3 shall be
submitted to and agreed in writing by the Local Planning Authority prior to the
works hereby approved being commenced. The new stair lift shall then be
provided in accordance with the approved details and shall thereafter be retained.
Reason: In the interests of the appearance of the decorative interior and the
historical significance of the Grade I Listed building, in accordance with saved
Policy LQ9 of the Blackpool Local Plan 2001-2016.
10.
The detailed design of the new entrance doors and windows, frames, fixings,
materials and finishes to be used on the Promenade and Bank Hey Street
elevations shall be submitted to and agreed in writing by the Local Planning
Authority prior to the development being commenced. The new entrance doors
and windows shall then be provided in accordance with the approved details and
shall thereafter be retained.
Reason: In the interests of the appearance of the exterior of the Grade I Listed
building, in accordance with saved Policy LQ9 of the Blackpool Local Plan 20012016.
11.
The detailed design of the new shop fronts, frames, fixings, materials and finishes
to be used on the Promenade and Bank Hey Street elevations shall be submitted
to and agreed in writing by the Local Planning Authority prior to the development
being commenced. The new shop fronts shall then be provided in accordance with
the approved details and shall thereafter be retained.
Reason: In the interests of the appearance of the exterior of the Grade I Listed
building, in accordance with saved Policy LQ9 of the Blackpool Local Plan 20012016.
REASONS FOR RECOMMENDED DECISION
1
The works proposed have been considered in relation to Policies LQ9, RR1, RR7,
SR5, SR8 and AS1 of the Blackpool Local Plan 2001-2016 and it is considered that
the proposals would not be harmful to the character and integrity of the Listed
Building and would aid future restoration projects at Blackpool Tower. The proposal
is therefore in accordance with these Policies and there are no other material
considerations which weigh sufficiently against the proposal such as to warrant
refusal.
Advice Notes to Developer
1.
Please note this approval relates specifically to the details indicated on the
approved plans and documents, and to the requirement to satisfy all conditions of
the approval. Any variation from this approval need to be agreed in writing by the
Local Planning Authority prior to works commencing and may require the
submission of a revised application. Any works carried out without such written
agreement or approval would render the development as unauthorised and liable
to legal proceedings.
COMMITTEE DATE: 29/11/2010
Application Reference:
10/1373
WARD:
DATE REGISTERED:
LOCAL PLAN ALLOCATION:
Talbot
09/11/10
Town Centre Boundary Winter Gardens Defined Inner
Area
Full Planning Permission
Estates & Development, Blackpool Council
APPLICATION TYPE:
APPLICANT:
PROPOSAL:
Installation of replacement entrance doors to Coronation Street.
LOCATION:
WINTER GARDENS, CHURCH STREET, BLACKPOOL, FY1 1HW
----------------------------------------------------------------------------------------------------------------CASE OFFICER
Miss C Johnson
INTRODUCTION
Blackpool Council became the owners of the Winter Gardens earlier in 2010 and this
is the first time the complex has been in public ownership and control. The former
owners, Leisure Parcs Ltd will continue to manage the complex for a further two
years.
Many areas of the Winter Gardens complex are in a poor state of repair and the case
officer and the Council's Built Heritage Manager have been involved in a number of
pre-application meetings with the agent and other Council departments in relation to
proposals for repair and refurbishment and reinstatement of lost features within the
key circulation areas.
This application and an associated Listed Building Consent application is phase two
of a larger project to upgrade and revitalise the Winter Gardens complex.
SITE DESCRIPTION
The application relates to the Winter Gardens which is a Grade II* Listed Building, in
a block bounded by Church Street, Leopold Grove, Adelaide Street, Coronation
Street, Adelphi Street and Carter Street.
The Winter Gardens complex dates back to the 1870s and the site was extended and
developed up until 1939. The main areas within the complex are the vestibule, Floral
Hall, Ambulatory and Pavilion Theatre, Arena, Opera House, Empress Ballroom, The
Olympia and the Spanish Hall suite which comprises the Spanish Hall, Galleon Bar,
Renaissance Room and Baronial Hall.
This application concerns the main entrance on Coronation Street which is often only
open to the public when there are events on within the complex.
The Coronation Street entrance leads into The Grand Vestibule, which was the area
originally used for gardens when the building first opened in 1878. It then became the
site of the Palm house, a three storey structure, and finally it was converted to its
current use with a grand foyer space on the ground floor and retail units to either side
of the entrance. The Spanish Hall is located on the floor above the Grand Vestibule.
The most important, distinctive and significant elements of the Grand Vestibule are
the blue and white faience façade to Coronation street, and the entrance foyer. The
lettered faience frontage became one of the great architectural icons of Blackpool.
The Committee will have visited the Winter Gardens on 29th November 2010.
DETAILS OF PROPOSAL
Installation of replacement entrance doors to Coronation Street.
MAIN PLANNING ISSUES


Impact on the Grade II* Listed Building and appearance in the streetscene
Long term sustainability of the Winter Gardens complex and the wider resort
CONSULTATIONS
None
PUBLICITY AND REPRESENTATIONS
Site Notices displayed 16/11/2010
Press notice has yet to be published
No representations received at the time of writing this report, any representations
received will be reported in the update note.
NATIONAL PLANNING POLICY AND GUIDANCE
PPS 5
Planning and the Historic Environment
The policies in this PPS are a material consideration which must be taken into
account in development management decisions, where relevant. Therefore the
development management policies in the PPS can be applied directly by the
decision-maker when determining whether development should proceed.
HE7 - In considering the impact of a proposal on any heritage asset, local planning
authorities should take into account the particular nature of the significance of the
heritage asset and the value that it holds for this and future generations. This
understanding should be used by the local planning authority to avoid or minimise
conflict between the heritage assets conservation and any aspect of the proposals.
SAVED POLICIES: BLACKPOOL LOCAL PLAN 2001-2016
Policy LQ9 Listed Buildings
Policy LQ9 states that proposals for the repair, alteration or extension of a Listed
Building will only be granted consent where:
(i) the essential character of the building is retained, including any features of
architectural or historic interest which contribute to the reasons for its listing.
(ii) the works proposed make use of original and/or sympathetic materials which
match or are in keeping with those found on the Listed Building.
Policy RR1 Visitor Attractions
Within the defined Resort Core the Council will permit and encourage proposals for
the development, extension or improvement of tourism attractions that draw large
numbers of visitors provided that such development meets all of the following criteria:
(a) the proposal makes a strong positive contribution to the physical and economic
regeneration of the Resort Core, targeting, as far as possible, those sites in greatest
need of investment and renewal.
(b) the proposal would increase the range and quality of facilities available to the
visitor and contributes to safeguarding and growing Blackpool's visitor market.
(c) the development proposal and associated activities including trip generation can
be accommodated satisfactorily in a manner that relates well to adjoining uses; other
existing visitor attractions and facilities, holiday and residential accommodation.
(d) new attractions should reinforce the existing concentrations of such uses rather
that leading to a dispersed distribution of attractions.
Policy SR2 Winter Gardens
Future development proposals for the Winter Gardens will be permitted subject to
meeting the following criteria:
i)
the buildings are dealt with comprehensively
ii)
the special historic and architectural quality of this Grade II* Listed Building is
respected and enhanced
iii)
any development is based on a fully researched Conservation Plan
Policy AS1 General Development Requirements
New development will only be permitted where the access, travel and safety needs of
all affected by the development are met as follows:
(a) convenient, safe and pleasant pedestrian access is provided
EMERGING PLANNING POLICY
Core Strategy Preferred Option (April 2010)
Policy S6
Quality of Place
To uplift and enhance the quality of buildings, townscape and landscapes across
Blackpool by:
 Requiring a high standard of design to ensure all new developments make a
positive contribution to the quality, attractiveness, safety and security of their
surroundings.
 Complementing and enhancing the character and distinctiveness of local
neighbourhoods.
 Protecting, conserving and enhancing the heritage and appearance of important
existing buildings and their settings.
 Ensuring new developments as far as practicable retain and provide appropriate
new landscape and biodiversity benefits.
 Sustaining and enhancing the biodiversity of protected species and habitats.
 Protecting the appearance and environmental quality of Blackpool's Promenade
‘shop window’ seafront, coast and foreshore.
 Safeguarding its separate identity, defining the limits of development, and
preventing its merging with neighbouring settlements.
 Safeguarding, improving and creating an enhanced network of green
infrastructure, with high quality public realm.
Policy R1
Resort Renaissance
To physically and economically regenerate Blackpool's resort and town centre core
as the City on the Beach and to reshape and re-invigorate the adjoining holiday
accommodation and residential neighbourhoods. The focus will be on identifying and
supporting major development opportunities which have the potential to become selfsustaining wider catalysts for regeneration to create a sustainable and inclusive
resort:
 Pursuing proposals which enable Blackpool to achieve its full potential as the
main centre at the heart of the Fylde Coast.
 Identifying and promoting opportunities major new tourism attractions and new
visitor accommodation focused on the town centre and core of the resort.
 Safeguarding and enhancing important longstanding attractions, and building on
the resorts heritage, distinctive character and appeal.
 Addressing current imbalances in the housing market and reshaping more
balanced and healthy resort and residential neighbourhoods.
 Rationalising and uplifting quality in a smaller, more stable and successful holiday
accommodation sector
 Establishing a new Blackpool seafront and resort residential offer
 Creating visually attractive and distinctive high quality public realm
 Raising quality in all aspects of the visitor experience from arriving to leaving the
resort.
Policy R2
Conferences, Events and Festivals
To promote and develop an all year round programme of conferences, events and
festivals in high quality venues which capitalise on Blackpool’s status as the country’s
historic entertainment capital and which help change perceptions of the resort and
broaden its appeal.
Policy R3
Resort Heritage
To exploit the resorts built, social, and cultural heritage to promote a unique and
distinctive Blackpool offer, combining this rich legacy with new innovation and
development and widening its appeal.
In particular, Blackpool Council will promote and pursue proposals to:
 Exploit its mass appeal as the world’s first seaside resort and country's
entertainment capital.
 Appraise the condition, and safeguard and develop the built heritage of key resort
buildings and infrastructure
 Enhance the traditional spectacle of Blackpool Illuminations with contemporary
light shows.
 Capitalise on the heritage of the Victorian Tramway
 Conserve the architectural character of key hotel frontages
 Characterise resort neighbourhoods and identify a local list of historic buildings
across the resort.
Policy R5
Blackpool Town Centre Strategy
Blackpool Council will promote and pursue the development, enhancement and rebranding of the town centre as the centre-piece of “The City on the Beach”, with its
own distinctive and unique offer which re-establishes it as the first choice retail,
business, cultural and leisure destination for Fylde Coast residents and for visitors.
Assistance will be provided to assemble sites and properties where required to
facilitate major redevelopment. An enhanced perception will depend on delivering
real change, focused on:
 It being the location for all major retail development.
 Strengthening the prime retail area, including high quality niche shopping.







Reconnecting the town centre with the beach.
Reconnecting and regenerating the different quarters of the town centre.
Exploiting the heritage of key buildings and entertainment.
Developing a Blackpool café culture.
Growing an ancillary office sector.
Improving access with vibrant welcoming multi-modal transport gateways.
Enhancing enjoyment of streets, spaces and movement in the centre.
Policy R7
Winter Gardens Strategic Town Centre Site
To promote and encourage proposals for the major refurbishment, enhancement,
and increased all year round use of the Winter Gardens for both residents and
visitors, consistent with its status and heritage.
Any major development proposals will need to be dealt with comprehensively and
informed by a fully researched conservation plan for the complex as a whole.
Development proposals will be permitted for the following uses:
 Major conference and exhibitions
 Contemporary “boutique” conferencing facilities
 New themed attractions
 Entertainment related museums with wide appeal
 A new shopping mall connecting Church Street to Victoria Street
 Hotel/ casino and ancillary leisure development
 Improved car parking provision.
Policy R11 Town Centre Leisure Frontage
To promote and pursue comprehensive enhancement and appropriate
redevelopment of the Promenade Leisure Frontage as the main Town Centre
location for:
 Visitor Attractions
 Leisure Retailing
 Bars, Night Clubs and Entertainment
Development proposals must comprise attractive buildings with active frontages
which make a substantial impact in raising quality and supporting Blackpool's
regeneration.
ASSESSMENT
Blackpool Council is currently in the process of appointing a specialist heritage
architect to undertake a Conservation Management Plan for the complex, which will
guide future maintenance and development proposals.
Impact on the Grade II* Listed Building and appearance in the streetscene
The overall emphasis for phase 2 is to repair, refurbish and restore the Coronation
Street entrance and Grand Vestibule to their Art Deco appearance.
The proposal would see the removal of the modern aluminium doors from the
Coronation Street entrance and lobby along with the modern inner porch structure.
The new bespoke entrance and lobby doors would by traditional in a style, hard wood
and bevelled glass to match the doors on the Opera House booking office and
approved under planning permission reference 10/1139. These doors would also
replace the existing shop frontage to the external platform lift lobby fronting
Coronation Street.
The existing entrance is functional but the aluminium doors are not in keeping with
the building. The proposal to install traditional style doors which match those at the
Opera House and the general restoration and refurbishment of the lobby and canopy
is welcomed.
Long term sustainability of the Winter Gardens complex and the wider resort
The viability and future of the Winter Gardens has been of some concern in recent
years and this application is considered a positive step, showing a level of
commitment by the Council to restore the complex and ensure it has a viable future,
contributing to the wider resort offer.
As the press notice has yet to be published, the consultation period will expire after
the Committee meeting date. As such, Committee is requested to indicate that it is
minded to grant planning permission and to agree to that permission being issued by
officers once the consultation period has expired, as long as no new issues are
raised.
LEGAL AGREEMENT AND/OR DEVELOPER FINANCIAL CONTRIBUTION
None
HUMAN RIGHTS ACT
Under Article eight and Article one of the first protocol to the Convention on Human
Rights, a person is entitled to the right to respect for private and family life, and the
peaceful enjoyment of his/her property. However, these rights are qualified in that
they must be set against the general interest and the protection of the rights and
freedoms of others. There are no Human Rights issues raised by these proposals.
CRIME AND DISORDER ACT 1998
The contents of this report have been considered in the context of the Council's
general duty, in all its functions, to have regard to community safety issues as
required by section 17 of the Crime and Disorder Act 1998
ADDITIONAL BACKGROUND DOCUMENTS
Blackpool Council's Heritage Strategy 2006
Recommended Decision: Defer for delegation
Conditions and Reasons
1.
The development hereby permitted shall be begun before the expiration of three
years from the date of this permission.
Reason: Required to be imposed pursuant to Section 91 of the Town and Country
Planning Act 1990 (as amended).
REASONS FOR RECOMMENDED DECISION
1
The works proposed have been considered in relation to Policies LQ9, RR1, SR2 and
AS1 of the Blackpool Local Plan 2001-2016 and it is considered that the proposals
would not be harmful to the character and integrity of the Listed Building. The
proposals are therefore in accordance with these Policies and there are no other
material considerations which weigh sufficiently against the proposal such as to
warrant refusal.
Advice Notes to Developer
1.
Please note this approval relates specifically to the details indicated on the
approved plans and documents, and to the requirement to satisfy all conditions of
the approval. Any variation from this approval need to be agreed in writing by the
Local Planning Authority prior to works commencing and may require the
submission of a revised application. Any works carried out without such written
agreement or approval would render the development as unauthorised and liable
to legal proceedings.
COMMITTEE DATE: 29/11/2010
Application Reference:
10/1374
WARD:
DATE REGISTERED:
LOCAL PLAN ALLOCATION:
Talbot
09/11/10
Town Centre Boundary Winter Gardens Defined Inner
Area
Listed Building Consent
Estates & Development, Blackpool Council
APPLICATION TYPE:
APPLICANT:
PROPOSAL:
Installation of replacement entrance doors to Coronation Street,
replacement of internal lobby doors, refurbishment of interior of entrance
lobby and the Grand Vestibule including refurbishment of existing ticket
booth, restoration of the existing 1930s terrazzo floor, repair of the
existing grand stair, re-modelling of disabled access into the building,
refurbishment of the Grand Vestibule and entrance foyer including
renewal of internal redecorations and signage.
LOCATION:
WINTER GARDENS, CHURCH STREET, BLACKPOOL, FY1 1HW
----------------------------------------------------------------------------------------------------------------CASE OFFICER
Miss C Johnson
INTRODUCTION
Blackpool Council became the owners of the Winter Gardens earlier in 2010 and this
is the first time the complex has been in public ownership and control. The former
owners, Leisure Parcs Ltd will continue to manage the complex for a further two
years.
Many areas of the Winter Gardens complex are in a poor state of repair and the case
officer and the Council's Built Heritage Manager have been involved in a number of
pre-application meetings with the agent and other Council departments in relation to
proposals for repair and refurbishment and reinstatement of lost features within the
key circulation areas.
This application and an associated planning application is phase two of a larger
project to upgrade and revitalise the Winter Gardens complex.
SITE DESCRIPTION
The application relates to the Winter Gardens which is a Grade II* Listed Building, in
a block bounded by Church Street, Leopold Grove, Adelaide Street, Coronation
Street, Adelphi Street and Carter Street.
The Winter Gardens complex dates back to the 1870s and the site was extended and
developed up until 1939. The main areas within the complex are the vestibule, Floral
Hall, Ambulatory and Pavilion Theatre, Arena, Opera House, Empress Ballroom, The
Olympia and the Spanish Hall suite which comprises the Spanish Hall, Galleon Bar,
Renaissance Room and Baronial Hall.
This application concerns the main entrance on Coronation Street, lobby and the
Grand Vestibule which are often only open to the public when there are events on
within the complex.
The Grand Vestibule was the area originally used for gardens when the building first
opened in 1878. It then became the site of the Palm house, a three storey structure,
and finally it was converted to its current use with a grand foyer space on the ground
floor and retail units to either side of the entrance. The Spanish Hall is located on the
floor above the Grand Vestibule.
The most important, distinctive and significant elements of the Grand Vestibule are
the blue and white faience façade to Coronation street, and the entrance foyer. The
lettered faience frontage became one of the great architectural icons of Blackpool.
The Committee will have visited the Winter Gardens on 29th November 2010.
DETAILS OF PROPOSAL
Installation of replacement entrance doors to Coronation Street, replacement of
internal lobby doors, refurbishment of interior of entrance lobby and the Grand
Vestibule including refurbishment of existing ticket booth, restoration of the existing
1930s terrazzo floor, repair of the existing grand stair, re-modelling of disabled
access into the building, refurbishment of the Grand Vestibule and entrance foyer
including renewal of internal redecorations and signage.
MAIN PLANNING ISSUES


Impact on the Grade II* Listed Building
Long term sustainability of the Winter Gardens complex and the wider resort
CONSULTATIONS
Blackpool Civic Trust: No representations made at the time of writing this report
English Heritage: No representations made at the time of writing this report
Georgian Group: No representations made at the time of writing this report
Society Protection of Ancient Buildings: No representations made at the time of
writing this report
Victorian Society: No representations made at the time of writing this report
Council for British Archaeology: No representations made at the time of writing this
report
Any comments received will be reported in the update note.
PUBLICITY AND REPRESENTATIONS
Site Notices displayed 16/11/2010
Press notice has yet to be published
No representations received at the time of writing this report, any representations
received will be reported in the update note.
NATIONAL PLANNING POLICY AND GUIDANCE
PPS 5
Planning and the Historic Environment
The policies in this PPS are a material consideration which must be taken into
account in development management decisions, where relevant. Therefore the
development management policies in the PPS can be applied directly by the
decision-maker when determining whether development should proceed.
HE7 - In considering the impact of a proposal on any heritage asset, local planning
authorities should take into account the particular nature of the significance of the
heritage asset and the value that it holds for this and future generations. This
understanding should be used by the local planning authority to avoid or minimise
conflict between the heritage assets conservation and any aspect of the proposals.
SAVED POLICIES: BLACKPOOL LOCAL PLAN 2001-2016
Policy LQ9 Listed Buildings
Policy LQ9 states that proposals for the repair, alteration or extension of a Listed
Building will only be granted consent where:
(i) the essential character of the building is retained, including any features of
architectural or historic interest which contribute to the reasons for its listing.
(ii) the works proposed make use of original and/or sympathetic materials which
match or are in keeping with those found on the Listed Building.
Policy RR1 Visitor Attractions
Within the defined Resort Core the Council will permit and encourage proposals for
the development, extension or improvement of tourism attractions that draw large
numbers of visitors provided that such development meets all of the following criteria:
(a) the proposal makes a strong positive contribution to the physical and economic
regeneration of the Resort Core, targeting, as far as possible, those sites in greatest
need of investment and renewal.
(b) the proposal would increase the range and quality of facilities available to the
visitor and contributes to safeguarding and growing Blackpool's visitor market.
(c) the development proposal and associated activities including trip generation can
be accommodated satisfactorily in a manner that relates well to adjoining uses; other
existing visitor attractions and facilities, holiday and residential accommodation.
(d) new attractions should reinforce the existing concentrations of such uses rather
that leading to a dispersed distribution of attractions.
Policy SR2 Winter Gardens
Future development proposals for the Winter Gardens will be permitted subject to
meeting the following criteria:
i)
the buildings are dealt with comprehensively
ii)
the special historic and architectural quality of this Grade II* Listed Building is
respected and enhanced
iii)
any development is based on a fully researched Conservation Plan
Policy AS1 General Development Requirements
New development will only be permitted where the access, travel and safety needs of
all affected by the development are met as follows:
(a) convenient, safe and pleasant pedestrian access is provided
EMERGING PLANNING POLICY
Core Strategy Preferred Option (April 2010)
Policy S6
Quality of Place
To uplift and enhance the quality of buildings, townscape and landscapes across
Blackpool by:
 Requiring a high standard of design to ensure all new developments make a
positive contribution to the quality, attractiveness, safety and security of their
surroundings.
 Complementing and enhancing the character and distinctiveness of local
neighbourhoods.
 Protecting, conserving and enhancing the heritage and appearance of important
existing buildings and their settings.
 Ensuring new developments as far as practicable retain and provide appropriate
new landscape and biodiversity benefits.
 Sustaining and enhancing the biodiversity of protected species and habitats.
 Protecting the appearance and environmental quality of Blackpool's Promenade
‘shop window’ seafront, coast and foreshore.
 Safeguarding its separate identity, defining the limits of development, and
preventing its merging with neighbouring settlements.
 Safeguarding, improving and creating an enhanced network of green
infrastructure, with high quality public realm.
Policy R1
Resort Renaissance
To physically and economically regenerate Blackpool's resort and town centre core
as the City on the Beach and to reshape and re-invigorate the adjoining holiday
accommodation and residential neighbourhoods. The focus will be on identifying and
supporting major development opportunities which have the potential to become selfsustaining wider catalysts for regeneration to create a sustainable and inclusive
resort:
 Pursuing proposals which enable Blackpool to achieve its full potential as the
main centre at the heart of the Fylde Coast.
 Identifying and promoting opportunities major new tourism attractions and new
visitor accommodation focused on the town centre and core of the resort.
 Safeguarding and enhancing important longstanding attractions, and building on
the resorts heritage, distinctive character and appeal.
 Addressing current imbalances in the housing market and reshaping more
balanced and healthy resort and residential neighbourhoods.
 Rationalising and uplifting quality in a smaller, more stable and successful holiday
accommodation sector
 Establishing a new Blackpool seafront and resort residential offer
 Creating visually attractive and distinctive high quality public realm
 Raising quality in all aspects of the visitor experience from arriving to leaving the
resort.
Policy R2
Conferences, Events and Festivals
To promote and develop an all year round programme of conferences, events and
festivals in high quality venues which capitalise on Blackpool’s status as the country’s
historic entertainment capital and which help change perceptions of the resort and
broaden its appeal.
Policy R3
Resort Heritage
To exploit the resorts built, social, and cultural heritage to promote a unique and
distinctive Blackpool offer, combining this rich legacy with new innovation and
development and widening its appeal.
In particular, Blackpool Council will promote and pursue proposals to:
 Exploit its mass appeal as the world’s first seaside resort and country's
entertainment capital.
 Appraise the condition, and safeguard and develop the built heritage of key resort
buildings and infrastructure
 Enhance the traditional spectacle of Blackpool Illuminations with contemporary
light shows.
 Capitalise on the heritage of the Victorian Tramway
 Conserve the architectural character of key hotel frontages
 Characterise resort neighbourhoods and identify a local list of historic buildings
across the resort.
Policy R5
Blackpool Town Centre Strategy
Blackpool Council will promote and pursue the development, enhancement and rebranding of the town centre as the centre-piece of “The City on the Beach”, with its
own distinctive and unique offer which re-establishes it as the first choice retail,
business, cultural and leisure destination for Fylde Coast residents and for visitors.
Assistance will be provided to assemble sites and properties where required to
facilitate major redevelopment. An enhanced perception will depend on delivering
real change, focused on:
 It being the location for all major retail development.
 Strengthening the prime retail area, including high quality niche shopping.
 Reconnecting the town centre with the beach.
 Reconnecting and regenerating the different quarters of the town centre.
 Exploiting the heritage of key buildings and entertainment.
 Developing a Blackpool café culture.
 Growing an ancillary office sector.
 Improving access with vibrant welcoming multi-modal transport gateways.
 Enhancing enjoyment of streets, spaces and movement in the centre.
Policy R7
Winter Gardens Strategic Town Centre Site
To promote and encourage proposals for the major refurbishment, enhancement,
and increased all year round use of the Winter Gardens for both residents and
visitors, consistent with its status and heritage.
Any major development proposals will need to be dealt with comprehensively and
informed by a fully researched conservation plan for the complex as a whole.
Development proposals will be permitted for the following uses:
 Major conference and exhibitions
 Contemporary “boutique” conferencing facilities
 New themed attractions
 Entertainment related museums with wide appeal
 A new shopping mall connecting Church Street to Victoria Street
 Hotel/ casino and ancillary leisure development
 Improved car parking provision.
Policy R11 Town Centre Leisure Frontage
To promote and pursue comprehensive enhancement and appropriate
redevelopment of the Promenade Leisure Frontage as the main Town Centre
location for:
 Visitor Attractions
 Leisure Retailing
 Bars, Night Clubs and Entertainment
Development proposals must comprise attractive buildings with active frontages
which make a substantial impact in raising quality and supporting Blackpool's
regeneration.
ASSESSMENT
Blackpool Council is currently in the process of appointing a specialist heritage
architect to undertake a Conservation Management Plan for the complex, which will
guide future maintenance and development proposals.
Impact on the Grade II* Listed Building
The overall emphasis for phase 2 is to repair, refurbish and restore the Coronation
Street entrance and Grand Vestibule to their Art Deco appearance.
Coronation Street entrance:
The proposal would see the removal of the modern aluminium doors from the
Coronation Street entrance and lobby along with the modern inner porch structure.
The new bespoke entrance and lobby doors would by traditional in a style, hard wood
and bevelled glass to match the doors on the Opera House booking office and those
currently being considered for the main Church Street entrance by the Government
Office (reference 10/1138). These doors would also replace the existing shop
frontage to the external platform lift lobby.
The emphasis within this space is to improve its visual impact through major
redecoration works, improving its welcoming appearance and internal environmental
quality.
Internally the lobby area would be redecorated to make the most of the architectural
features, such as the large Art Deco ventilation grills. Externally, the canopy would
be repaired as required. The extent of the repairs is uncertain as a full condition
survey has not been undertaken to date.
The floor would to be repaired and polished throughout the lobby area and new
replacement balustrades installed to match the existing ones.
The existing signage would be removed; the walls and ceilings would be repaired
and redecorated. The details of new internal signage should be agreed by condition.
The heating, lighting and ventilation systems would be upgraded as necessary.
The existing entrance is functional but the aluminium doors are not in keeping with
the building. The proposal to install traditional style doors which match those at the
Opera House and the general restoration and refurbishment of the lobby is
welcomed.
Grand Vestibule
The Grand Vestibule is a large entrance space which is currently under-utilised. The
space would be redecorated, including the repair and polishing of the existing
colourful 1930’s terrazzo floor.
It is proposed to include an ‘Exhibition Bridge’ into this space, creating a feature in
the large empty space that will draw public interest and will also allow the Vestibule
to be used as an effective exhibition space. The bridge will also solve the
unsatisfactory disabled access issue at the far end of the Vestibule at the Grand Stair
case, and will allow the removal of the existing, unsightly, platform lift.
The redecoration scheme looks to neutralise the current colour scheme to bring the
terrazzo floor out as a main feature of the space. New paint work will be off-whites
and creams, as was proposed for the Floral Hall to make the space lighter and to
give the Winter Gardens a more unified feel.
The existing Grand Stair at the rear of the Grand Vestibule would be repaired and
polished to reinstate its presence within the space. New handrails would replace the
various existing balustrading.
The existing ticket booth would be restored to look more like a conventional ticket
booth with the wood panelling modules retained and converted into sliding shutters
that would reveal glazed screens behind. Internally the ticket booth would also be
redecorated and remodelled and water damage from leaking pipes repaired.
The Church Street entrance links into the Floral Hall, which provides the circulation
space between many of the main venues within the complex and it is considered that
these proposals are sympathetic to the space and would enhance the visitor
experience. The proposals would also facilitate opening the Floral Hall to the public
daily rather than just when events are taking place.
It is appropriate for a condition requiring the interior decorative scheme, including
details of replacement internal signage, to be submitted and agreed by condition.
Details of the internal lighting scheme should also be submitted and agreed by
condition.
Long term sustainability of the Winter Gardens complex and the wider resort
The viability and future of the Winter Gardens has been of some concern in recent
years and this application is considered a positive step, showing a level of
commitment by the Council to restore the complex and ensure it has a viable future,
contributing to the wider resort offer.
Being a proposal by the Council for its own Listed Building, this application must be
referred to the Secretary of State once the consultation and notification period have
expired. Committee is requested to indicate that it is minded to grant consent.
LEGAL AGREEMENT AND/OR DEVELOPER FINANCIAL CONTRIBUTION
None
HUMAN RIGHTS ACT
Under Article eight and Article one of the first protocol to the Convention on Human
Rights, a person is entitled to the right to respect for private and family life, and the
peaceful enjoyment of his/her property. However, these rights are qualified in that
they must be set against the general interest and the protection of the rights and
freedoms of others. There are no Human Rights issues raised by these proposals.
CRIME AND DISORDER ACT 1998
The contents of this report have been considered in the context of the Council's
general duty, in all its functions, to have regard to community safety issues as
required by section 17 of the Crime and Disorder Act 1998
ADDITIONAL BACKGROUND DOCUMENTS
Blackpool Council's Heritage Strategy 2006
Recommended Decision: Defer for consideration by the Secretary of State for
Communities and Local Government.
Conditions and Reasons
1.
The development hereby permitted shall be begun before the expiration of three
years from the date of this permission.
Reason: Required to be imposed pursuant to Section 18 of the Planning (Listed
Buildings and Conservation Areas) Act 1990 (as amended).
2.
Details of the decorative colour scheme and finishes for the interiors which are
affected by the works, shall be submitted to and agreed in writing by the Local
Planning Authority prior to the works hereby approved being commenced. The
scheme shall be undertaken in accordance with the agreed details prior to the
Grand Vestibule first being brought back into use.
Reason: In the interests of the appearance of the interior of the Grade II* Listed
Building, in accordance with saved Policy LQ9 of the Blackpool Local Plan 20012016.
3.
No works shall take place on the site until the applicant or their agent, has
undertaken a full photographic survey of the areas which are subject to this
consent. The survey shall be submitted to and agreed in writing by the Local
Planning Authority prior to the works hereby approved being commenced. A
further photographic survey shall be undertaken during the demolition works which
shall be submitted to and agreed in writing by the Local Planning Authority prior to
the areas subject to this consent being brought back into public use.
Reason: To ensure and safeguard the recording and inspection of matters of
historical importance associated with the building, in accordance with saved Policy
LQ9 of the Blackpool Local Plan 2001-2016.
4.
Details of any new internal illumination scheme shall be submitted to and agreed
in writing by the Local Planning Authority prior to the implementation of any lighting
scheme. The lighting scheme shall then be provided in accordance with the
approved details and shall thereafter be retained.
Reason: In the interests of the appearance of the interior of the Grade II* Listed
Building, in accordance with saved Policy LQ9 of the Blackpool Local Plan 2001-
2016.
5.
Details of new signage for the interiors which are affected by the works, shall be
submitted to and agreed in writing by the Local Planning Authority prior to the
works hereby approved being commenced. The new signage shall then be
provided in accordance with the approved details and shall thereafter be retained.
Reason: In the interests of the appearance of the interior of the Grade II* Listed
Building, in accordance with saved Policy LQ9 of the Blackpool Local Plan 20012016.
REASONS FOR RECOMMENDED DECISION
1
The works proposed have been considered in relation to Policies LQ9, RR1, SR2 and
AS1 of the Blackpool Local Plan 2001-2016 and it is considered that the proposals
would not be harmful to the character and integrity of the Listed Building. The
proposals are therefore in accordance with these Policies and there are no other
material considerations which weigh sufficiently against the proposal such as to
warrant refusal.
Advice Notes to Developer
1.
Please note this approval relates specifically to the details indicated on the
approved plans and documents, and to the requirement to satisfy all conditions of
the approval. Any variation from this approval need to be agreed in writing by the
Local Planning Authority prior to works commencing and may require the
submission of a revised application. Any works carried out without such written
agreement or approval would render the development as unauthorised and liable
to legal proceedings.