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| Part 2 7- CONSERVATION AND ENHANCEMENT OF THE BUILT ENVIRONMENT |
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| C1 | Townscape and Urban Form | ||
| In considering proposals for built development, the Council will expect the distinct settlement pattern, open space features, topography, townscape and landscape character of specific areas of the Borough to be understood, and the nature of the surrounding fabric to be respected. The relationship between buildings and their setting should be given particular attention in the design of any proposal for development. | |||
| Urban design frameworks will be produced for particular areas and corridors in the Borough, as supplementary planning guidance, setting out fundamental principles which should be followed and from which detailed design may be interpreted. | |||
| The Council will establish a strategy to secure the retention and enhancement of landmark buildings which form a distinctive element of the local skyline or townscape, and which represent a unique part of the heritage of the area. Re-use and conversion of such buildings which become redundant will be permitted, subject to other relevant policies. | |||
| The character of Tameside's towns and villages was mostly established during their rapid growth in the 19th Century. They developed different characters due to topography, street pattern, available materials, industrial role etc, yet with common threads running through most areas, including market squares, groups of civic buildings, cotton mills, canals, turnpikes, small terraced houses and intimate urban spaces. Most settlements also came to have important landmarks or views. Although some of the traditional character has been diluted by the more recent influx of non local materials and styles, the Borough still possesses a diversity of townscape which reflects its historical pattern of development. Characteristic urban form and townscape merit respect and enhancement in many parts of the Borough, and not just where designated as Conservation Areas.. | |||
| This policy is intended to ensure that adequate emphasis is placed on design considerations in the preparation of proposals and the application of development control procedures. Needless damage to the character and appearance of the area and its buildings can be caused by careless or unsympathetic design. The urban design frameworks will be prepared progressively, to provide guidance appropriate to areas of particular character. High standards of design are important even where there is no compelling need to respect established patterns of development, if the built environment as a whole is to be upgraded. The strategy to be established should help to stem the further loss of landmark buildings by encouraging a flexible range of alternative uses and by recognising their historic, social and architectural significance to the area. | |||
| Supplementary Planning Guidance to be produced under this and other relevant policies will address, among other things, the circumstances in which any development control standards might be relaxed in order to facilitate the retention and enhancement of landmark buildings. | |||
| C2 | Conservation Areas | ||
| The character and appearance of the Borough's Conservation Areas, including any further changes to areas which may be declared during the life of the plan, will be preserved or enhanced through the control of development, the promotion of improvement measures, or both. | |||
| There is widespread recognition of the importance of preserving and enhancing groups of buildings and areas of towns and villages which have a special architectural, historic, traditional or other distinctive or rare character or setting to them. Public support has grown for protecting and where necessary restoring or adapting such groups or areas. There are currently nine Conservation Areas in Tameside, and the boundaries of these are shown on the proposals map. As well as providing vital additional controls on development, there is a duty on local authorities to formulate and publish proposals for the preservation and enhancement of their Conservation Areas. The views of the local community, property owners and developers are extremely important to this process. The practical ability to undertake such schemes ultimately will be determined by the availability of resources. Conservation character appraisals will be carried out for each of the Conservation Areas and will form the basis for supplementary planning guidance. | |||
| C3 | Demolition of Unlisted Buildings in Conservation Areas | ||
| Demolition of unlisted buildings within Conservation Areas which make a positive contribution to the character or appearance of the area will not be permitted: | |||
| Exceptions will only be made to this policy on assessment of each of the criteria listed in policy C8 for the control of demolition of listed buildings. | |||
| Where unlisted buildings within Conservation Areas make no positive contribution to the character or appearance of the area, demolition will only be permitted if this would be followed, as soon as practical, by a development scheme which would make a greater contribution to the character or appearance of the area. | |||
| There is a general duty on local authorities to pay special attention, when exercising their planning powers in respect of buildings or land within a Conservation Area, to the desirability of preserving or enhancing the character or appearance of that area. Control of development in Conservation Areas is also the subject of Government guidance and the Council's policies fit within the framework provided. Policy C3 sets out the basis on which demolition proposals in Conservation Areas would be considered and follows the approach in PPG15. As indicated under policy C2, it is intended to progressively carry out conservation character appraisals for each of the Borough's Conservation Areas. These should help to build up a better understanding of those unlisted buildings which make a positive contribution to the character or appearance of particular Conservation Areas. | |||
| C4 | Control of Development in or adjoining Conservation Areas | ||
| When considering proposals for development in or adjoining Conservation Areas, including advertisements and the alteration, extension or conversion of existing buildings within Conservation Areas, the Council will have regard to the desirability of preserving or enhancing the character or appearance of the area, and to the need to ensure that the proposals make a positive contribution to the context in which they are set. | |||
| The purpose of this policy is to preserve and enhance the fabric, character and appearance of designated areas, through detailed consideration of development proposals and the likely impact they will have on the protected buildings and their setting. It covers both new development and changes to existing buildings. It is equally important to ensure that Conservation Areas or their setting are not adversely affected by discordant development nearby. It is also recognised that new development and alterations to existing buildings can sometimes be used as an opportunity to significantly improve the overall quality of a Conservation Area, such as by replacing unattractive existing elements. The matters that may require particular attention will be set out in supplementary planning guidance. | |||
| C5 | Alternative Uses, Alterations and Additions for Listed Buildings | ||
| Whilst continuation of the use for which the building was designed is most desirable, the Council will permit alternatives uses for Listed Buildings where evidence demonstrates that the existing or original use is unlikely to support the maintenance and preservation of the building. | |||
| The Council will require that proposed new uses, or other alterations and additions to Listed Buildings, should not adversely affect the essential character of the building, should be in keeping with its architectural style and features, and should harmonise with its surroundings. The effect of the proposals on any protected species which may be using the Listed Building should also be taken into account. | |||
| Such development must be of a high standard of design. The external appearance, design and materials will be expected to match as near as possible those of the existing building and, where appropriate, new internal features should also harmonise with the existing. | |||
| Extensions and additions should be secondary in scale, design and location to the principal building and standard solutions or modern features which fail to relate to the character of the building will not be permitted. | |||
| The listing by the Government of buildings of architectural or historic interest provides a comprehensive set of controls for the protection of the nation's architectural heritage. There were 312 listed "schedules" in Tameside in September 2003, with some of these containing more than one building such as a row of cottages. If they are to continue to be of the greatest benefit listed buildings need to be maintained in good condition, and the basic responsibility for upkeep rests with the owner. The Council recognises however that due to the particular characteristics of a listed building, it may sometimes be difficult to continue the original or existing use. This could result in the building being left disused and decaying, or threatened with demolition and redevelopment, which can often happen for instance with mills or religious buildings which become redundant. Whilst other policies in the plan will clearly have to be taken into account, it may be better for the survival of the listed building if a viable new use can take over. It is important however that the new use does not damage the qualities of the building which make it special. | |||
| Alterations and additions to listed buildings, perhaps involving demolition of part of the original structure, may sometimes be proposed. The reasons for the work may well be sound and the investment welcome for the confidence it shows in the continued usefulness of the building. However, it is very important that damage should not be done to the character of a building through inappropriate or unsympathetic design or by use of unsuitable materials. Quite small scale or detailed matters can often make a significant impact and it will normally be worthwhile to seek advice from the Council or from other professionals in this field. Because of their age and location listed buildings may sometimes support species which are protected by law, such as bats and some birds, and these could be adversely affected by alterations or extensions if not taken into account. | |||
| C6 | Setting of Listed Buildings | ||
| New development, including any proposed as a result of a new use for a Listed Building, which fails to preserve, or detracts from, the setting of a Listed Building or structure will not be permitted. | |||
| The setting of a listed building and its surroundings will in most instances have some bearing on its special character. The carrying out of development in the vicinity of the building could therefore be expected to have an impact on that character, which might be quite severe for instance if conflicting or inharmonious elements were introduced at close quarters or in an important line of sight. This policy recognises the importance of safeguarding the overall character or setting of listed buildings and indicates the Council's intention to closely scrutinise and assess the impact of development proposals in their vicinity. | |||
| C7 | Enabling Development for Conservation of Heritage Assets | ||
| Development which is proposed so as to enable the restoration of Scheduled Ancient Monuments, Listed Buildings, Conservation Areas or Registered Parks and Gardens (heritage assets) will only be permitted if each of the following criteria are met: | |||
| a) | the development will not material detract from the archaeological, architectural, historic or landscape interest of the heritage asset, or materially harm its setting, and | ||
| b) | the proposal avoids a fragmentation of management which may have adverse effects upon the heritage asset, and | ||
| c) | the development will secure the long term future of the heritage asset, and where applicable, its continued use for a sympathetic purpose, and | ||
| d) | the problem arises from the inherent needs of the heritage asset, rather the circumstances of the present owner or the purchase price paid, and | ||
| e) | the development is the only viable source of adequate financial assistance, and | ||
| f) | the amount of enabling development is the minimum required to secure the future of the heritage asset, and its form minimises disbenefits, and | ||
| g) | the value or benefit of the survival or enhancement of the heritage asset outweighs the long term disbenefits to the community of providing the enabling development. | ||
| Some listed buildings and other heritage assets are either neglected, disused, decaying or even derelict, typically resulting from them being no longer needed for their original purpose and more difficult to convert to other uses. These can include certain large and prominent buildings which are key features of local townscape. It is important that their value and contribution to the built environment is recognised and that their condition and appearance are protected and enhanced. The most serious cases are included on a "Buildings at Risk" register and continued efforts are made by the Council to contain physical deterioration, to bring them back into suitable use and to achieve sensitive restoration, through partnerships and funding mechanisms as appropriate and available. Pressure for "enabling development" may increase in cases where expensive restoration of historic buildings is involved, and needs to be carefully scrutinised. Successful restoration of "Buildings at Risk" should help to increase the attractiveness of the area, stimulate investment and secure regeneration. The criteria listed in this policy are derived from the English Heritage document ''Enabling Development and the Conservation of Heritage Assets", published in June 2001, which can be referred to for further guidance on the issues involved. | |||
| C8 | Demolition of Listed Buildings | ||
| The Council will not recommend the demolition of Listed Buildings, apart from in exceptional circumstances after the following considerations have been assessed: | |||
| (a) | the condition of the building and the cost of repairing and maintaining it in relation to its importance and to the value derived from its continued use, and | ||
| (b) | the adequacy of efforts that have been made to retain the building in its present use or to find compatible alternative uses, and | ||
| (c) | the merits of alternative proposals for the site. | ||
| In such circumstances the Council will also need to be satisfied that an acceptable alternative form of development can go ahead on the site as soon as practical following demolition, that any use of the building by protected species has been taken into account, and that provision can be made to record the detail of the building prior to demolition. | |||
| The loss of listed buildings should be regarded as an absolute last resort. They are a fundamental part of the Borough's heritage and once destroyed can never be replaced. The Council will therefore not support demolition unless a compelling case can be made. The three main considerations which are listed in the policy are those outlined in PPG15. Consent for demolition cannot in any event be given by the Council without the Secretary of State first being given the opportunity to call in the application and hold a public inquiry. It is possible that the Council may consider partial demolition followed by subsequent rebuilding to protect the future of the building but such a course would require careful scrutiny. Because of their age and location listed buildings may sometimes support species which are protected by law, such as bats and some birds, and if this is the case it is necessary that the effect of demolition is addressed. | |||
| C9 | Historic Parks and Gardens | ||
| The Council will not permit development which would affect a site included in English Heritage's Register of Parks and Gardens of Special Historic Interest, or its setting, unless: | |||
| a) | the development is consistent with the preservation or enhancement of the character, historical significance and appearance of the park or garden, and | ||
| b) | the design is sensitive to the existing landscape, planting, park furniture and structures. | ||
| Where development is proposed within or adjoining other historic parks and gardens of local importance, the Council will wish to be satisfied that any effects on the character, historical significance and appearance of the site have been weighed against the need for the development. | |||
| Traditional parks and gardens often have a distinctive character which is worthy of protection. The most important of these within Tameside is Stamford Park in Ashton and Stalybridge, the first part of which was opened in 1873 and which has an interesting history of donation, public subscription and joint municipal control. Many of the park's attractive features have survived quite well to the present day, and it is registered by English Heritage as a Grade II Park and Garden of Special Historic Interest, in recognition of its importance as part of the nation's heritage. Although no additional statutory controls follow from this, PPG15 says that local authorities should protect such sites and that the effect of proposed development is a material planning consideration. There are other parks which have more local importance as part of the Borough's heritage, including Hyde Park where lottery funding has been secured for restoration works. In many cases it is likely to be the Council itself which carries out work within historic parks and gardens, although proposals bordering these sites may sometimes have an impact. | |||
| C10 | Development Affecting Archaeological Sites | ||
| Where development is proposed which could have an adverse effect on Scheduled Ancient Monuments or other nationally important remains, there will be a presumption in favour of physical preservation in situ. Development will not be permitted if it would cause material damage to the existing remains, nor detract from the aesthetic, historical or educational value of the site and its setting. | |||
| Where development is proposed in other areas of known or suspected archaeological importance, the Council will ensure that: | |||
| (a) | provision is made for the prior investigation and evaluation of the site, and | ||
| (b) | facilities are made available for suitable inspection during site preparation, and | ||
| (c) | sites and monuments are not needlessly damaged or destroyed, and unavoidable damage is mitigated, and | ||
| (d) | preservation of the archaeological evidence in situ is the preferred solution, or if this is not justified, adequate provision is made for excavation and recording before and during development. | ||
| Wherever practical, measures should be taken to facilitate the conservation, accessibility and interpretation of archaeological remains, in the light of the educational, recreational and tourism potential which they may have. | |||
| Archaeological remains should be seen as a finite and non renewable resource, often highly fragile and vulnerable to damage and destruction. They can contain irreplaceable information about and sometimes the only evidence of our past, and are valuable both for their own sake and for their role in education, leisure and tourism. Appropriate management is therefore essential to ensure that archaeological remains survive in good condition. Their value is further increased if in suitable cases they can be made more accessible to the public, for instance through interpretive material, and this may also enable sites to be marketed as part of the tourist or visitor attractions of the Borough. | |||
| PPG16 advises that preservation in-situ of important archaeological remains is nearly always to be preferred to the option of preservation by record. This should ensure that the remains will still be available for examination in the future, when techniques may enable more information to be extracted from them. The Sites and Monuments Record for Tameside, compiled and maintained by the Greater Manchester Archaeological Unit, provides information about where archaeological remains are known, or thought likely to exist. | |||
| Scheduled Ancient Monuments are those currently considered to be of national importance and meriting special protection. However, there may be other remains of similar importance which also justify special protection, and English Heritage has embarked on a survey programme which is expected to lead to more being scheduled. PPG16 advises that, where affected by proposed development, there should be a presumption in favour of the physical preservation of nationally important archaeological remains. The proposals map shows the location of Scheduled Ancient Monuments. | |||
| Where archaeological remains are of lesser importance, the issue when faced by development will be that of weighing the relative value to archaeology against other relevant factors. The decision process, archaeological interests, and often the efficient progress of subsequent construction work, will be greatly assisted by recognising any possible conflict at an early stage and allowing adequate time and opportunity for proper assessment. Early contact with the Greater Manchester Archaeological Unit may often be of assistance to developers. Before development proposals are finalised adequate information should be made available for the Council to determine whether archaeological evidence should be preserved in situ or recorded prior to development. It may be possible to amend certain aspects of the design in order to avoid disturbing the remains, or to seal them for the future. If it is determined that development can proceed which will destroy the remains, the Council will need to be satisfied that the developer has made appropriate and satisfactory arrangements for their excavation and recording and for publication of the results. This policy is supported by PPG16. | |||
| C11 | Shop Fronts | ||
| The Council will permit proposals for the alteration, restoration or renewal of shop fronts, including fascias and canopies and shutters, so long as: | |||
| a) | existing shop frontages which have historic value or significant architectural quality are repaired and restored wherever possible, and | ||
| b) | the design of replacement shop fronts is sensitive to the design, scale and character of the existing and adjacent building and the general street scene, and | ||
| c) | public entrances are designed to ensure safety and convenience for people with sensory and physical disability. | ||
| Although the exterior of much of a typical town centre commercial building may remain basically unchanged for many years, it is probable that its shop-front will be altered in some way a number of times during the building's useful life. This may be due to wear and tear, new occupation, changing fashion, corporate identity, or other reasons. The design of shop-fronts can have a significant impact on the character of a town centre or Conservation Area. Unsuitable installations may bear little relation to the scale, style and proportion of the building or its neighbours and can lead to a cluttered, ragged or otherwise unattractive street scene. The Council's shop front policy, which is illustrated more fully in supplementary planning guidance, is intended to avoid these problems by setting out consistent guidelines. | |||
| C12 | Art in the Environment | ||
| The Council will permit and actively encourage works of public art, including free standing projects and those which are incorporated into development schemes, subject to consideration of: | |||
| (a) | the contribution the scheme will make to improving the appearance or interest of the local environment, and | ||
| (b) | the relationship to the architectural, historical and cultural identity of the local area, and | ||
| (c) | the views of people living in or using the local area. | ||
| Where major developments are proposed, such as large scale town centre, retail or employment schemes, the Council will negotiate to secure the provision or commissioning of public art in association with these schemes. | |||
| The Council recognises the role that art can play in the environment, economic development, urban regeneration and tourism. The arts can also be a means of extending understanding and enjoyment of the natural environment. Experience abroad and in other British cities shows how investment in the cultural sector can enhance civic image, provide a more welcoming and attractive environment, attract tourism and investment, and increase local skills. | |||
| An additional stimulus to regeneration would thereby be created, with the expectation that good design and distinctive works of art and craft can restore a sense of place and local identity to public buildings, business developments, streets and parks. In appropriate circumstances, particularly with major developments, the Council will negotiate to secure contributions from developers towards agreed public art projects, in a similar manner to the "Percent for Art" scheme promoted by the Arts Council in the early 1990's. | |||
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