Shrewsbury & Atcham Borough Local Plan

Shrewsbury and Atcham Borough Local Plan - Written Statement - Adopted June 2001

Chapter 6- HISTORIC ENVIRONMENT


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	INTRODUCTION

6.1	This part of the plan concerns itself with policies for the conservation of the Borough's historic heritage. It includes policies dealing with the protection of areas and buildings of archaeological and historic importance and includes villages and suburban areas, as well as the historic core zone of Shrewsbury. Policies relate primarily to the built fabric; policies for the protection of the countryside, landscape and wildlife are contained in the Tourism, Leisure and Recreation Chapter of the plan.
6.2	The historic heritage of the Borough is one of its greatest assets and contributes to the attraction of the Borough as a centre for tourism, leisure and employment.
6.3	Centred on the county town of Shrewsbury, the Borough contains some 2,400 Listed Buildings (1,875 entries), including 39 Grade I and 159 Grade II*. There are 17 designated Conservation Areas, six within Shrewsbury itself and the remainder dispersed in villages throughout the rural area.
6.4	The Borough contains 86 sites which are Scheduled Ancient Monuments, including the Roman town of Viriconium, one of the largest cities in Roman Britain, the mediaeval town walls of Shrewsbury, and the two ruined Abbeys of Haughmond and Buildwas. Ranging from the pre-history of the Upper Severn valley to the decline of Roman Viriconium and the subsequent growth of Shrewsbury, the Borough has a complex archaeological resource which contributes to the study of the past and an understanding of the development and growth of urban centres in the country. Shrewsbury is one of 30 towns chosen by English Heritage for a national programme designed to improve the management of the 'urban archaeological resource'.
6.5	The importance of pro-active conservation methods and their role in urban regeneration has been realised in recent years. Conservation programmes aimed at the repair and enhancement of historic buildings and areas can have a significant impact in attracting additional public sector funding and substantial private investment.

	National Guidance
6.6	The national framework and guidance for matters concerning Listed Buildings and Conservation Areas is provided by Planning Policy Guidance Note 15 'Planning and the Historic Environment'. This provides detailed guidance on issues ranging from the protection of Listed Buildings and Conservation Areas to the repair of historic buildings.


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6.7	Although Planning Permission may be required for works affecting Listed Buildings and buildings in Conservation Areas, there are by virtue of the Town and Country Planning (Listed Buildings and Conservation Areas) Act 1990 additional controls operating in respect of Listed Buildings and Buildings in Conservation Areas.
6.8	National guidance on archaeology is provided by Planning Policy Guidance Note 16 'Planning and Archaeology'. The guidance emphasises the importance of archaeology as a non-renewable resource and that it is best protected by being left in situ. Where development is essential the guidance note emphasises the importance of allowing for archaeological recording.
6.9	Government guidance in PPG15 and PPG16 confirms the importance of considering economic factors as well as the need to protect the historic environment. Successful conservation allows for change as well as protection. The emphasis is on controlled and positive management of change.
6.10	National Guidance is issued on behalf of the Secretary of State by English Heritage in the form of guidance notes such as 'Conservation Area Practice' published in 1995.

	Regional Guidance
6.11	The Regional Guidance for the West Midlands recognises the importance of preserving the regions rich and varied heritage. Development should therefore be sensitively designed and located and respect local distinctiveness, stressing that Local authorities should set out policies for the protection and enhancement of Listed Buildings, Conservation Areas and archaeological areas in accordance with PPG15 and PPG16.

	Strategic Guidance
6.12	At the County level, the Structure Plan Policies 2/22 and 2/23 seek to preserve and enhance Listed Buildings and/or Ancient Monuments. Policy 2/25 sets out the framework for Conservation Area policies. Policy 2/25A makes specific reference to policies for the conservation of Shrewsbury. Policy 2/26 seeks to protect, conserve and record archaeological sites and Policy 2/27 sets out the County Council priorities.


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	Objectives
6.13	Policies in this Plan have several overall aims, which have been summarised in the Introduction chapter. In this section, the Council's method of achieving the overall aims may be summarised in the following objectives:-
	· To protect and enhance Scheduled Ancient Monuments and sites of archaeological importance with a strong emphasis for preservation in situ.
	· To ensure that areas of archaeological potential are properly evaluated and that where preservation in situ is not warranted, there is proper recording.
	· To protect and enhance the buildings on the Statutory List of Buildings of Special Architectural or Historic Interest within the Borough, and to promote policies for their repair and protection from unsympathetic alteration or development.
	· To preserve and enhance Conservation Areas through the control of development, by promoting schemes for the repair of buildings and for the enhancement of spaces between buildings.
	· To preserve and enhance important historic landscapes including former mining areas, historic parks and gardens and battlefields.
	· To promote good design in new development throughout the Borough and to protect the form and skyline of Shrewsbury and other settlements.

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HE1 CHURCHES AND CHAPELS

PLANNING PERMISSION WILL ONLY BE GRANTED FOR EXTENSIONS TO OR ALTERATION OF CHURCHES AND CHAPELS WHERE SUCH DEVELOPMENT IS SEEN TO PRESERVE OR ENHANCE THE HISTORIC FABRIC OF A CHURCH OR CHAPEL.

Reasoned Justification

6.14

In those cases where ecclesiastical exemption applies, the Council will still expect work to be carried out in accordance with the guidelines for all Listed Buildings and to respect the character and integrity of the building. Church buildings form an important part of the architectural history and the built environment of the Borough. Seventy-one church or chapel buildings are included in the Statutory List of Buildings of Special Architectural and Historic Interest in the Borough. Many of these are exceptionally fine buildings whose demolition or deterioration would be damaging to the image of the Borough. The Council has a role in providing advice on the work carried out to churches and assisting the Church Authorities to maximise the grant aid that they can attract towards the repair of church buildings.

6.15

The regulations exempt listed churches of certain denominations from the need to apply for Listed Building Consent. Proposed works to such buildings are considered by the appropriate church's Advisory Committee which takes into account the architectural and historic issues. Planning permission may still be required for alterations or extensions.

6.16

Financial assistance towards the cost of structural repairs to Grade I and II* Listed Churches is currently available under the Historic Buildings and Ancient Monuments Act 1953. The Council will continue to offer assistance in obtaining grants from English Heritage and any other relevant sources for the repair of church buildings.

HE2 PROTECTION OF ARCHAEOLOGICAL REMAINS

THE COUNCIL WILL PROTECT SITES OF KNOWN OR SUSPECTED ARCHAEOLOGICAL IMPORTANCE AND WHERE DEVELOPMENT IS PROPOSED WILL REQUIRE THAT:

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(i)	The archaeological impact and implications of proposals are assessed by a professionally qualified archaeological organisation or consultant at an early stage and this assessment is submitted as part of the planning application;
(ii)	Important archaeological remains and their settings are permanently preserved in situ and displayed to the public where possible;
(iii)	Where in situ preservation is neither feasible nor warranted, applicants must secure the implementation of an agreed programme of archaeological investigation, including provision for on-site excavation and recording, post excavation work, and publication and curation of the archive, before any works take place on site;
(iv)	Where a programme of on-site excavation and recording, leading to post-excavation work, publication and curation of the archive is deemed necessary, applicants will be encouraged to enter into voluntary management agreements which will provide for appropriate and satisfactory provision for the excavation and recording of remains.

Reasoned Justification

6.17

The Borough Council will consult the County Sites and Monuments Record (SMR), held by Shropshire County Council, and will also seek advice, when appropriate, from the County Archaeologist and from archaeologists at English Heritage to ensure that archaeological evidence both above ground and below ground is properly identified, recorded and protected.

6.18

Archaeological remains are irreplaceable evidence of our society's past development, which are valuable not only for their own sake, but also for their role in education, leisure and tourism. Remains are a finite, non-renewable resource, vulnerable to damage and destruction and great care is needed to ensure their survival. Government advice contained in PPG16 advises that preservation in situ of important archaeological remains is always to be preferred.

6.19

The collection and management of archaeological information is essential in formulating policies for the archaeological resource and its future protection. The County Council Sites and Monuments Record (SMR) is the Borough wide inventory of known archaeological sites within the Borough. For Shrewsbury town centre, the Shrewsbury Urban Archaeological Database has been integrated into the Sites and Monuments Record and will give a comprehensive overview of the archaeological constraints on development within the historic core of Shrewsbury. The County Council also maintain a Shrewsbury Urban Archaeological Database which will be utilised where appropriate.

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6.20

The needs of archaeology and development can be reconciled and potential conflict very much reduced, if developers discuss preliminary plans for development with the Planning Authority at an early stage. The first step will be to contact the holder of the SMR, who can provide information about locations where archaeological remains are known or thought likely to exist, enabling assessment of the archaeological sensitivity of a site.

6.21

In appropriate cases, the management, display and enhancement of sites will be promoted.

6.22

The Council recognises the value of archaeological surveys to the planning process such as the Central Marches Historic Towns Survey, the Shrewsbury Urban Archaeological Database, the North West Wetlands Survey and the Wroxeter Hinterland Project.

HE3 THE PROTECTION OF NATIONALLY IMPORTANT MONUMENTS

PLANNING PERMISSION WILL NOT BE GRANTED FOR DEVELOPMENTS WHICH WOULD HAVE AN ADVERSE EFFECT ON THE SITE OR SETTING OF A SCHEDULED ANCIENT MONUMENT, OR OTHER NATIONALLY IMPORTANT SITES OR MONUMENTS.

Reasoned Justification

6.23

The basic means of protecting nationally important Scheduled Ancient Monuments is through their inclusion in the statutory list of Scheduled Ancient Monuments issued by the Secretary of State on the advice of the Historic Buildings and Monuments Commission (English Heritage). The Secretary of State for, Culture, Media and Sport with expert advice from English Heritage, deals with all applications for Scheduled Monument Consent. This is required for any work which would affect a Scheduled Ancient Monument, unless it falls within one of the specified categories exempted under the 'Ancient Monument (Class Consents) Order 1994'. The grant of Scheduled Monument Consent does not remove the need to obtain planning permission or vice versa. The existing Scheduled Ancient Monuments are shown on the proposals map and during the plan period, further sites may be identified as suitable for scheduling. The County Council also maintain a Shrewsbury Archaeological Database which will be utilised where appropriate. Where non-scheduled sites of nationally important ancient monuments are the subject of development proposals, the Council will follow the guidance given in Planning Policy Guidance Note 16 (Planning and Archaeology)


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6.24	Where archaeological research indicates that there are important above ground or below ground archaeological structures or monuments which make a significant contribution to the cultural heritage of the Borough, the Borough Council will seek the advice of English Heritage on whether they would recommend to the Secretary of State for the Department of Culture, Media and Sport their inclusion on the list of Scheduled Ancient Monuments. The Borough Council acknowledges that there is always a presumption in favour of the preservation of ancient monuments

	Listed Buildings
6.25	Listed Buildings are vitally important to our national identity and form a central part of our cultural heritage. They provide an irreplaceable record which helps to inform our understanding of both the past and present. Once lost, individual Listed Buildings which form the essential part of historic areas cannot be replaced. Listed Buildings also contribute to the economic well-being of the Borough by attracting tourism and providing floor space for businesses. The continued repair and maintenance of Listed Buildings creates a demand for craft skills which helps to train and keep a pool of skilled labour in the Borough. Government guidance contained in PPG15 emphasises the contribution that historic buildings can give to the economy of an area.
6.26	Whilst the majority of the Listed Buildings in the Borough are in reasonable repair, a 'Buildings at Risk' study, compiled in 1993, identified a number of Listed Buildings in the Borough which were in severe disrepair. Action targeted at these buildings has already started to reduce the number derelict properties.
6.27	Schemes such as the Shrewsbury Conservation Area Partnership (CAPS) offer grants towards the repair of selected historic buildings. These have proved to be successful in attracting private investment into Listed Buildings, thus assisting the regeneration of the town centre through preserving its heritage and improving its image. The Borough Council will encourage owners of derelict buildings to secure their repair and re-use by offering assistance in seeking resources for repairs and refurbishment. If an owner fails to carry out essential repairs to a Listed Building, the Council will be prepared to use its powers to secure the repair of the building. The Borough Council will also consider using its compulsory purchase powers in cases where owners fail to repair them, so that they may be handed on to new owners who will carry out the works.
6.28	The Council will, in partnership with English Heritage, contribute towards the maintenance of a 'Buildings at Risk' register and will encourage owners of buildings on the list to either repair the buildings or dispose of them to private individuals and commercial concerns who would be prepared to repair them.


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	Where no such interest is shown by others, the Council will encourage owners to dispose of the buildings at risk to a Building Preservation Trust (BPT). The Council will encourage the setting up of Building Preservation Trusts, and encourage existing Preservation Trusts to acquire 'Buildings at Risk' within the Borough in order to effect their proper repair and development. Building Preservation Trusts can attract funding not available to the Council or to private individuals or commercial concerns. Trusts can be essential partners where Listed Building Enforcement is being considered as BPTs can enter into joint arrangements with the Borough Council whereby the Borough Council can acquire and pass on to a Building Preservation Trust to repair.

	STATEMENT
	THE COUNCIL WILL SECURE THE RETENTION, REPAIR, MAINTENANCE AND CONTINUED USE OF LISTED BUILDINGS BY:-
	(i) Seeking support and funding from all available sources to set up grant and repair schemes;
	(ii) Using its powers to take action in the case of derelict Listed Buildings;
	(iii) Interpreting the Council policies to secure the retention of buildings of special architectural and historic interest, subject to reasonable standards of health and safety being ensured;
	(iv) Providing for specialist advice and guidance to owners; and
	(v) Maintaining and monitoring a Buildings at Risk Register.

	The Statutory List
6.29	Buildings are included in the statutory list because of their special architectural or historic interest. They are graded I, II* or II depending on their relative importance. Inclusion on the list means that consent is required for the demolition of a building in whole or in part, or for any works of alteration or extension, either internal or external, which would affect its special interest. It is a criminal offence to carry out works to a Listed Building without consent from the Local Planning Authority.
6.30	Responsibility for keeping the lists up to date lies with the Department of Culture, Media and Sport who are advised by English Heritage. The main method of implementing this policy will be by advising the Department of changes which are considered important and by requesting listing or regrading


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	where necessary. The Department of Culture, Media and Sport does add or delete buildings, or upgrade them, from time to time if they consider it appropriate. The last complete re-survey of Shrewsbury Town Centre buildings was carried out in 1995, but the lists in the rural areas of the Borough have not been revised since 1986.

	STATEMENT
	THE COUNCIL WILL KEEP THE STATUTORY LIST OF BUILDINGS OF SPECIAL ARCHITECTURAL OR HISTORIC INTEREST UNDER REVIEW AND WILL DRAW ATTENTION TO BUILDINGS WHICH APPEAR TO MERIT LISTING OR UPGRADING. THE COUNCIL WILL SERVE BUILDING PRESERVATION NOTICES IN APPROPRIATE CASES.
	THE BOROUGH COUNCIL ACKNOWLEDGES THE INTERNATIONAL IMPORTANCE OF THE FORMER DITHERINGTON FLAX MILL AS THE WORLDS FIRST IRON FRAME, FIREPROOF BUILDING. CONSTRUCTED IN 1797 AND LISTED (GRADE I) THE COUNCIL WILL SUPPORT MEASURES TO REGENERATE THIS IMPORTANT GROUP OF BUILDINGS PROVIDED THAT THE PROPOSALS ARE IN ACCORDANCE WITH THE HISTORIC ENVIRONMENT AND OTHER LOCAL PLAN POLICIES.

6.31	The Department's future priorities will be targeted towards particular building types which are known to be under-represented in the list. For example, there is increased emphasis on 20th Century buildings and industrial buildings forming groups in parks and gardens.

HE4 DEMOLITION OF LISTED BUILDINGS

PLANNING PERMISSION OR LISTED BUILDING CONSENT WILL NOT BE GRANTED FOR DEVELOPMENT WHICH INVOLVES DEMOLITION OF A LISTED BUILDING, UNLESS THE FOLLOWING CRITERIA ARE SATISFIED:-
(i)	that exhaustive efforts, over a sustained period of time, have been made to find an alternative use for the building, or
(ii)	that the present use cannot continue, or
(iii)	that a proven case has been made that the building is beyond economic repair, or

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(iv)	that in exceptional circumstances, the re-development of the site following demolition will bring substantial benefits to the community when tested against the presumption in favour of preservation.
APPLICATIONS FOR DEMOLITION MUST CONTAIN FULL JUSTIFICATION FOR PROPOSALS AND PROVIDE ALL INFORMATION NECESSARY TO JUDGE THE APPLICATION AGAINST THE FOLLOWING CRITERIA, INCLUDING DETAILED PLANS FOR ANY REDEVELOPMENT:
(i)	Planning permission or listed building consent has been granted and there is evidence that a contract has been let for the full implementation of the redevelopment proposals submitted in support of the application for demolition;
(ii)	The condition of the building and the cost of repairing and maintaining it in relation to its importance;
(iii)	The adequacy of efforts made to retain the building in use; or find a viable new use and demonstrate that preservation in some form of charitable or community use is not possible or suitable;
(iv)	That the merits of alternative proposals for the site would decisively outweigh the loss resulting from demolition and that redevelopment would produce sustained benefits to the community.
	CONSENTS MUST BE SUBJECT TO CONDITIONS TO ENSURE THAT: -
(i)	Planning permission or listed building consent has been granted and there is evidence that a contract has been let for the full implementation of the redevelopment proposals submitted in support of the application for demolition; and
(ii)	Provision is made for the Royal Commission on the Historical Monuments for England to record the building.

Reasoned Justification

6.32

Government advice contained in PPG15 states that there should be a general presumption in favour of the preservation of listed buildings. The prime consideration must be to have special regard to the desirability of preserving the building in its setting or any feature of historic interest it possesses when assessing applications for demolition.

6.33

The destruction of historic buildings is very seldom necessary for reasons of good planning; more often it is the result of neglect or of failure to make

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imaginative efforts to find new uses for them or to incorporate them into new development. This policy re-affirms the Council's commitment to the preservation of Listed Buildings throughout the Borough.

6.34

In determining applications for demolition of a Listed Building, the Council cannot grant consent without reference to the Secretary of State for the Environment. Evidence will be required to show that applicants have made all reasonable efforts to sustain existing uses or find viable new uses, and that these efforts have failed, or that preservation in some form of charitable or community ownership is not possible or suitable or that redevelopment would produce substantial benefits for the community which would decisively outweigh the loss resulting from demolition.

6.35

Demolition of a Listed Building, in whole or in part, without consent, is a criminal offence.

6.36

Partial demolition of a Listed Building, for example behind the front 'facade', will be treated in the same way as total demolition. Listing protects the whole of a building, it is just the exterior elevations which are subject to listed building control. In Shrewsbury, it is not unusual for a late brick facade to conceal a fine mediaeval or part mediaeval timber frame.

6.37

The Royal Commission on the Historical Monuments of England (RCHM) must be notified of all proposals to demolish Listed Buildings. The Commission must be permitted access to buildings which it wishes to record prior to demolition. Notification may also be required where radical changes or alterations are proposed to the interior or exterior of Listed Buildings.

HE5 ALTERATIONS TO LISTED BUILDINGS

PROPOSALS FOR THE EXTERNAL OR INTERNAL ALTERATIONS TO A LISTED BUILDING OR FOR THEIR EXTENSION, WILL ONLY BE PERMITTED PROVIDED ALL OF THE FOLLOWING CRITERIA ARE MET:-
(i)	the proposals do not adversely affect its architectural or historic character;
(ii)	applications for such alterations are accompanied by the full information necessary to assess the impact of the proposals on the building;
(iii)	works are of a high standard of design in terms of form, scale, detailing and materials;


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	Reasoned Justification
6.38	Listed buildings are nationally important because they represent the best of an historic and architectural built heritage. PPG15 describes them as a "finite resource and an irreplaceable asset". It establishes a particularly important principle relating to the alteration and extension of listed buildings and a general presumption in favour of preservation of listed buildings.
6.39	Once buildings are included on the Statutory List of Buildings of Special Architectural or Historic Interest, then Listed Building Consent is required to alter, extend, demolish or change the use of a Listed Building. In granting Listed Building Consent, the Council will take into account the advice given by the Secretary of State for the Department of Culture, Media and Sport in Planning Policy Guidance Note 15 (Planning and the Historic Environment). The granting of Listed Building Consent in no way removes the requirement to apply for Planning Permission when it would normally be required.
6.40	Before granting consent for alterations to Listed Buildings, the Council will need to be satisfied that all aspects of the proposal are justified and that the overall effect of the proposal is not detrimental to the architectural or historic character of the building. The Council will also need to be satisfied that the work can be carried out without danger to the fabric and structure of the building or to adjoining historic structures.
6.41	The implications of complying with other statutory requirements for example, Building and Fire regulations, will be taken into account in determining each application.
6.42	Plan forms should be retained where they are an integral part of the architectural layout of the building and so far as possible, all original features should be retained. Where this is not possible, careful attention must be given to the details of any replacements.
6.43	Applicants for Listed Building Consent must be able to justify the proposals. Full plans and elevations showing the proposed development together with details of adjoining properties and particulars of design, external appearance, materials and proposed landscaping will be required. This will allow a proper assessment of the likely impact of the proposal on the special architectural or historic character of the building. The guidance on alterations to Listed Buildings in Annex C of PPG15 should be referred to in drawing up proposals. Applicants are advised to contact the Planning Department at an early stage so that they may be advised of any special requirements or problems.

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HE6 NEW USES FOR LISTED BUILDINGS

CHANGE OF USE OF A LISTED BUILDING WILL ONLY BE PERMITTED IF THE APPLICANT CAN DEMONSTRATE THAT THE USE PROPOSED AND ANY CONSEQUENT ALTERATIONS WILL NOT BE DETRIMENTAL TO THE STRUCTURE, CHARACTER AND APPEARANCE OR SETTING OF THE BUILDING.

Reasoned Justification

6.44

The best way of securing the future of listed buildings is to keep them in active use, but this will often necessitate some degree of adaptation. Judging the best use requires balancing the economic viability of possible uses against the effect of any changes they entail on the special architectural or historic interest of the building or its setting. The optimum viable use compatible with the fabric, interior and setting of the listed building may not necessarily be the most profitable.

6.45

Whilst the best use will often be the one for which the building was originally designed, the nature of uses can change over time, as can the regulations governing them. In some cases, the original use may be less compatible with the building than the alternative.

6.46

The Council is prepared to be flexible in considering new uses in order to secure a building's survival. PPG15 makes it clear that the starting point for the exercise of listed building control is the statutory requirement to have special regard to the desirability of preserving the building or its setting, or any features of special architectural or historic interest which it possesses. Insensitive alterations and extensions can destroy the character which made the building worthy of listing.

6.47

It is essential that alterations to historic buildings necessary to accommodate a change of use take into account the needs of disabled people. However, great care will be needed to achieve solutions which do not detract from the character of the building and the area. Matching materials and details will help alterations to blend in, but sometimes alternative access arrangements may have to be considered.

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HE7 DEVELOPMENT AFFECTING THE SETTING OF A LISTED BUILDING

PLANNING PERMISSION WILL ONLY BE GRANTED FOR DEVELOPMENT WHICH PRESERVES THE SETTING AND IMPORTANT VIEWS OF LISTED BUILDINGS.

Reasoned Justification

6.48

Listed Buildings make an important contribution to their surroundings and are in turn affected by them. The Town and Country Planning (Listed Buildings and Conservation Areas) Act 1990 requires local authorities to have special regard to the desirability of preserving the setting of Listed Buildings when considering development proposals which affect a Listed Building or its setting.

6.49

Where development is proposed, primarily as a way of assisting the costs of repair of Listed Buildings, that is development known as "Enabling Development," then the Council believes that there should be a general presumption against enabling development which does not meet the following criteria:

1) The enabling development will not materially detract from the archaeological, architectural, historic, or landscape interest of the Listed Building, or materially harm its setting;

2) The proposal avoids detrimental fragmentation or management of the Listed Building;

3) The enabling development will secure the long term future of the Listed Building, and where applicable , its continued use for a sympathetic purpose;

4) The problem arises from the inherent needs of the Listed Building rather from the circumstances of the present owner or the purchase price paid;

5) Financial assistance is not available from any other source;

6) It is demonstrated that the amount of enabling development is the minimum necessary to secure the future of the Listed Building, and that its form minimises disbenefits;


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	7) The value or benefit of the survival or enhancement of the Listed Building outweighs the long-term cost to the community (i.e. the disbenefits) of providing enabling development.

6.50	Where the Council is of the opinion that a proposal for enabling development meets all the above criteria, and so on balance is acceptable, the Council believes that Planning Permission should only be granted if:
	1. The impact of the development is precisely defined at the outset , normally through the granting of full rather than outline Planning Permission; and
	2. The achievement of the repair of the Listed Building is securely linked to it by means of a Section 106 Agreement in accordance with the provisions of DOE Circular 1/97; and
	3. The Listed Building is repaired to an agreed standard, or the funds to do so made available, as early as possible in the course of the enabling development, ideally at the outset and certainly before completion or occupation.

6.51	The setting of a Listed Building is more extensive than its curtilage. The setting could be its garden, grounds, open space or the general street scene and, in the case of a particularly prominent building such as a church with a tower, may cover an extensive area. In such cases, the siting of buildings, even at some distance, may need careful consideration in order to protect important views. Under Article 5 of the General Permitted Development Order (GPDO), directions under Article 4, bringing certain categories of permitted development within planning control, can be made to bring under control unlisted buildings within the curtilage of a Listed Building, this is especially important when dealing with groups of farm buildings.
6.52	It is essential to consider the impact of development and other proposals in the vicinity of Listed Buildings. Development proposals will be given careful appraisal to ensure that the harmony produced by particular groupings of buildings and the quality of the spaces and views between them is not adversely affected. The preservation of nearby trees and landscape features and close control over the quality of design of new development in close proximity to a Listed Building will be essential to protect its setting.

	Conservation Areas
6.53	Conservation Areas provide attractive places to live and work and contribute to the quality of life for local people. Such areas are also attractive to visitors and help to promote a positive image of the Borough, encouraging new investment and tourism. Conservation Areas are defined in the Planning


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	(Listed Buildings and Conservation Areas) Act 1990 as areas of special architectural or historical interest, the character or appearance of which it is desirable to preserve or enhance. The Council has a duty under the Act to review designations from time to time and has taken the opportunity to carry out this review as part of the Development Plan process.
6.54	The Council intends to:
	· Identify further areas which could be considered for Conservation Area status;
	· Review existing boundaries to take account of current guidelines and changes which have taken place within those areas;
	· Enhance the character or appearance of Conservation Areas where possible;
	· Provide a framework for the preparation of more detailed 'character statements' for each Conservation Area.

6.55	In reviewing existing Conservation Areas and considering new ones, consistent standards must be applied, only areas of demonstrable quality should be designated. Deciding which areas are of special architectural or historic interest is a matter of judgement informed by locally based criteria. The quality and interest of a whole area must be considered, not just individual buildings. A typical assessment would normally consider some or all of the following:
	· Topographical development of the area, including ancient street patterns, planned layouts, historic land uses and relationship of buildings to open spaces;
	· Archaeological interest, including scheduled monuments or other recorded sites; buildings of architectural or historic quality and character or social interest;
	· Townscape and landscape value, including open spaces, trees and other natural features and the built fabric of the area including views into and out of the area;
	· Building materials and details typical of a particular locality, period or prevalent building type, and traditional paving materials and patterns.

6.56	Areas of Special Architectural or Historic Interest can be damaged by the loss of original features, the intrusion of alien development or poor repair. The impact of such negative elements will be taken into account in determining


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	whether designation, extension or de-designation is appropriate. However, the existence of negative elements within an area of otherwise special interest will not necessarily mean that designation is not appropriate. Designation can be a stimulus to regeneration and may allow resources to be brought to bear on the area's problems, bringing economic and social benefits as well as enhancing its character and appearance.
6.57	Since 1974, the Council has designated 17 Conservation Areas. These are: 1. Belle Vue 2. Harlescott 3. Meole Brace 4. Shrewsbury Conservation Area (designated in 1974 and extended 1981 & 1997) 5. The Mount, Shrewsbury 6. Acton Burnell 7. Alberbury 8. Astley 9. Cardington 10. Church Pulverbatch 11. Condover 12. Ford 13. Habberley 14. Harley 15. Plealey 16. Westbury 17. Upton Magna
6.58	A Conservation Area Assessment has been prepared for a number of the Character Areas within the Town Centre Conservation Area: 1. The Quarry 2. Abbey Foregate 3. Coleham 4. Mountfields 5. Frankwell & New Street 6. Castlefields and Spring Gardens.
	Further Assessments will be made of the following rural settlements. 1. Asterley 2. Bayston Hill 3. Longnor 4. Minsterley 5. Picklescott 6. Pitchford Village
6.59	Designation or extension will be based on an assessment of the character as set out in this policy and will be subject to local consultation. The majority of recent designations have been village centres. There are still parts of the urban fabric of Shrewsbury which may be worthy of designation, including areas to the north of the town which relate to the industrial heritage of Shrewsbury. The Council's approach to conservation is to consult local people on the merits of designation and to take their views into account. Where a decision is made to proceed with formal designation, an explanatory booklet is produced which sets out the policies to be applied and gives an appraisal of the area's character and historical development.
6.60	The Council, Following the advice contained in Paragraphs 4.21-4.24 of Planning Policy Guidance Note 15 (PPG 15) has after full consultation and support of residents, made use of its powers under the GDO to remove certain permitted development rights by the use of Article 4 Directions. The Council will continue to apply this policy where there is demonstrable public/residential support for such action. The withdrawal of permitted development rights would not be sought without a Conservation Area Assessment and a comprehensive public consultation prior to any approval by the Council. The Council also believes that it has a duty, from time to time to review Conservation Area boundaries and to apply Article 4 Directions where there is a clear justification and public support and where not to do so would constitute a clear threat to the character and appearance of the Conservation Area.

	STATEMENT
	THE COUNCIL WILL REVIEW THE BOUNDARIES OF EXISTING CONSERVATION AREAS, MAKE FURTHER DESIGNATIONS WHERE APPROPRIATE AND CARRY OUT AN ASSESSMENT OF THE SPECIAL INTEREST OF EACH AREA. ARTICLE 4 DIRECTIONS WILL BE IMPOSED TO CONTROL PERMITTED DEVELOPMENT WHERE APPROPRIATE.

	Preservation and Enhancement of Conservation Areas
6.61	Proposals for preservation and enhancement may take many forms, for example, some areas require no more than effective development control to protect their character, while others may require a more pro-active approach to solve existing problems. The Council will continue to monitor the enhancement needs of Conservation Areas and prepare programmes for regeneration and improvement, such as the Shrewsbury Conservation Area Partnership or the Visual Enhancement Scheme.
6.62	A key component of a positive approach to conservation is the use of limited grant aid to secure the proper repair of Listed Buildings and buildings in


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	Conservation Areas. The cost of repairing these buildings can often place a considerable burden on owners and it is quite often greater than that of ordinary buildings.
6.63	The Borough Council can assist in the process of repair and regeneration by seeking funds from private and central government sources and by making funds available itself as resources permit. Schemes such as the Shrewsbury Conservation Area Partnership have proved successful in attracting investment into the Town Centre Conservation Area and contribute towards the economic development of the Borough.
6.64	A plethora of signs and clutter can significantly detract from the appearance of a Conservation Area, and where appropriate, the Council will issue discontinuance orders to secure the removal of existing signs which are detrimental to the character and appearance of a Conservation Area. The Council will pursue appropriate action against unauthorised alterations to buildings in Conservation Areas which results in damage to the character and appearance of the area.
6.65	Where they do not already exist, character assessments will be prepared for each Conservation Area and additional planning guidance in the form of leaflets on individual Conservation Areas will be produced and updated where currently existing. These will provide detailed information on the reasons for an area's designation and its special features and set down the principles for the preservation and enhancement of its character. PPG15 emphasises that principles identifying why an area should be preserved or enhanced will almost always need to be developed.

	STATEMENT
	THE BOROUGH COUNCIL WILL TAKE POSITIVE ACTION TO SECURE THE PRESERVATION AND ENHANCEMENT OF CONSERVATION AREAS AND WILL:
	(i) Seek support and funding from all available sources for the repair of buildings and environmental improvements;
	(ii) Prepare action plans for priority areas;
	(iii) Use its available powers to secure the removal of features which significantly detract from the character of the area; and
	(iv) Provide planning policy guidance and advice to owners and developers.

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Consultation with Amenity Groups and Conservation Bodies

6.66

Listed Building and Conservation Area legislation requires that English Heritage together with five national Amenity Societies are consulted where there are applications to demolish listed buildings. A sixth society, the Twentieth Century Society is notified by the Victorian Society of relevant applications. Where there are applications affecting the site or setting of Historic Parks and Gardens, the Council will also seek the views of the Garden History Society . The Council also has a duty to notify English Heritage of applications affecting Grade I and Grade II* Registered Parks and Gardens. Where there are major applications with major design implications, the Council may also consult The Council for Architecture and the Built Environment (CABE). At the local level, the Council will also seek the views of Local Amenity Groups, such as the Shropshire Society of Architects, the Shrewsbury Civic Trust, and other representative amenity groups through the Development Services Liaison Group.

HE8 NEW DEVELOPMENT IN OR ADJACENT TO CONSERVATION AREAS

IN OR ADJACENT TO A CONSERVATION AREA, PLANNING PERMISSION WILL ONLY BE GRANTED FOR DEVELOPMENT WHICH PRESERVES OR ENHANCES ITS CHARACTER OR APPEARANCE. APPLICATIONS MUST BE ACCOMPANIED BY FULL INFORMATION NECESSARY TO ASSESS THE IMPACT OF THE PROPOSALS ON THE AREA, INCLUDING DETAILS OF DESIGN, MATERIALS AND LANDSCAPING. PROPOSALS WILL BE EXPECTED TO COMPLY WITH THE FOLLOWING CRITERIA TO:
(i)	Be of a high standard of design, use materials appropriate to its setting and context and respect the character and appearance of the Conservation Area;
(ii)	Pay special attention to conserving the essential elements which combine to give the area its special character and avoid changes which would detract from the character and appearance of the area;
(iii)	Preserve important views and vistas within, into and out of the Conservation Area including vistas and views from outside the boundary of the Conservation Area or adjacent to and affecting the setting of the Conservation Area;
(iv)	Avoid the loss of open space or landscape features, including trees and hedges important to the character of the area;

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(v)	Avoid generating levels of traffic, parking, noise or environmental problems of detriment to the character or appearance of the area; and
(vi)	Have satisfactory means of access and provide for car parking in a manner sympathetic to the appearance of the Conservation Area.

Reasoned Justification

6.67

The Council recognises the need to pay special attention to the preservation or enhancement of the character or appearance of Conservation Areas. In practice, this does not take the form of preventing all new development. The emphasis must be on the controlled management of change 'in context' where alterations, adaptation of existing buildings and the creation of new buildings is sympathetic in design, scale and use of materials within the existing character of the Conservation Area. Conservation means breathing new life into old buildings, sometimes by restoration, sometimes by sensitive development and sometimes by adaptation to a new use.

6.68

It is essential that new work is of the highest possible standard. Ideally, it should become as valued in the future as the best historic buildings are today. It follows that new development should not just be a pastiche of the old. Good contemporary design is to be welcomed, but should respond to and respect the integrity of the building's appearance and character. This involves retaining such features as the original internal layout and important architectural elements in the design.

6.69

PPG15 now advises planning authorities to assess the impact of development proposals adjacent to Conservation Areas. The desirability of preserving or enhancing the Conservation Area should also be a material consideration in the handling of development proposals which are outside the designated area, but which would affect its setting, or views into or out of the area.

6.70

Many Conservation Areas contain gap sites or buildings which make no contribution to, or detract from, its character and appearance. Redevelopment of these should stimulate high quality design and be seen as an opportunity to enhance the area. New buildings do not have to imitate earlier buildings, but should be designed with respect for their situation.

6.71

Good design need not necessarily be expensive. Development should be appropriate to its location, with special regard given to such matters as scale, height, form, massing, respect for traditional pattern of frontages, vertical or horizontal emphasis, local materials and detailed design (e.g. the scale and spacing of window openings).

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HE9 DEMOLITION OF BUILDINGS IN CONSERVATION AREAS

WHERE A PROPOSAL FOR DEVELOPMENT WOULD INVOLVE THE DEMOLITION OF AN UNLISTED BUILDING IN A CONSERVATION AREA, THE COUNCIL WILL HAVE REGARD TO THE ARCHITECTURAL AND HISTORIC CONTRIBUTION OF THE EXISTING BUILDING IN CONSIDERING WHETHER THE DEVELOPMENT PROPOSAL WOULD PRESERVE OR ENHANCE THE CHARACTER OR APPEARANCE OF THE CONSERVATION AREA.
CONSERVATION AREA CONSENT FOR THE DEMOLITION OF A BUILDING IN A CONSERVATION AREA WILL NOT BE GRANTED IF THE BUILDING MAKES A POSITIVE CONTRIBUTION TO THE CHARACTER OR APPEARANCE OF THE AREA. IF A BUILDING MAKES NO POSITIVE CONTRIBUTION, CONSERVATION AREA CONSENT WILL BE GRANTED ONLY IF THERE ARE ACCEPTABLE DETAILED PROPOSALS FOR THE RE-DEVELOPMENT OF THE SITE.

Reasoned Justification

6.72

Specific consent must be obtained for the demolition of buildings in Conservation Areas. PPG15 affirms that the general presumption should be in favour of the preservation and retention of buildings and structures which make a positive contribution to the character and appearance of the Conservation Area. Proposals to demolish such buildings will be assessed against the same broad criteria as proposals to demolish Listed Buildings.

6.73

In assessing whether buildings which are not listed make a positive contribution to the special architectural character or historic interest of a Conservation Area, the following criteria will be taken into account, as advised by English Heritage in their 'Conservation Area Practice Note' 1995:-

6.74

Whether the building or structure:

· has qualities of age, style, materials or characteristics common to other buildings in the Conservation Area;

· relates by age, materials or other historically significant way to adjacent Listed Buildings, and contributes positively to their setting;

· individually or as part of a group, illustrates the gradual development of the settlement in which it stands, or of an earlier phase of growth;

· has a significant historic association with established features such as the road layout, or with local people or events;

· has a landmark quality, or contributes to the quality of recognisable spaces;

· reflects the traditional functional character of, or former uses within, the area;

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· when associated with a designated landscape, such as walls, terracing, or a minor garden building, is of identifiable importance to the historic design.

6.75

Any one of these characteristics could provide the basis for deciding that a building makes a positive contribution to the special interest of a Conservation Area, provided that its historic form and qualities have not been seriously eroded by unsympathetic alteration. PPG15 also advises that where a building makes little or no contribution to the character of an area, the local planning authority still needs full information about what is proposed for a site after demolition. Consent should not be given without acceptable and detailed plans for redevelopment. More information on the requirements on new developments in Conservation Areas is given under Policy HE8.

6.76

Where a building makes little or no contribution to the character of the Conservation Area, proposals for demolition will be considered in the light of the alternative proposal for the site and the contribution made to preserving or enhancing the character of the Conservation Area.

6.77

In all cases, applications must be accompanied by all information necessary to assess the application against the above criteria, including fully detailed plans for redevelopment.

HE10 SHOPFRONTS ON LISTED BUILDINGS AND IN CONSERVATION AREAS

A NEW SHOPFRONT, OR REPLACEMENT, OR ALTERATION TO A SHOP FRONT, WILL ONLY BE PERMITTED IF:
(i)	it is sensitively designed, in relation to the building and surroundings, through the use of suitable materials with due attention paid to scale and proportion;
(ii)	security shutters are not located on the exterior of the shopfront;
(iii)	fascia and hanging signs are in keeping with the character and appearance of the shop front and building in terms of size and design;
(iv)	independent access to upper floors is preserved.

Reasoned Justification

6.78

Shopfronts may be regarded as transient features, but wherever they are of architectural or historic merit, it is important that they are retained and