Site: The Hub, Beaumont Fee, Lincoln, LN1 1UH Application No: 2016/0202/F Target Date: Agent: Stem Architects Ltd Applicant: Thomas Samuel Limited Development: Conversion of existing building (Block A) to 7 bedroom House in Multiple Occupation; partial demolition of existing building fronting Park Street and erection of five storey building (Block B) to accommodate 10 no. 1 bedroom apartments and 4 no. two bedroom apartments; erection of five storey building (Block C) to accommodate 227 sq metres commercial on ground floor (Use Classes A1, A2, A3, A4) and 33 room aparthotel above. Background Site Location The site extends from the corner of Park Street and Beaumont Fee, behind the existing Stokes warehouse on Mint Lane. The site fronts Beaumont Fee to the west, Park Street to the North, and Mint Lane to the east. Home nightclub is located east of the site and Age UK to the north. The existing building located on the corner of Park Street and Beaumont Fee is the former St. Martin’s parish hall. The western section of this building (fronting Beaumont Fee) is a two-storey structure. The rear single storey section has a frontage to Park Street. There are no buildings or structures on the eastern section of the site, which is largely used as a surface car park. The site is situated within the Cathedral and City Centre No.1 Conservation Area. Description of Development The proposed development has been split into three separate detached blocks, each featuring the range of accommodation as follows: Block A The existing two-storey west wing of the original building would be retained and converted into a seven bedroom House in Multiple Occupation (HMO). This property features a number of shared bathrooms with large communal Living Room and Kitchen. Block B The existing hall at the east end of the site would be demolished and replaced with a five storey building, featuring a combination of one bedroom and two bedroom duplex apartments. This building would be detached from the neighbouring warehouse. Block C A new five storey building is proposed on the existing car park which would accommodate a commercial unit on the ground floor, with serviced apart-hotel above. Planning History 2012/1351/F - Change of use from A1 and A3 to D1 and B1. APPROVED
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Site: The Hub, Beaumont Fee, Lincoln, LN1 1UH
Application No: 2016/0202/F
Target Date:
Agent: Stem Architects Ltd
Applicant: Thomas Samuel Limited
Development: Conversion of existing building (Block A) to 7 bedroom House in Multiple Occupation; partial demolition of existing building fronting Park Street and erection of five storey building (Block B) to accommodate 10 no. 1 bedroom apartments and 4 no. two bedroom apartments; erection of five storey building (Block C) to accommodate 227 sq metres commercial on ground floor (Use Classes A1, A2, A3, A4) and 33 room aparthotel above.
Background Site Location The site extends from the corner of Park Street and Beaumont Fee, behind the existing Stokes warehouse on Mint Lane. The site fronts Beaumont Fee to the west, Park Street to the North, and Mint Lane to the east. Home nightclub is located east of the site and Age UK to the north. The existing building located on the corner of Park Street and Beaumont Fee is the former St. Martin’s parish hall. The western section of this building (fronting Beaumont Fee) is a two-storey structure. The rear single storey section has a frontage to Park Street. There are no buildings or structures on the eastern section of the site, which is largely used as a surface car park. The site is situated within the Cathedral and City Centre No.1 Conservation Area. Description of Development The proposed development has been split into three separate detached blocks, each featuring the range of accommodation as follows: Block A The existing two-storey west wing of the original building would be retained and converted into a seven bedroom House in Multiple Occupation (HMO). This property features a number of shared bathrooms with large communal Living Room and Kitchen. Block B The existing hall at the east end of the site would be demolished and replaced with a five storey building, featuring a combination of one bedroom and two bedroom duplex apartments. This building would be detached from the neighbouring warehouse. Block C A new five storey building is proposed on the existing car park which would accommodate a commercial unit on the ground floor, with serviced apart-hotel above. Planning History 2012/1351/F - Change of use from A1 and A3 to D1 and B1. APPROVED
2008/0359/F - Change of use from business, research and training facility to retail (A1) and restaurant/café (A3), with continuation of office use. Installation of three replacement doors, extraction flue, provision of patio area to Beaumont Fee and access ramp to rear entrance. APPROVED 2002/0840/F - Erection of three and two storey extension to link buildings, new boundary treatment, layout and construction of parking area to rear. APPROVED Case Officer Site Visit Undertaken on 15th June 2016.
Issues National and Local Planning Policy The principle of the development Impact on the character and appearance of the conservation area Residential amenity Highways Archaeology Loss of trees Refuse Contaminated land Policies Referred to National Planning Policy Framework 18:Mixed Use Area Development 34: Design and Amenity Standards 56A: New Housing (Self Contained) Consultations Consultations were carried out in accordance with the Statement of Community Involvement, adopted May 2014. Responses Anglian Water Planning and Equivalence Team
Thorpe Wood House Thorpe Wood Peterborough PE3 6WT
Clare Lynch & Lee Hassall 1 Park Street Lincoln Lincolnshire LN1 1UR
Mark J Lilley Lincoln Quakers 1 Park Street Lincoln Lincolnshire LN1 1UR
Highways & Planning Lincolnshire County Council
Historic England Attn. Helen Woodhouse
Lincoln Civic Trust St Mary`s Guildhall
385 High Street Lincoln LN5 7RY
Lincolnshire Police Police Headquarters PO Box 999 Lincoln LN5 7PH
Two letters of objection have been received. The areas of concern principally relate to the following:
Noise and disturbance
Scale and height:
Loss of buildings
Air pollution & highway safety and congestion
Effects on trees Each of these issues will be considered within the main body of the report. Consideration of Issues National and Local Planning Policy Paragraph 14 of the National Planning Policy Framework outlines that “at the heart of the National Planning Policy Framework is a presumption in favour of sustainable development, which should be seen as a golden thread running through both plan-making and decision-taking. 56. The Government attaches great importance to the design of the built environment. Good design is a key aspect of sustainable development, is indivisible from good planning, and should contribute positively to making places better for people. 57. It is important to plan positively for the achievement of high quality and inclusive design for all development, including individual buildings, public and private spaces and wider area development schemes. 58. Planning decisions should aim to ensure that developments:
will function well and add to the overall quality of the area, not just for the short term but over the lifetime of the development;
establish a strong sense of place, using streetscapes and buildings to create attractive and comfortable places to live, work and visit;
optimise the potential of the site to accommodate development, create and sustain an appropriate mix of uses (including incorporation of green and other public space as part of developments) and support local facilities and transport networks;
respond to local character and history, and reflect the identity of local surroundings and materials, while not preventing or discouraging appropriate innovation;
create safe and accessible environments where crime and disorder, and the fear of crime, do not undermine quality of life or community cohesion; and
are visually attractive as a result of good architecture and appropriate landscaping.
61. Although visual appearance and the architecture of individual buildings are very important factors, securing high quality and inclusive design goes beyond aesthetic considerations. Therefore, planning policies and decisions should address the connections between people and places and the integration of new development into the natural, built and historic environment. The site is located within an area allocated as Central Mixed Use Area within the City of Lincoln Proposals Map and as such the following Polices require consideration. Policy 18 encourages a broad range of uses and activities in the Mixed-Use Areas defined on the Proposals Map. The ranges of acceptable uses are set out in Schedule A, of which Transport facilities are listed. Planning permission will be granted for developments involving this use providing a number of requirements are met:
If the development is to take place within a Conservation Area it must preserve or enhance the character or appearance of that Area;
The development must not result in the area in which it is to be located losing its mixed-use character;
The development must be generally consistent with other policies in the Local Plan which relate to the particular use or uses involved in that development, the built Environment and the Natural Environment and Open Space, and must also be consistent with the objectives and policies for Access, Transport and Communications;
The development must not harm the local environment, or the amenities which occupiers of nearby properties may reasonably expect to enjoy, (for example, by causing unacceptable levels of disturbance, noise, smell, fumes, dust, grit or other pollution, or reducing daylight, outlook or privacy to an unacceptable degree)bearing in mind that all mixed-use Areas should provide a satisfactory environment for homes;
The development must not result in levels of traffic or on-street parking which would cause either road safety or amenity problems.
Policy 34 indicates that planning permission will be granted for new buildings as long as they meet the following requirements:
the scale, massing, height, design, external appearance and facing materials to be used in the development must complement the architectural style and townscape character of the locality;
the siting and layout of any new building or extension must ensure a satisfactory physical and functional relationship to adjoining buildings and streetscape;
the amenities which occupiers of neighbouring properties may reasonable expect to enjoy must not be harmed by, or as a result of, the development.
The Principle of the Development
The proposed development is located within the Central Mixed Use area as defined in the City of Lincoln Local Plan. Residential and Hotel uses are considered acceptable in this area and as such it is considered that the proposals would be acceptable in principle subject to further policy criteria being met. Impact of the Proposed New Development on the Character and Appearance of the Conservation Area Historic England have commented on the proposals and have the following view “the former parish hall is a building of townscape merit that contributes positively to the character and appearance and overall significance of the Cathedral and City Centre Conservation Area. We advise that the partial loss of this building would result in harm to this significance. We believe that the form and scale of the proposed 5 storey blocks would neither preserve nor enhance the character and appearance of the conservation area, and that this would cause a high level of less than substantial harm to the significance of the conservation area.” These issues will now be dealt with in turn. Partial Demolition of the Existing Building Pre application discussions were entered into with the applicants. The LPA have sought to resist the demolition of St Martins Hall, an undesignated heritage asset in the arts and crafts style which is considered to make a positive contribution to the character and appearance of the City and Cathedral conservation area. The simpler detailed rear section of the building is not considered as architecturally significant. Therefore the partial retention and incorporation of the front part of the hall into the scheme is welcomed. New Buildings Blocks B and C would be five storeys in height. Historic England consider that Block B, when viewed from Beaumont Fee would form an uncharacteristic and stark backdrop to the former parish hall and it neighbours. However they acknowledge that the height of the buildings is less of an issue when viewed from Mint Lane when read in the context of the warehouse, and where the elevations in general seem to have a better relationship with their context. View from Beaumont Fee The relationship between the new development and the parish hall would be very similar to the existing townscape, with the taller stokes warehouse located behind the parish hall. It is considered that whilst the new developments pulls a taller element of the building closer to Beaumont Fee some of the impact would be mitigated by the use of glazing to break up the visual impact. Minimal work is proposed on the existing building to enable its change of use to a 7 bedroom property. The existing timber doors and window units are to be replaced with new matching white painted timber framed units where required and the existing brick walls and slate roof coverings are to be retained. The two objections received have been from occupants of the Friends Meeting house at No.1 Park Street. This property is located at least 40metres from the development site, further to the new 5storey block and would be loacted across a two lane road. It is considered that at the oblique angle of the view together with the sepraton distance
would be sufficient to ensure that the occupants of No.1 Park Street would not have their residential amenity adversely affected, in accordance with local plan policy 34. Given the location, proposed design and intervening features it is not considered that the development would harm the significance of the listed Friends Meeting House by affecting its setting. View from Park Street Whilst St Martins Parish Hall’s modest scale is consistent with the more intimate grain which characterises Beaumont Fee, to the rear, Park Street has a more transitional character. Park Street sees a rising in height with a number of multi storey buildings. In terms of the scale of Block B, referencing the warehouse and other 3 and 4 storey buildings along Park Street is considered acceptable as, in both location, form and massing, the new development visually relates to these precedents rather than Beaumont Fee. Following discussions with the Local Planning Authority the applicants have made some revision to the design of Block B with the Revisions to the ground floor windows on the elevation fronting Park Street. These windows have been widened to better relate to the windows at the upper floors and to ensure that there is visual interest to those using Park Street. Block B & C would be of the same construction, and would feature facing bricks to the ground floor and rear elevations. Corten weathered steel cladding would be used to the upper storeys of the elevations fronting Park Street and Mint Lane. This is a welcomed use of a high quality material that would bring visual interest to the more prominent elevations of the scheme. The windows would feature dark grey powder coated aluminium window frames and double glazing. The window openings to the upper storeys would feature deep recesses with angled reveals. Both Blocks B & C would feature a flat roof, and Block B would also include pitched attic-truss roof elements with slate roof coverings to tie in with the vernacular of the Stokes warehouse. Taking design references from the adjacent warehouse building has allowed for a simply detailed building with strong geometry and the added visual interest with the use of corten to emphasis the industrial character of this particular location. View from Mint Lane In views along Mint Lane, the new development is a convincing extension to the warehouse building. It is particularly successful at ground floor where it engages more successfully with the pedestrian. The roof detail is unusual, however, in reality this will have a limited impact as views towards it will be limited by the constraints of the townscape. The elevation to the south of the development facing into the existing car park would remain largely blank. This is considered beneficial as it does not stifle any future development to the south of the site. Residential Amenity Policy 18 of the local plan sets out that all mixed-use Areas should provide a satisfactory environment for homes, this is both for current and future occupants. Therefore the development must not harm the amenities which occupiers of nearby properties may reasonably expect to enjoy.
A noise assessment has been submitted as part of the application to assess the impact of neighbouring uses on the proposed residential uses. Within the new build element, Block B, a good standard would be achieved, with a reasonable standard achieved in block A to be renovated. This is considered to be a reasonable and a level appropriate given the surrounding uses and overall context of this mixed use area. In terms of the impacts on existing properties it is considered that the proposed uses would be an acceptable use in this area and would not give rise to excessive levels of noise or other environmental affects expected within a mixed use area. In fact a residential use would be considered a less intrusive use than some other the other uses in the more immediate area which operate late at night. In order to mitigate any impacts during the construction phase of the development the applicant would be required to provide a construction management plan. This plan would be required to set hours the hours of operation on site which would ensure that no works takes place outside of the appropriate hours. There is no specific detail provided regarding the proposed commercial use in Block C as no end user has been agreed. Due to the proposed A3/A4 use there is the potential for the unit to include commercial cooking and therefore may require kitchen extraction. Commercial kitchen extraction systems can cause significant disturbance when located close to other sensitive development due to both emissions of odour and noise. Therefore should permission be granted it would be appropriate for a condition to be included which would specify these details. It is therefore considered that amenity would not be harmed as a result of this development. Archaeology The Lincoln Archaeological Resource Assessment indicates that there is potential for remains to be recovered in this area relating to several Research Agenda Zones. Some of the most significant of these are;
7.11.4 – Roman houses within the walled lower city,
7.20 – Temple complexes in the Roman lower city
9.37 – The High medieval mint and jewellery quarter
There have been no large-scale archaeological investigations undertaken either on the site itself or within a radius of 100m. The nature, extent and significance of the remains present on the site is therefore difficult to estimate without further evaluation. However, the Heritage Impact Assessment supplied with the application clearly indicates that there is a high potential for archaeological remains to be encountered during groundworks. The HIA states that there is a particularly high potential for Roman remains to be present, with a lesser but still significant chance that remains from the Saxon and Medieval periods may be encountered. Although the site is not scheduled, it lies within the Ancient Monument 115A area of archaeological interest. This local designation defines areas that, although not scheduled, are likely to include archaeological remains of equal significance to those identified as Scheduled Ancient Monument 115. It is therefore considered that the undesignated archaeology of the site is subject to those policies in NPPF that apply to designated heritage assets, as indicated by paragraph 139 of that document.
It is likely that the most significant archaeological deposits on the site will be protected by a significant depth of material. As such it is unlikely that they will be impacted by excavations for ground beams and pile caps. There will be an impact from any piles that may be used in the foundation design, but if this is kept to a level commensurate with the guidance provided by Historic England it is considered that the level of harm to Roman archaeological deposits will be less than substantial. It is considered that the impact of development on the archaeology of the site can be appropriately mitigated, subject to the provision of an approved foundation design and written scheme of investigation. This should be specified by appropriate planning conditions. Loss of Trees There would be no loss of trees as a result of the proposed development. Highways The Highways Authority have asked for additional information to be supplied to show that vehicles are able to enter and leave the site in a forward gear. This is to ensure the safe movement the vehicles. The only vehicles entering the site would be those delivering to Block C and general servicing of the properties. It is considered that such details could be secured by condition prior to development commencing on site. The objections received have highlighted increased congestion as a result of the development. However the development would be pedestrianised and no parking would be provided on site. With this and the proximity of the site to the City Centre and public transport facilities it is considered to be in a sustainable location and would have no impact on the local road network in terms of additional car usage. Refuse The development will provide a new secure bin west of the courtyard, which would accommodate up to size 1100 litre commercial refuse containers. Refuse would be presented to and collected from Beaumont Fee. Contaminated Land Due to past uses on and in the vicinity of the site (e.g. adjacent warehouse) there is the potential for significant contamination to be present. As no preliminary risk assessment has been submitted as part of the application a condition could be attached to any permission granted which requires the information to be submitted prior to the commencement of development. Conclusion The built context of the site includes a range of form and massings and the proposed development has responded to the design and scale of adjacent and nearby buildings. The modern design is also sympathetic and whilst simple the contemporary interpretation and innovative materials provides a visually attractive development. It is therefore considered that the proposals would preserve and enhance the character and appearance of the conservation area and resolve the currently unsightly gap site on Mint Lane. The proposals would have no adverse impacts on neighbouring properties and would provide a good level of amenity for the occupants of the proposals.
It is therefore considered that the proposals would be in accordance with policies set out within the National Planning Policy Framework and the City of Lincoln Local Plan. Financial Implications None. Legal Implications None. Application Negotiated Either at Pre-Application or During Process of Application Yes. Equality Implications None. Application Determined Within Target Date Yes.
Recommendation Grant Conditionally Conditions
Full materials condition including brick sample panel including bonding and mortar
Profiles and colour of framing for openings
Additional highway information
Development to be commenced within 3 years
Development to be carried out in accordance with the submitted plans
Archaeology Conditions to include foundation design details and final WSI
Standard contaminated land conditions
Details of the kitchen extraction equipment for the potential use of Block C
Construction management plan to include hours of operation Report by: Planning Manager
Site Location Plan
Site Block Plan
Ground Floor Plan
Elevations
Fronting Mint Lane
Fronting Park Street
Fronting Beaumont Fee
South Elevation Within the Site
Rear of Block C
South Elevation of Block C
View from Beaumont Fee
View on Park Street
View on Mint Lane
Visuals
Photographs Views from Mint Lane
Views from Beaumont Fee
View of Building to be Demolished
Consultee Responses Lincolnshire Police
LINCOLNSHIRE POLICE POLICE HEADQUARTERS PO Box 999 LINCOLN LN5 7PH Fax: (01522) 558128 DDI: (01522) 558292 email [email protected]
Your Ref: App. 2015/0202/F 4th April 2016 Our Ref: PG// Development & Environmental Services City Hall, Beaumont Fee Lincoln, LN1 1DF
Thank you for your correspondence and opportunity to comment on the proposed development. I would request that you consider the following points that if adhered to would help reduce the opportunity for crime and increase the safety and sustainability of the development. Historically HMOs can become vulnerable to crime and anti-social behaviour therefore it is important that the best security arrangements and provision are planned for such premises. Lincolnshire Police has no formal objections to the planning application in principle but would recommend that the advisory recommendations are implemented.
Perimeter
Where fencing is to be used either internally (depending on location advice from CPDA) or as part of the external boundary this should be a minimum of 1.2 m (not security fencing) effective and to (quality and standard can be determined by local conditions and can be advised on by the CPDA) but not that creates a ‘fortress’ mentality. Fencing should not be positioned adjacent to convenient aids to climbing over the fence line, i.e. trees, lamp columns or buildings. Please note side gates Block ‘C’ West Elevation- suggest 2m height – must be secured and not be able to be used as a climbing aid. External doors and windows The secured by design requirement for all dwelling external doors is PAS 24.2012 (doors of an enhanced Security) or WCL 1 (WCL 1 is the reference number for PAS 23/24 and is published by Warrington Certification Laboratories). All ground floor windows and doors and those that are easily accessible from the ground must conform to improved security standard PAS24:2012. Individual Flat or Unit Doors. Flat entrance door-sets should meet the same physical requirements as the ‘main front door’ i.e. PAS24:2012. The locking hardware should be operable from both sides of an unlocked door without the use of the key (utilising a roller latch or latch operable from both sides of the door-set by a handle). If the door-set is certified to either PAS24:2012 or STS 201 Issue 4:2012 then it must be classified as DKT.
Building Regulations (October 1
st 2015) provides that for the first time all new homes will be included
within Approved Document Q: Security – Dwellings (ADQ). Approved document Q applies to all new dwellings including those resulting from change of use, such as commercial premises, warehouse and barns undergoing conversions into dwellings. It also applies within Conservation Areas. This will include doors at the entrance to dwellings, including all doors to flats or apartments, communal doors to multi-occupancy developments and garage doors where there is a direct access to the premises. Where bespoke timber doors are proposed, there is a technical specification in Appendix B of the document that must be met. Windows: in respect of ground floor, basement and other easily accessible locations. Homes of Multi-Occupancy – Communal Areas & Mail Delivery Where communal mail delivery facilities are proposed and are to be encouraged with other security and safety measures to reduce the need for access to the premises communal letter boxes should comply to the following criteria.
Located at the main entrance within an internal area or lobby (vestibule) covered by CCTV or located within an ‘airlock style’ entrance hall.
Be of a robust construction (Federation Technical Specification 009 (TS009)
Have anti-fishing properties where advised and appropriate.
Installed to the manufacturers specifications.
Through wall mail delivery can be a suitable and secure method. Security Control Access System Where there are between four and nine residential units sharing a communal entrance the doors should include an access control system with an electronic lock release and visitor door entry system with colour images and audio communication. These developments should have a visible entrance system that meets the requirements of the Equality Act 2010 vandal resistant external door entry panel with an integral or remote camera, providing colour images and audio communications between the resident and visitor. We would not recommend under any circumstances the use of a trade button. Lighting Lighting should be designed to cover the external doors and be controlled by photoelectric cell (dusk to dawn) with a manual override. The use of low consumption lamps with an efficacy of greater than 40 lumens per circuit watt is required; it is recommended that they be positioned to prevent possible attack. Cycle Storage Structure (if to be included) Generally pedestrian access doors-sets to commercial units should be certified to LPS 1175 security rating 2. The access controlled door should be designed in such a way that the hinges and door-sets are of a non-lift nature and non-tamper proof. The door locks must be operable by way of a thumb screw turn to avoid any person being accidently locked in the cycle storage area. Lighting within cycle storage area; automatically activated passive infra-red lighting should be considered rather than permanent lighting to which other users become accustomed and therefore activation would not draw any attention. Lighting units should be vandal resistant energy efficient light fittings. Bin Storage Internal communal bin and bicycle stores within blocks of flats must have no windows and be fitted with a secure door set that meets the same physical specification as ‘front door’ and specifically Section 2, paragraphs 21.1 to 21.6 and 21.8 to 21.13. This will ensure that such stores are only accessible to residents. The locking system must be operable from the inner face by use of a thumb turn to ensure that residents are not accidentally locked in by another person. A bicycle store must also be provided with stands with secure anchor points or secure cycle stands.
External bins stores and home composting containers (supplied to meet ‘Code for Sustainable Homes’ ‘Was 3’) should be sited in such a way that they cannot be used as a climbing aid to commit crime. Utilities In order to reduce the opportunities for theft by ‘bogus officials’ the utility meters should, where possible, be located to the outside of the dwelling at a point where they can be overlooked. This will negate the need for an official to enter the building in order to read a meter, which will in turn reduce the opportunity for distraction burglary. Where possible utility meters in multi occupancy developments should be located on the ground floor between access controlled doors (air lock system) so that access can be restricted to the meters Note 33.1: Where a utility provider refuses to provide external meters, and there is an obvious (historic) risk of distraction burglary within the location, the developer should consider an alternative supplier. Landscaping Landscaping should not impede the opportunity for natural surveillance and must avoid the creation of areas of concealment. Any landscaping should be kept to a maximum growth height of 1 metre. Whilst any tree should be pruned to a minimum height of 2 metres, thereby maintaining a clear field of vision around the development. Trees when fully grown should not mask any lighting columns or become climbing aids.
Please do not hesitate to contact me should you need further information or clarification.
Please refer to New Homes 2014 which can be located on www.securedbydesign.com
Crime prevention advice is given free without the intention of creating a contract. Neither the Home Office nor the Police Service takes any legal responsibility for the advice given. However, if the advice is implemented it will reduce the opportunity for crimes to be committed. Yours sincerely, John Manuel MA BA(Hons) PGCE Dip Bus. Force Crime Prevention Design Advisor
Environment Agency The Environment Agency does not wish to make any comments on this application. It does not appear to match any of the criteria on our consultation checklist (attached). However, if you believe you do need our input please contact me to discuss. Kind regards Nicola Farr Sustainable Places - Planning Advisor Environment Agency Waterside House, Waterside North, Lincoln, LN2 5HA 0203 02 55023 (Please note new phone number) [email protected]
Awarded to the Environment, Planning and Engagement Department, Lincolnshire &
2nd Floor, WINDSOR HOUSE, CLIFTONVILLE, NORTHAMPTON, NN1 5BE Telephone 01604 735460 HistoricEngland.org.uk Historic England is subject to the Freedom of Information Act. 2000 (FOIA) and Environmental Information Regulations 2004 (EIR). All information held by the organisation will be accessible in response to an information request, unless one of the exemptions in the FOIA or EIR applies.
Historic England Ms Lana Meddings Direct Dial: 01223 323452 City of Lincoln Council City Hall Our ref: P00506677 Beaumont Fee Lincoln LN1 1DD 21 April 2016 Dear Ms Meddings Arrangements for Handling Heritage Applications Direction 2015 & T&CP (Development Management Procedure) (England) Order 2015 THE HEALTHY HUB , BEAUMONT FEE, LINCOLN, LN1 1UH Application No 2016/0202/F Thank you for your letter of 1 April 2016 notifying Historic England of the above application. Summary The planning application is for the proposed partial demolition and conversion of the former parish hall - a building currently known as the Healthy Hub, Beaumont Fee; plus the erection of two new 5 storey blocks, for mixed use commercial and residential use. We have been consulted on the basis that the proposed development constitutes development within a conservation area where the area of the application site is greater 1000 square metres, and also because the proposed development would be greater than 20 metres in height [within a conservation area]. The development site also lies within the setting of the Lincoln Roman Colonia which is a scheduled monument. Our advice is given in accordance with the Planning (Listed Buildings and Conservation Areas) Act 1990, the NPPF, the Planning Practice Guide and the Historic Environment Good Practice in Planning Notes 2 and 3. In our view, the former parish hall is a building of townscape merit that contributes positively to the character and appearance and overall significance of the Cathedral and City Centre Conservation Area. We advise that the partial loss of this building would result in harm to this significance. We believe that the form and scale of the proposed 5 storey blocks would neither preserve nor enhance the character and appearance of the conservation area, and that this would cause a high level of less than substantial harm to the significance of the conservation area. In accordance with the NPPF, in determining this planning application it will be for your authority to weigh the degree of harm caused to the heritage asset, against any public benefits deriving from the proposed scheme, and to consider whether clear and convincing justification has been provided. In our view, the existing former parish hall contributes positively to the significance of the conservation area and we would strongly encourage its retention and re-use. It is also our view that the proposed new development would neither preserve nor enhance the character and appearance of the conservation area, nor would it make a ' positive contribution to local character or distinctiveness' - Paragraph 131 NPPF. Historic England Advice Significance
The Cathedral and City Centre Conservation Area was designated in 1968, and the former parish Hall, which is located on the junction of Beaumont Fee and Park Street, lies within this designated area. The building which dates from the inter-war years is not listed, but in our view makes a positive contribution to the character and appearance of the conservation area, by way of marking the corner, and in that it conforms to the general scale and storey heights of the area. There is no Conservation Area Appraisal for the City and Cathedral Conservation Area, but a character statement has been produced and adopted by the local planning authority which covers the Newland area. This statement note the general character as being one of small scale brick buildings predominantly of 2-3 storeys high, medium to high solid-to-void ratios, with roofs generally pitched and gabled, with roof lines facing the road and covered with slate. We acknowledge that the Stokes warehouse is of 4 storeys, but we consider that is something of an anomaly, which stands very much alone and that it read as such within the context of the surrounding townscape, without appearing too dominant . Impact of the scheme There are two aspects of the proposal to consider - the impact of the proposed partial demolition of the former parish hall, and the impact of the proposed new development on the character and appearance of the conservation area. Proposed demolition The proposed demolition of the former parish hall is in our view harmful to the character and appearance of the Cathedral and City Centre Conservation Area. The planning application does not provide any clear justification for demolition of the rear part of the hall, nor has any convincing evidence been presented as to why this part of eh building cannot be retained and reused. New Development The proposed new blocks are of five storeys with flat roofs, in a mixed palette of material which includes brick, corten steel cladding, and aluminium. Overall the proposed blocks make limited reference to the prevailing character and appearance of the conservation area, particularly in terms of their scale/storey height, or their architectural design and form, and in our view they do not respond particularly well to their context . While there may be some positive townscape benefits to be had, for example ‘repair’ of the Mint Lane frontage, where the current car park leaves a gap in the streetscene, from particular vantage points, the effect of their scale has a negative impact upon the character and appearance of the conservation area. In particular, when viewed from Beaumont Fee, the proposed block would form an uncharacteristic and stark backdrop to the former parish hall and it neighbours, that would loom over them and compete for attention, as can be seen in the photomontages that have been submitted with the application. The squared-off, flat roof profile with large area of glazing would in our view appear particularly incongruous within this context. This seems to be less of an issue when viewed from Mint Lane (visual 2 & 4) when read in the context of the warehouse, and where the elevations in general seem to have a better relationship with their context. However, on balance we conclude that the proposed blocks would neither preserve nor enhance the character and appearance of the conservation area. Overall, it is our assessment that the partial demolition of the former parish hall would cause a high, but less than substantial level of harm to the overall significance of the conservation area. It is also our view that the proposed new development would neither preserve nor enhance the character or appearance of the conservation area or make a positive contribution to ‘local character or distinctiveness’ (Paragraph 131, NPPF). Policy As the application affects a conservation area the statutory requirement within Section 72 (1) of the Planning (Listed Buildings and Conservation Areas) Act 1990 is for your authority to pay special attention to the desirability of preserving or enhancing the
character or appearance of that area when making your decision. The courts have held that considerable importance and weight must be given to this consideration. Your authority should aim to achieve the objective of sustainable development which means development that achieves social, economic and environmental gains. Conservation of the historic environment is recognised as one of the 12 core principles of sustainable development in the NPPF. The importance attached to significance with respect to heritage assets is also recognised by the Government’s National Planning Policy Framework (NPPF) and in guidance, including The Planning Practice Guidance. The NPPF defines significance as ‘The value of a heritage asset to this and future generations because of its heritage interest'. That interest may be archaeological, architectural, artistic or historic. Significance can be harmed or lost through development and any harm or loss to significance ‘should require clear and convincing justification’ (paragraph 132, NPPF). Paragraph 131 of the NPPF, reminds us that in determining planning applications, local planning authorities should take account of:
the desirability of sustaining and enhancing the significance of heritage assets and putting them to viable uses consistent with their conservation;
the positive contribution that conservation of heritage assets can make to sustainable communities including their economic vitality; and
the desirability of new development making a positive contribution to local character and distinctiveness We also refer to paragraphs 137 and 138 specifically with regard to conservation areas. In accordance with paragraphs 132 and 134 of the NPPF it will be for your authority to consider the justification put forward for this scheme, and to balance all planning matters, including any public benefit that may accrue from the proposal, and attaching appropriate weight to heritage matters as set out in the Planning (Listed Buildings and Conservation Areas) Act 1990 Act and the NPPF. Position From our assessment, we believe the former parish hall contributes positively to the significance, character and appearance of the Cathedral and City Centre conservation area and demolition of its rear part would result in harm to this significance. Paragraph 138 of the NPPF states : Loss of a building (or other element) which makes a positive contribution to the significance of the Conservation Area or World Heritage Site should be treated either as substantial harm under paragraph 133 or less than substantial harm under paragraph 134, as appropriate, taking into account the relative significance of the element affected and its contribution to the significance of the Conservation Area or World Heritage Site as a whole. We judge the harm to be less than substantial harm. This however does not equate to acceptable harm, or make this application appropriate or justified. There are an increasing number of recent cases where this point has been demonstrated and tested at appeal. We refer you the recent appeal decision at South Wingfield, Derbyshire.- APP/M1005W/15/3006136. It is therefore essential that your authority gives the heritage asset its proper weight and special regard in accordance with the 1990 Act when weighing up all planning considerations with this scheme. If your authority is convinced that the circumstances exist in this case to justify such a level of harm then it is also our view that the proposed new development would neither preserve nor enhance the character and appearance of the area, nor would it make a ‘positive contribution to local character and distinctiveness’ (paragraph 131, NPPF). Recommendation In accordance with the NPPF, in determining this planning application it will be for the your authority to weigh the degree of harm caused to the heritage assets, against any public
benefits deriving from the proposed scheme, and to consider whether clear and convincing justification has been provided - paragraphs 131, 132 and 134. We believe the existing former parish hall contributes positively to the significance of the conservation area, and we therefore strongly encourage its retention and re-use. We also recommend that your authority negotiates amendments to the proposed scheme to address those issues that we refer to above regarding the design and appearance of the new blocks. We refer you to your in-house conservation and archaeological staff for guidance with regard to issues relating to all other designated and undesignated heritage assets within whose setting the application site may lie. Please contact me if we can be of further assistance. We would be grateful to receive a copy of the decision notice in due course. This will help us to monitor actions related to changes to historic places. Yours sincerely Neville Doe Assistant Inspector of Historic Buildings and Areas E-mail: [email protected] Cc Highways and Planning
Environment & Economy Unit 4, Witham Park House
Waterside South, Lincoln LN5 7JN Tel: (01522) 782070
With reference to this application dated 31 March 2016, relating to the following proposed development: Address or location The Healthy Hub, Beaumont Fee, Lincoln, LN1 1UH Classification/Number of road to which the site gains access: [no. of road] Date application referred by the LPA 1 April 2016
Type of application: Outline/Full/RM/: Full Planning Application
Description of development Conversion of existing building (Block A) to 7 bedroom House in Multiple Occupation; partial demolition of existing building fronting Park Street and
erection of five storey building (Block B) to accommodate 10 no. 1 bedroom apartments and 4 no. two bedroom apartments; erection of five storey building (Block C) to accommodate 227 sq metres commercial on ground floor (Use Classes A1, A2, A3, A4) and 33 room aparthotel above. Notice is hereby given that the County Council as Local Highway and Lead Local Flood Authority:
Requests that the Local Planning Authority request the applicants to provide additional information as set out below.
CONDITIONS (INCLUDING REASONS) /REASONS FOR REFUSAL/ADDITIONAL INFORMATION REQUIRED The Highway Authority would request the applicant confirms the service arrangements for the commercial premises and the apart-hotel. On site turning will be required in order that a vehicle can turn within the site to exit in a forward gear.
Case Officer: John Clifton for Mark Welsh Flood Risk and Development Management Civic Trust Dear Helen
Re: Application for Planning Permission No: 2016/0202/F - The Healthy Hub, Beaumont Fee, Lincoln, LN1 1UH
I am writing to object to the application noted above of the planned conversion of existing building (Block A) to 7 bedroom House in Multiple Occupation; partial demolition of existing building fronting Park Street and erection of five storey building (Block B) to accommodate 10 no. 1 bedroom apartments and 4. no. two bedroom apartments; erection of five storey building (Block C) to accommodate 227 sq metres commercial on ground floor ( A1, A2, A3, A4) and 33 room aparthotel above.
I am the resident friend (care-taker) at the Quaker Meeting House and reside with my husband Lee Hassall at the attached residential flat (1, Park Street Lincoln LN1 1UR). I object to the application on the following grounds:
1. Noise and Disturbance. Since taking over the role of resident friend in March 2015 my husband and I have become acutely aware that the immediate area surrounding our flat and the Meeting House, which includes Beaumont Fee, is one where anti-social behaviour, noise, nuisance and crime is a prevalent and common problem. We have had to report noise and anti-social behaviour on numerous occasions.
Our location in the city and its proximity to nightclubs and bars in the high street mean that a certain degree of noise can be anticipated. However the anti-social behaviour and noise I am referring to comes from a combination of the multi-occupancy student accommodation on Park Street, and the students making their way noisily in and out of town throughout the night during term times; and the chronic alcoholics, drug-takers and disenfranchised who are drawn to the area, because of its proximity to the city-centre and The Pathways Centre, the self-contained accommodation for the homeless or vulnerably housed adults on Beaumont Fee.
As an area that already faces chronic problems of anti-social behaviour, noise nuisance and crime I feel this will only be compounded by the scale of the proposed developments and the greatly increased volume of people and traffic in the area.
2. Scale and Height: The site of the proposed development is already surrounded by multi-storey buildings (the council offices, Park Court Student accommodation, The Pathways Centre) to the point that The Quaker Meeting House, a grade two listed building dating from 1689, and the few terraced houses on Park Street are being completely swamped and compromised by these huge unsympathetic developments.
3. Conservation of buildings: Related to the above - the original character of the buildings under the proposed development will also be completely altered and destroyed.
4 & 5 Air Pollution & Highway Safety and Congestion: Since the re-routing of the one-way system to direct traffic down Beaumont Fee which is now one of the cities main artery’s, noise and pollution have already had a considerable impact on the Quaker Meeting house and the residential flat above. Our building literally shakes when heavy goods vehicles drive by, and the volume of traffic and pollution is already a real concern.
The increased volume of traffic (and the issue of parking and congestion) will only be compounded by the proposed development).
6. Effects on trees: Related to the above the congested roads are somewhat mitigated by the existing and established trees in the area. These trees offer much needed greenery, air filtration, and a haven for birds and wildlife in this already built up and congested urban space.
I greatly fear that the proposed development will impact negatively on the enjoyment of our own home and have a detrimental impact on our existing quality of life (since moving here my husband is being treated for insomnia and stress); as well as impacting on the spiritual haven that is the Quaker Meeting House.
Based on these major concerns we strongly object to the proposed development.
I would be grateful if you could confirm receipt of email.
Warm regards,
Clare Lynch & Lee Hassall
Ref-Planning Application 2016/0202/F
Representation on behalf of Lincoln Quakers, Friends Meeting House, 1 Park Street
Noise and disturbance
The area is already heavily populated and we are concerned about the noise and
disturbance that will ensue from the density of units in the plan. With an
existing large student residence, an additional development of this scope, with
several units as HMOs, will further compromise the area around the proposed
development. Our Resident Friend living in the Meeting House has records of
incidents of disturbance that have been reported to the police recently.
Scale and Height
The proposed scale and height of the application is inconsistent with the height
of the older buildings on Park Street and will lead to a loss of privacy in our
property, as the proposed buildings will directly overlook the residential part
of the Meeting House.
Conservation of buildings
As a listed building we contend that the former Parish Hall on Beaumont Fee will
be compromised aesthetically by the building proposed to stand behind it.
Air pollution and highway safety
Beaumont Fee is a very busy route through the city, while Park Street is
relatively narrow. Access to and from the proposed building will be in close
proximity to the main road.
Effect on trees
The area in which the Meeting House is situated, adjacent to the cemetery, is an
important green space in the city centre, with an important population of trees
and bird-life. The natural character of this area will be compromised by another
extensive development that is out of proportion and character.
This extensive proposal will have significant negative environmental impacts on
the area in general and on our property specifically. The residential part of
our religious building will be overlooked directly and the existing problems of
noise and disturbance will be exacerbated. The character of the area will be
significantly altered for the worse.
We submit that this application should be extensively reviewed in light of these
significant objections.
Mark Lilley
Clerk to Lincoln Quakers
Comments made by Mark Lilley of Lincoln Quakers, 1 Park Street, Lincoln,
