heritage assessment - east staffordshire borough · pdf fileheritage assessment on behalf of:...

Heritage & Design Barnett House, 53 Fountain Street, Manchester, M2 2AN

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Heritage Assessment

On behalf of:

Tesco Stores Ltd

In respect of:

Proposed mixed-use development

Hawkins Lane

Burton upon Trent

Date:

March 2014

Reference:

ES/1335ma/R003he

lisa.roberts

Text Box

P/2014/01128 Received 27/08/14

Tesco Store, Burton upon Trent www.dppukltd.com

Reference: ES/1335ma/R001he Page 1 of 20

Contents

1.0 Introduction 2

2.0 Defining the Heritage Assets 3

3.0 Heritage Planning Policies and Guidance 5

4.0 Assessment of Significance 11

5.0 Assessment of Development Proposal 16

6.0 Conclusion 20

Appendix One – Heritage Context Plan

Appendix Two – Listed Building Description



1.0 Introduction

1.1 This report is prepared by DPP Heritage and Design on behalf of Tesco Stores Ltd in

connection with a full planning application for mixed-use development including an

A1 food store, retail unit and Class A3/A5 unit, car parking, petrol filling station,

servicing and landscaping on land to the west of Hawkins Lane in Burton upon Trent.

1.2 The proposed development is similar to a previous scheme at the site which was

granted planning permission in October 2011 for “Construction of a mixed use

development comprising an A1 food store, petrol filling station, servicing and plant,

car parking, landscaping, access works and other associated works” (Ref:

P/2010/01452/CEH/PO).

1.3 The statement assesses the application proposals in relation to the relevant

statutory duties, including the Planning (Listed Buildings and Conservation Areas)

Act (1990), the National Planning Policy Framework (NPPF) and relevant saved

adopted development plan policies.

1.4 This statement has been prepared in light of the national policy held within the

NPPF, which outlines that:

'In determining applications, local planning authorities should require an applicant to

describe the significance of any heritage assets affected, including any contribution

made by their setting.' (Para 128)

1.5 This statement first identifies the heritage assets and context of the site at Section

2.0. Section 3.0 identifies the statutory duties, national policy and guidance, local

policy and supplementary planning guidance relevant to the application site to

provide the context for the proper consideration of the proposals. The statement

goes on to assess the significance of the identified heritage assets at Section 4.0.

There then follows an assessment of the impact of the changes at Section 5.0, with

conclusions at Section 6.0.



2.0 Defining the Heritage Assets

Background

2.1 The NPPF defines a ‘heritage asset’ as:

A building, monument, site, place, area or landscape identified as having a degree of

significance meriting consideration in planning decisions, because of its heritage

interest.1

2.2 They can include designated heritage assets and assets identified by the local

planning authority during the process of decision making or through the plan making

process.

Designated Heritage Assets

Listed Buildings

2.3 The National Heritage List for England was accessed on 17 March 2014 which

confirmed that there are no listed buildings within the application site. However, it

did identify a number of listed buildings within the vicinity of the application site

which are as follows2:

Pickford’s Bonded Warehouse (Gr II)

98, 99 and 100 Horninglow Street (Gr II)

107 to 113 Horninglow Street (Gr II)

Holy Trinity School, 6 Hawkins Lane (Gr II)

5 Hawkins Lane (Gr II)

1 Annexe 2: Glossary – National Planning Policy Framework (2012) 2 Listing Descriptions Attached as Appendix 2



2.4 It should also be noted that 90 and 91 Horninglow Street appears as a grade II listed

building on the National Heritage List for England; however the buildings were

demolished in the late 20th century and therefore obviously are not considered in

this report.

Conservation Areas

2.5 A review of Conservation Areas on the East Staffordshire Council website identified

the Horninglow Street and Guild Street conservation area located within the wider

vicinity of the application site. However, it is considered that there is not potential

for the proposed development to affect the setting of this conservation area due to

the built up nature of its surroundings.

Non Designated Heritage Assets

2.1 The NPPG (2014) defines non-designated heritage assets as:

“These are buildings, monuments, site, places, areas or landscapes identified as

having a degree of significance meriting consideration in planning decisions but

which are not formally designated heritage assets. In some areas, local authorities

identify some non-designated heritage assets as ‘locally listed’.

A substantial majority of buildings have little or no heritage significance and thus do

not constitute heritage assets. Only a minority have enough heritage interest for

their significance to be a material consideration in the planning process.”3

2.2 It does not appear that East Staffordshire Council currently maintains a list of locally

significant buildings.

3 Paragraph: 039Reference ID: 18a-039-20140306



3.0 Heritage Planning Policies and Guidance

3.1 The proposals for the application site will need to be considered in light of policy and

guidance set out for historic buildings and areas. The statutory duties, national

guidance and local plan policies relevant to the proposals supported by this

statement are summarised below:

Statutory Duties

The Planning (Listed Buildings and Conservation Areas) Act 1990

3.2 With regard to applications for planning permission which may affect the setting of a

statutory listed building, the 1990 Act outlines in Section 66 that:

“s66(1) in considering whether to grant planning permission for development which

affects a listed building or its setting, the local planning authority or, as the case may

be, the Secretary of State shall 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.”

National Guidance

National Planning Policy Framework, 2012

3.3 The National Planning Policy Framework (NPPF) was issued on 27 March 2012. The

NPPF provides a full statement of Government planning policies with regard to the

protection of all heritage assets. Additional detail is provided by the Planning

Practice Guide (March 2014). This provides further guidance on how the policies set

out in the NPPF should be implemented.



3.4 The three key dimensions to sustainable development as stated in the Framework

are economic, social and environmental. The planning system's purpose is to

contribute to these sustainable development aims, and each dimension should be

sought jointly and simultaneous through the planning system to achieve sustainable

development. Section 12 of the NPPF focuses solely on Conserving and enhancing

the historic environment.

3.5 Paragraph 9 highlights that in pursuing sustainable development; poor design

should be replaced with better design. This goal is reiterated as one of the twelve

core planning principles in paragraph 17. Another relevant goal relates directly to

heritage conservation, and seeks to:

“Conserve heritage assets in a manner appropriate to their significance, so that they

can be enjoyed for their contribution to the quality of life of this and future

generations.”

3.6 Importantly the NPPF sets out the level of information that would be required in

support of applications affecting heritage assets. Paragraph 128 states:

'In determining applications, local planning authorities should require an applicant to

describe the significance of any heritage assets affected, including any contribution

made by their setting.'

3.7 Paragraph 129 then sets out the assessment that a Local Planning Authority (LPA)

should undertake when determining applications affecting heritage assets, and

states:

'Local planning authorities should identify and assess the particular significance of

any heritage asset that may be affected by a proposal (including by development

affecting the setting of a heritage asset) taking account of the available evidence

and any necessary expertise. They should take this assessment into account when

considering the impact of a proposal on a heritage asset, to avoid or minimise

conflict between the heritage asset’s conservation and any aspect of the proposal.'



3.8 Paragraph 131 then confirms the issues that the LPA should take account of when

determining such applications; and states:

‘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.’

3.9 With regard to applications affecting designated heritage assets, Paragraph 132

states:

'When considering the impact of a proposed development on the significance of a

designated heritage asset, great weight should be given to the asset’s conservation.

The more important the asset, the greater the weight should be. Significance can be

harmed or lost through alteration or destruction of the heritage asset or

development within its setting.'

3.10 Paragraph 137 identifies the opportunity that exists for development within

Conservation Areas and/or the setting of heritage assets to enhance or better reveal

that setting, it states:

“Local planning authorities should look for opportunities for new development within

Conservation Areas and World Heritage Sites and within the setting of heritage

assets to enhance or better reveal their significance. Proposals that preserve those

elements of the setting that make a positive contribution to or better reveal the

significance of the asset should be treated favourably.”



National Planning Policy Guide (2014)

3.11 The National Planning Practice Guide (NPPG) provides further guidance that has

relevance, specifically with regards guidance on the setting of heritage assets:

“What is the setting of a heritage asset and how should it be taken into account?

The “setting of a heritage asset” is defined in the Glossary of the National Planning

Policy Framework.

A thorough assessment of the impact on setting needs to take into account, and be

proportionate to, the significance of the heritage asset under consideration and the

degree to which proposed changes enhance or detract from that significance and the

ability to appreciate it.

Setting is the surroundings in which an asset is experienced, and may therefore be

more extensive than its curtilage. All heritage assets have a setting, irrespective of

the form in which they survive and whether they are designated or not.

The extent and importance of setting is often expressed by reference to visual

considerations. Although views of or from an asset will play an important part, the

way in which we experience an asset in its setting is also influenced by other

environmental factors such as noise, dust and vibration from other land uses in the

vicinity, and by our understanding of the historic relationship between places. For

example, buildings that are in close proximity but are not visible from each other

may have a historic or aesthetic connection that amplifies the experience of the

significance of each.

The contribution that setting makes to the significance of the heritage asset does not

depend on there being public rights or an ability to access or experience that setting.

This will vary over time and according to circumstance.

When assessing any application for development which may affect the setting of a

heritage asset, local planning authorities may need to consider the implications of

cumulative change. They may also need to consider the fact that developments

which materially detract from the asset’s significance may also damage its economic

viability now, or in the future, thereby threatening its ongoing conservation.

Reference ID: 18a-013-20140306 Revision date: 06 03 2014”



Local Policy and Supplementary Guidance

3.12 The following local policy and guidance is considered relevant to the application:

East Staffordshire Local Plan 2006

3.13 The East Staffordshire Local Plan was adopted in July 2006 and is the statutory Local

Plan until the policies are superseded by the emerging Local Plan when it is adopted.

The East Staffordshire Local Plan was saved by the Secretary of State on 20 July 2009

and only the ‘saved’ policies remain valid.

3.14 It should be noted that virtually all policy relating to the Built Environment was not

saved past 2009. The ‘saved’ policy pertinent to proposals is BE1 which covers

design.

Emerging Development Plan

3.15 The Emerging East Staffordshire Plan will form part of the Local Plan for Burton. The

Pre-Submission Local Plan (October 2013) was consulted on October to November

2013 with examination to follow and adoption due in December 2015. The pre-

submission relevant policies are stated below for completeness:

Emerging Policy SO9 details the strategic objectives for the sustainable

management and use of the historic environment

Emerging Policy SP25 details the strategic policy for the historic

environment

Emerging Policy DP5 forms the detailed policy for protecting the Historic

Environment: all Heritage Assets, Listed Buildings and Conservation Areas



Other material considerations

The Setting of Heritage Assets: English Heritage Guidance (October 2011)

3.16 In October 2011 English Heritage published ‘The Setting of Heritage Assets: English

Heritage Guidance’. This document outlines a method for establishing the extent of

setting, assessing the contribution setting makes to the significance of a heritage

asset and how to determine the effects of a proposal upon setting, and by

extension, the significance of a heritage asset.

3.17 It is noted that the intention is that the guidance should be read in conjunction with

the NPPF, Conservation Principle’s & Guidance (2008) and other English Heritage

guidance.

3.18 The document provides an overview of the statutory definition of setting as well as

the elaboration provided in guidance, specifically PPS1 and the former PPS5 (which

has now been rescinded and should instead be read in light of the guidance

contained in the NPPF), and notes that any assessment of significance should include

the contribution of the heritage asset’s setting.



4.0 Assessment of Significance

Introduction

4.1 In order to consider the potential effects of the application upon the significance of

the heritage assets it is necessary to complete an assessment of the significance of

the heritage assets in order to provide a framework for consideration.

4.2 This has been undertaken through site visits, documentary sources and

photographic details.

4.3 Before establishing the significance of the site a brief summary of the historical

development of the site and its immediate surroundings has been undertaken.

Site Arrangement and Spatial Context

4.4 The application site is located to the north of Burton upon Trent Town Centre. It is

an extensive brownfield site with a history of industrial use. All former buildings

have been demolished and the site has been cleared and vacant since 2003. It does

not contain any designated or non-designated heritage assets. An application for a

food store was approved in October 2011, which forms the basis for this application.

4.5 The site is bounded by the Midland Railway line to the north, Hawkins Lane to the

east and Horninglow Road to the west, both of which are major routes carrying

traffic to and from Burton upon Trent Town Centre. A number of Victorian terraced

properties line Horninglow Road, the rear gardens of which adjoin the area now

being considered for development. There is a school and a range of residential

properties lining Hawkins Lane at the eastern boundary of the site, over time

however, the residential character of this area has diminished and a number of

dwellings were demolished to enable development of modern commercial and

industrial premises. The wider surrounding area contains a number of large

dominant industrial buildings and yards associated with the brewing industry.



4.6 The area has a mixed use character and no one building type prevails. A number of

the residential properties are of typical Victorian red brick construction; these are

interspersed with more overtly modern corrugated steel/tin and clad buildings.

Brief Historical Background

4.7 The Burton upon Trent Union Workhouse was built on the site in 1838, following the

Poor Law Amendment Act of 1834 and the establishment of Burton upon Trent Poor

Law Union in 1837. The union workhouse is recorded to have been a substantial

brick building, built to accommodate more than 300 people. The extent of this large

building is clearly visible on the 1884 OS map, located in the southern part of the

site, to the rear of Holy Trinity School. There is a dense arrangement of terraced

dwellings lining Horninglow Street and Hawkins Lane and the remainder of the site is

dedicated to railway lines and sidings. The Midland railway network dominates this

part of Burton upon Trent and in the surrounding area there is evidence of

malthouses and other buildings associated with the brewing industry.

4.8 By 1923 the workhouse had been demolished and relocated. A timber yard is shown

on the OS map to the immediate rear of Holy Trinity School, and a large building

labelled ‘ale stores’ has been constructed in the south western part of the site. The

railway network and associated buildings remain in the northern part of the site.

What was previously a park or landscaped garden to the north of properties lining

Horninglow Road has been redeveloped.

4.9 Gradual change took place during the 20th century. By 1964 the ale store is

identified as a depot and there is an overall impression of the area becoming more

commercial and industrial in character. By the 1980s there has been very noticeable

change, the former ale store/depot building has been demolished and replaced with

a larger building labelled ‘works’, with an associated yard. All railway lines and

sidings have been removed or covered and the site has been consolidated as one

large developable area. Commercial development has encroached and a number of

residential properties lining Hawkins Lane have been demolished and replaced with

commercial and industrial premises and garages.



Assessment of Significance

Pickford’s Bonded Warehouse (Gr II)

4.10 Pickford’s Bonded Warehouse dates to the 19th century and holds significance in

relation to its connections with the Birmingham to Derby Railway and the brewing

industry for which Burton is famed. Architecturally the building is typically of

Victorian industrial construction. It is rectangular in form and constructed from red

brick with the inscription “Midland Railway/Bonded Stores and Grain Warehouse No

4”. Taking into consideration the architectural and historic interest of this building

and its settings, the building is of moderate significance.

98, 99 and 100 Horninglow Street (Gr II)

4.11 This row of three terraced houses dates from the late 18th century. They are of red

brick construction and are three storeys in height. Each property has three painted

sash windows at the left hand side of the front elevation, all with prominent

channelled lintels and hoods. Each house also has a wood pilaster doorcase with a

rectangular fanlight and a small cornice hood. The terrace has a tiled roof, with

prominent brick chimney stacks. The terrace is plainer to the rear and there is

evidence of windows having been replaced.

4.12 These houses have a logical setting, defined by Horninglow Street to the west and

the rear garden area to the east. There is a clear boundary between the private

garden and the application site and a review of OS maps confirms that these areas

have been separate and distinct since the late 1800s, both in terms of ownership,

use and function.

4.13 These properties are distinctive due to their height, tall chimney stacks and

attractive original window arrangement and doors. Taking this into consideration,

together with the age of the properties, their grade II listed status and their

established setting, they are collectively of moderate significance.



107 to 113 Horninglow Street (Gr II)

4.14 These properties are a row of seven grade II listed symmetrical cottages. They are

two storeys in height and are of plain and engraved stucco. The central block has

three gables and each pair of cottages has grouped doorways, each contained within

a gabled porch. The windows have hoodmoulds and definition is created by a sill

band at first floor. All have deep, lined eaves. The cottages have been altered and

windows and doors have been replaced.

4.15 As with the other properties lining Horninglow Street, these cottages also have a

relatively logical and readable setting. They are set back and separated from the

road by small and simple grassed gardens and to the rear they have long, narrow

private gardens, terminating with a clear boundary to the application site. This

relationship has been established since the late 1800s.

4.16 Despite later alterations and additions, Nos 107 to 113 Horninglow Street is an

attractive grouping of symmetrical cottages with distinctive gables, gabled porches

and hoodmoulds. They are of moderate significance due to their grade II listed

status, architectural interest and group value. Their garden setting contributes to

this level of significance.

Holy Trinity School, 6 Hawkins Lane (Gr II) & 5 Hawkins Lane (Gr II)

4.17 A national school for boys and girls was opened at the corner of Horninglow Street

and Brook Street in 1827. This was replaced in 1862 by the current Holy Trinity

School. The school was intended for girls, boys and infants and was designed by G.E

Street in a Gothic style. It is constructed of red brick with stone dressings and blue

brick bands. The building has two large gables and a decorative bellcote with a

weathervane. Attached to the building is a two storey house, built in a similar style.

The school was converted into an auction room in 1997.

4.18 No 5 Hawkins Lane to the south west of the main school building was originally the

headmaster’s house. It was built around the same time as the main school building



and was also designed by G.E Street. It is similar in style and is constructed of red

brick with a steeply pitched slate roof. It is two storeys with gables and has tall

chimney stacks. It has double sash windows divided by colonnettes.

4.19 The setting of the school and former headmaster’s house is constrained and can

logically be defined by the extensive playground to the front of the building,

enclosed by a wall and the clear boundary established between the school building

and the application site to the rear. As with the residential properties in the area,

the site of both the school and associated house has always been clearly separate

and distinct from the application site to the rear and it is not considered to form part

of or make a positive contribution its setting.

4.20 Taking into consideration the architectural and historic interest of both buildings and

their respective settings, these buildings are of moderate significance.



5.0 Assessment of Development Proposal

Introduction

5.1 The assessment will now consider the development proposals and consider their

associated potential effects on the significance of the heritage assets as identified

within Section 4.0 of this report.

5.2 The proposed development is to be located at Land off Hawkins Lane in Burton upon

Trent and comprises of a mixed use development including A1 food store, retail unit,

Class A3/A5 unit, petrol filling station and associated car parking, landscaping and

serving.

5.3 The proposed scheme will regenerate this under used site providing an active and

vibrant streetscape in addition to economic benefits for Burton.

Assessment of Impact

5.4 The proposed development is similar to a previous scheme at the site which was

granted planning permission in October 2011 for “Construction of a mixed use

development comprising an A1 food store, petrol filling station, servicing and plant,

car parking, landscaping, access works and other associated works” (Ref:

P/2010/01452/CEH/PO).

5.5 Research and an assessment have shown that the application site is not sensitive in

heritage terms. It has been vacant since 2003 and does not contain any designated

or non-designated heritage assets. The site does not form part of a conservation

area and no listed building works are proposed. As a result, the application proposal

will have no direct physical impact upon designated heritage assets.

5.6 A review of historic OS maps has found that the site has been subject to

considerable change and development over the past 120 years. A common theme is



that the site has, since the 1830s accommodated a large format building and the

current proposal should be considered in this context. Continuing this precedent, in

April 2009 the Council approved a reserved matters application for a large detached

building immediately to the rear of properties lining Horninglow Street, together

with a new access from Hawkins Lane, car parking and a yard.

5.7 A number of listed buildings surround the site. These have been clearly identified on

the attached heritage context plan and their significance is assessed in the preceding

sections of this report. All buildings are grade II listed and are considered to be of

moderate significance.

5.8 In order to satisfy the relevant statutory duties we must have special regard to the

desirability of preserving the identified designated heritage assets, their setting, or

any features of special architectural or historic interest they possess. We also assess

the application proposals against Paragraphs 128 & 129 of the NPPF, focussing on

whether the development will preserve those elements of setting that make a

positive contribution to or better reveal the significance of any heritage assets. All

planning policy considerations are set out at Section 3.0 of this report.

5.9 The proposed development holds similarities with that previously approved for the

site; it is proposed that the new foodstore be located in the northern part of the

site. This is an improved arrangement in conservation terms as the new large

format building will be significantly distanced from and will have no impact upon

identified designated assets.

5.10 We have already established that the grade II listed terraced properties and range of

cottages on Horninglow Street have a tightly drawn setting, defined by their

relationship with the main road and the boundary of their private gardens to the

rear. For this reason, creation of a car park and petrol filling station to the rear of

these properties will have no discernible impact upon the setting of these buildings

and will not alter their defined significance.



5.11 To ensure that this is the case, an effective landscape buffer is proposed around the

periphery of the site, limiting views and increasing the separation and distinction

between the gardens and the application site.

5.12 Holy Trinity School and the neighbouring former headmaster’s house also have a

narrowly defined setting due to the clearly defined boundaries they have with the

application site and the degree of separation that has been established over time.

The new petrol filling station and above ground PFS tanks may have the potential to

affect the setting of the listed Holy Trinity School; however it is considered that the

listed building’s principal elevation is orientated towards Hawkins Lane and away

from the application site with the rear of the building being heavily altered and built

up. Additionally, it is proposed to install a 2 meter timber acoustic fence between

the petrol filling station and the rear of the heritage asset to further reduce the

potential effects of this change. It is therefore considered that with additional

planting and landscaping the proposed new filling station and above ground tanks

may have at worst a neutral effect on the setting of this listed building.

5.13 The proposed development includes provision for a Class A3/A5 unit to be located at

the western corner of the site. This is a new addition to the previously approved

permission. The location of this unit will provide a visual interest of the site from

Horninglow Street which is raised at this location.

5.14 It is considered that the development will not be of detriment to the listed building

98, 99 and 100 Horninglow Street as the unit is located to the northern boundary of

this section of the application site, with provision of car parking and landscaping to

the area closest to the listed building forming an opening within the streetscape,

inviting the passer by to look into the site whilst retaining the existing brick wall

between the site and the heritage asset. It is therefore considered that the addition

of a Class A3/A5 unit will have at worst a neutral effect on the setting of this listed

building.



5.15 In accordance with S.66 (1) of The Planning (Listed Buildings and Conservation

Areas) Act 1990 the development will preserve the settings of the designated

heritage assets. In response to Paragraphs 128 & 129 of the NPPF, the scheme will

preserve those elements of the setting of the heritage assets that make a positive

contribution. In meeting these requirements, the proposals also comply with

emerging built heritage policy in the East Staffordshire Local Plan.



6.0 Conclusion

6.1 This Statement identifies and assesses the significance of the heritage assets which

have the scope to be affected by the proposed development. This process has been

undertaken above and the associated impacts of the proposals considered in detail.

6.2 The proposal presents the opportunity to provide a cohesive renewal of the site that

will regenerate and improve the streetscape of Hawkins Lane.

6.3 This Statement considers that the proposals will not cause detriment to the

identified significance of the heritage assets, having at worse a neutral effect upon

the setting of the listed buildings in this location.

6.4 Taking note of this, it is judged that the proposals are in accordance with national

and local policy in that the character and significance of the heritage assets is

maintained and detriment avoided.

6.5 In conclusion, the proposal therefore meet the statutory duties under the 1990 Act,

the objectives of the NPPF and local policies and guidance as set out by East

Staffordshire Council. It is therefore concluded that the proposal is in accordance

with adopted and national policy and thus the application should be approved.

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