North Area Committee 7th May 2009 Central South and West Area Committee 12th May 2009 Strategic Development Control Committee 27th May 2009
Application Number: 09/00321/LBD, 09/00322/FUL, 09/00323/CAC
Decision Due by: 28th May 2009
Proposal: 09/00321/LBD: Listed Building Demolition for the demolition of the Acland Hospital and its later additions at 25 Banbury Road.
09/00322/FUL: Erection of 3 and 4 storey 'quad' building part fronting Banbury Road and 3 storey building fronting Woodstock Road to provide 248 student study bedrooms, 4 Fellows/ visitor flats, with associated teaching, office and research space and other ancillary facilities. Alteration to existing vehicular accesses to Banbury Road and Woodstock Road. 33 car and 210 cycle parking spaces. Recycling and waste bin storage. Substation.
09/00323/CAC: Conservation Area Consent for demolition of 46 Woodstock Road.
Site Address: Keble College Land At The Former Acland Hospital And 46 Woodstock Road 25 Banbury Road, Appendix 1
Ward: North
Agent: John Philips Planning Applicant: Keble College Consultancy
Recommendation: North Area and Central South and West Area Committees are recommended to oppose the applications. Strategic Development Control Committee is recommended to refuse the applications for the reasons indicated below:
1. Loss of a listed building 2. Detrimental Impact on special character and appearance of conservation area 3. Detrimental Impact on setting of listed buildings 4. Loss of trees 5. Insufficient archaeological information
Main Local Plan Policies:
Oxford Local Plan 2001-2016
REPORT CP1 - Development Proposals CP2 - Planning Obligations CP3 - Limiting the Need to Travel CP6 - Efficient Use of Land & Density CP7 - Urban Design CP8 - Design Develop to Relate to its Context CP9 - Creating Successful New Places CP10 - Siting Development to Meet Functional Needs CP11 - Landscape Design CP12 - Designing out Crime CP15 - Energy Efficiency CP16 - Renewable Energy CP17 - Recycled Materials CP18 - Natural Resource Impact Analysis TR1 - Transport Assessment TR2 - Travel Plans TR3 - Car Parking Standards TR4 - Pedestrian & Cycle Facilities TR12 - Private Non-Residential Parking NE10 - Sustainable Drainage NE14 - Water and Sewerage Infrastructure NE15 - Loss of Trees and Hedgerows NE16 - Protected Trees HE2 - Archaeology HE3 - Listed Buildings and Their Setting HE7 - Conservation Areas HE9 - High Building Areas HS13 - Institutional Student Accommodation HS19 - Privacy & Amenity HS21 - Private Open Space ED7 - Oxford University - Additionl Developmnt ED8 - Oxford University - Student Accommodtn DS2 - Acland Hos Site - Ox Uni & Pri Care Facs
Core Strategy – Proposed Changes
CSP2 - Prev developed land & greenfield land CSP10 - Energy & natural resources CSP11 - Waste & recycling CSP14 - Supporting access to new development CSP17 - Access to education CSP18 - Infrastructure & Developer contributions CSP19 - Urban design townscape char & hist env CSP20 - Community safety CSP26 - Student accommodation CSP30 - The universities
There are no policies in the Oxford Local Plan and Core Strategy that are relevant to applications for listed building consent and conservation area consent.
REPORT
Other Material Considerations: This application is in the North Oxford Victorian Suburb Conservation Area. It affects the setting of listed buildings adjacent and involves the demolition of a listed building.
Relevant Site History: None
Representations Received: Letters of comment can be summarised as follows: 1. Too high and bulky 2. Not in keeping/out of scale with local character; building too horizontal contrary to vertical emphasis of surrounding buildings 3. Over development of site 4. Too close to public pavement on both Banbury & Woodstock Roads 5. Pale brick not appropriate 6. Adverse impact on character and appearance of a Conservation Area 7. Adverse impact on setting of Listed Buildings and historic environment 8. No real attempt has been made to incorporate the listed and other existing buildings in to the development; proposed redevelopment options given are a brief nod in that direction whilst insisting on one outcome (total demolition) 9. T G Jackson building should be restored not demolished 10. Increased traffic pollution 11. Over-looking, overbearing and loss of light to neighbouring properties 12. Increase in noise and disturbance 13. Negative impact on local community 14. No special integrated link through to the ROQ site 15. Adverse impact on adjacent nursery from increased car pollution 16. Object to 33 car parking spaces on transport grounds
Statutory and Internal Consultees: Thames Water Utilities Limited: Waste comments: No objection. Surface Water Drainage: it is recommended that storm flows are attenuated or regulated into receiving public network though on or off site storage. If connecting to public sewers drainage should be separate and combined at the final manhole nearest the boundary. Connection is not permitted for the removal of ground water. Discharge to public sewers requires TW permission. Sewerage infrastructure: no objection however, proposed foul flows should be taken out onto Banbury Road as there is a capacity issue in Woodstock Road. Water comments: No objection. There is a water main crossing the site that may/will need to be diverted. Environment Agency Thames Region: No objection subject to conditions imposed relating to contamination Highways Authority: No objection, subject to conditions. See main report.
English Heritage: (Consulted on proposed demolition of listed building and the scale of the redevelopment site within a designated conservation area.) Summary: The Acland Home is a Grade II listed building, dating from 1897, which has significance because of its historical, aesthetic and communal values. The proposed new buildings will dominate the street scene on both roads. English Heritage does not consider that the case submitted for demolition has adequate
REPORT justification and we consider that the listed building could be incorporated into a revised scheme. Some amendments to the design could mitigate its impact on the conservation area. Demolition of the Listed Building; Objects to demolition and considers that it has much more significance than the Heritage Statement suggests. It has historical associations with T G Jackson and Sir Henry Acland. It’s communal and historic values lie in its commemoration of Sarah Acland and illustrates a phase in the development of The Sarah Acland Memorial Nursing Home that opened in 1897. The Home pioneered nursing care for the poor of Oxford and provided, at cost, nursing for the middle classes. The national importance of this occasion is evidenced by the presence of the Prince of Wales at the opening. Aesthetically, it is a good example of Jackson’s work, the design and detailing being more restrained than no. 21, rather than being less well executed, as suggested by the Heritage Statement, as befits an organisation with limited resources available. Apart from the corridor link obscuring the main entrance, subsequent alterations have not diminished its aesthetic qualities. Internally, the plan form remains substantially intact, although finishes have been altered. The building, therefore, is of considerable significance, and should be retained unless there are overriding reasons for its demolition. The considerations set out in PPG15 para 3.19 have not been met. Demolition of unlisted buildings on site; Does not object to their demolition though it considers that the Heritage Statement does not articulate the full significance of these buildings. The unlisted Lodge building is dismissed as being of anomalous design and materials and making no contribution to the quality of the area. We disagree with this assessment and consider that it fits in with the mixed character of this part of the conservation area and makes a positive contribution to the street scene. We do not, however, object to its demolition if this is required to facilitate the development of the site. Impact on conservation area: Character of the area is more of large, individual buildings of a vertical emphasis standing in their own plots. While some of the development on site has eroded this character to a certain extent, glimpsed views of the listed building and large trees remain from Banbury Road. On the Woodstock Road the Lodge and its garden retain this character and make a positive contribution. There is no need for the new development to be of uniform design; a variety in design would not look out of place. Proposed buildings would dominate both road frontages. Banbury Road, proposed frontage; Despite its articulation the building is massive, has a horizontal emphasis and would be set forward of the existing building line. This impact could be reduced by setting it back to the existing building line. Pedestrians would not experience the sunken garden separating the building from the footway as a characteristic front garden. Woodstock Road, proposed frontage; While we are happy with the non-traditional design of this building we consider the impact of this frontage could be reduced by setting it back. Creation of a pedestrian route; Supports link with Radcliffe Infirmary site, but the formal tree-lined avenue appears at odds with the character of the conservation area and takes up valuable space on the site. Questions extensive numbers of car parking and wonders if servicing could be achieved in a more informal way.
The Victorian Society; (Statutory consultation on demolition of listed building) Recommends application be refused. Jackson is considered to be of national importance and the 1896-7 section of Acland Hospital is a handsome building. R Langton Cole’s 1905-6 west extension and 1912 Administrative block contributes to
REPORT the special architectural and historic interest of the building. The characterful Lodge makes a positive contribution to the conservation area. Applicant’s Heritage Assessment document states that ‘part retention is feasible but architecturally undesirable’. This is clearly not adequate justification for demolition. This argument is undermined by proposing a design which has been based on the assumption that all buildings on the site will be demolished. Scale of new building fails to respect the scale and detailing of adjoining historic buildings which characterise the conservation area. It would harm the setting of numerous listed buildings, particularly no’s 27 and 29 Banbury Road and cause harm to the character and appearance of the conservation area.
Oxfordshire Architectural and Historical Society (on behalf of the national consultee, Council for British Archaeology). Objects to demolition of Grade II listed Acland Hospital and unlisted Lodge. Heritage Assessment, sadly appears to be aimed at discrediting the history of the buildings and we write to correct some of the opinions and omissions: • Heritage Assessment argues that this is not a nationally important example of this building type. The Acland Home was “believed to be the first such Nursing Home erected for this purpose” and not just adapted from an existing building, (The Story of the Acland Home 1882-1958). The project is described as “utterly modern…self consciously progressive…. Providing free nurses for the poor, and care (at a cost) for the middle classes). Oxford Jackson 2006, William Whyte. This gives it very significant historical interest. • Heritage Assessment tries to play down the association of Sir Henry Acland with the institution. The project is important for its association with Sir Henry Acland. Contemporary documentation shows that Acland always intended the collected subscription of £3,000 to be used for a new building, and ‘not for altering or improving the present house.’ • Heritage Assessment attempts to argue that, although the Acland is by such a distinguished architect, it is a work of no importance: Acland was an admirer of Jackson. In his Recollections (new addition 2003), Jackson twice refers to the commission (p 220) and then the opening (p 229). The building was illustrated in the article on Jackson’s work published in the first volume of the Architectural Review with a charming sketch by F Adcock. (Reproduced in the Heritage Assessment.) In his book Oxford Jackson, William Whyte refers to the Acland as one of “many of the most prestigious projects in the city” and to its foundation by “the leading figures of Oxford’s academic life”. The suggestion that Jackson was too busy in 1896-7 to devote much attention to the commission is pure speculation. The Heritage Assessment criticises the use of render, but Jackson also used this material at the High School for Girls, 21 Banbury Road. The fact that the building was never completed to the original design cannot be used to justify its destruction. • Surviving fabric; The applicant claims that ‘inside there is so little left that restoration would be more accurately termed reconstruction’. This is untrue; our caseworkers visited the building and found it comparatively little altered. The staircase is a fine piece of work on an impressive scale. • Other options for the site; We are disappointed that the presence of a number of buildings of historic significance on the site have been ignored. We argue that as much floor space could have been fitted into the site at a lower cost by retaining the main hospital buildings by Jackson and Fielding Dodd, and
REPORT putting some new ones beside them. This would create a ‘townscape’ development on the site – a mixture of ages and styles of building.
Officers Assessment:
Site Description:
1. The site is located on land that sits between the Woodstock Road and Banbury Road, formerly the Acland Hospital and more recently converted and used for student accommodation by Keble College, providing 84 rooms for students and Fellows. The site lies within the North Oxford Victorian Suburb Conservation Area and is bounded to the north and west by listed buildings. The site comprises several buildings some of which are listed themselves, areas of car parking, with a variety of trees, some of which are mature, gardens and general landscaping throughout. Views into the site to the listed Jackson building are gained from Banbury Road.
Proposal:
2. It is proposed to demolish all buildings on the site, including those listed, and erect a ‘quad’ building on 3 and 4 storeys that fronts Banbury Road and a 3 storey building fronting Woodstock Road. Both buildings are modern in architectural style. The quad building has a glazed ground/ lower ground floor with brick above and a shallow pitched roof. The façade is for the most part articulated, reminiscent of bay window projections, at upper levels with horizontal window detailing. The Woodstock Road building is mainly constructed in glass and stone with a flat roof and gently curves round facing Woodstock Road from the northern end. These buildings would provide 248 student study bedrooms, 4 Fellows flats and associated teaching, office, research space and other facilities (cafe etc). 52 of the student rooms can be used as double rooms. 33 car parking spaces are provided, including 4 disabled, along a new access route adjacent to the northern boundary that takes vehicles in a one-way system from Banbury Road to Woodstock Road. 210 cycle parking spaces are also provided here. The proposal involves the loss of most trees on the site and new landscaping, including sunken gardens. The Ground Floor Plan, showing general site layout, is attached at Appendix 2.
Issues:
3. Officers consider the main issues in determining these applications to be: • Principle of Development • Loss of Listed and Unlisted Buildings • Design and Impact on the setting of Listed Buildings and Special Character and Appearance of the Conservation Area • Trees • Archaeology • Amenities • Traffic and Parking
REPORT
Principle of Development:
4. Keble college has a total of 641 students, 437 undergraduates and 204 graduates in residence in Oxford, and has no current plans to increase student numbers. The College has identified a need to provide increased in-college student bedrooms, increased teaching, office, research space, library annex, and both residential and office accommodation for Fellows and visiting academics. The College is currently able to house 340 undergraduates, 108 graduates and 9 Fellows. This equates to under 80% undergrads and 53% graduates accommodated in purpose built accommodation. In addition only 3.5% of these can be offered as shared partnered accommodation (2 units). Those students not in dedicated college accommodation live in ordinary private sector housing stock or other University stock. The College has therefore identified key objectives to house 90% of all their students, increase the level of shared accommodation, house 30% of their Fellows and increase ancillary facilities mentioned above.
5. Local Plan policy seeks to increase purpose built student accommodation within university/ college owned land and enable the release of family housing back to the general housing market. The proposed development would increase their net stock by 164 study rooms (457 to 621) and 4 Fellows/ visitor flats, and enable them to meet their minimum target for undergrads and graduates but fall short of their target for Fellows. It would provide much needed additional ancillary teaching, research and office space, library and other ancillary facilities etc.
6. Officers accept the argument of need in this case and that the uses proposed for the sites are appropriate. The College wishes to expand its facilities on land in its ownership, the Acland site being within close proximity to the main campus, and the principle of the development is in line with Local Plan policies, which allow additional development that would improve facilities for Oxford University and make best use of land, subject of course to other policies in the Local Plan.
Loss of Listed and Unlisted Buildings and Design and Impact on the Listed Buildings and Character and Appearance of the Conservation Area:
The application site, its relation to adjoining land and buildings within the North Oxford Victorian Suburb Conservation Area and wider context of adjoining areas:
The North Oxford Victorian Suburb Conservation Area: 7. Situated just inside the southern boundary of the North Oxford Victorian Suburb Conservation Area, renamed, extended and consolidated on 16th July 1976, the site’s conservation status was attained slightly earlier when it was included with land to its south and the Radcliffe Observatory as the second extension to the North Oxford Conservation Area on 15th April 1975.
REPORT 8. Much of North Oxford was built on St Giles’s field that had been acquired by St John’s College in the 16th century. Up until the beginning of the 19th century its use was mainly agricultural with some gravel and sand extraction for building purposes. The college facilitated enclosure of the area in 1828 thus commencing a period of its controlled evolution as a residential suburb. Initial independent development occurred in the 1830’s with North Parade and a number of large detached houses were built for local businessmen off the Banbury and Woodstock Roads.
9. While the consolidated conservation area’s name implies that it represents the development of the land forming the St John’s College estate from 1860, when it appointed William Wilkinson as supervising architect, the historic situation is not so straightforward making the existing planned and built environment more subtle. Certainly, what is perceived to be Victorian North Oxford, the Gothic predominantly red brick, detached and semi-detached houses with the smaller scale artisan terraces, cover the greater part of the conservation area. Within its northern and north-east boundary, however, houses date from the Edwardian era into the late 1920’s. Some buildings predate the 19th century expansion. A few other colleges owned parcels of land in the area, particularly New College at what is now Park Town, University and Lincoln Colleges. Colleges, schools and churches built in the 19th and 20th centuries occupy focal corner plots and street frontages and are interspersed with the houses.
The wider context in relation to the adjoining area: 10. On designation maps and relevant printed material, the Acland site is positioned near the meeting point of two other conservation areas with the North Oxford Victorian Suburb. To the south, it abuts the Central, (City and University) Conservation Area, largest of Oxford’s conservation areas. Walton Manor, a tight-knit, small area of mainly terraced housing laid out by the 1850’s on retaining slopes that mark the former gravel pits fronts, lies to the west of Woodstock Road.
11. Importantly, the area immediately to the west of the Acland that includes the old Radcliffe Infirmary site, purchased by Oxford University for redevelopment with retention of the original hospital building, listed Grade II starred, and other Grade II listed buildings, and the University’s Keble Road triangle to the east are not within the boundaries of any conservation area. The reason for the exclusion of the former at the time of designation was that the listed status of the historic buildings was considered to afford sufficient protection to assure their future. Both Keble Road Triangle and the Science Area in South Parks Road were excluded from the designation of the Central Conservation Area in 1971 through mutual agreement between the city council and Oxford University. At this time these areas had been identified by the University for expansion so the council considered it was inappropriate to include them in the designation. Controls over the demolition of unlisted buildings and removal of most trees in conservation areas did not come into force until the Town and Country Amenities Act of 1974. Prior to this, conservation areas had no meaningful protective legislation.
REPORT 12. Distinguishing the difference between the areas that are designated conservation areas and those that are not, on the ground in the vicinity of the Acland site is not an easy exercise. The eye and mind take up the ribbon of the long street patterns of the Woodstock and Banbury Roads running into St Giles, with their attendant side roads. One is aware of the diversity of materials, building designs, roof and chimney profiles, boundary structures, all enlivened by trees and planting.
13. Certain key historic buildings stand out, by virtue of their quality, individuality of design and purpose. Notable of these on the west side of Woodstock Road is the main Radcliffe Infirmary Building, opened in 1770, with its 19th century listed Triton fountain, and former chapel of St Luke, 1864.
14. To their north, the Grade I listed, Radcliffe Observatory, (also known as the Tower of the Winds) completed 1794 and refurbished in recent years for Green College, contributes memorably to the Oxford skyline through the presence of its octagonal tower. Often mistaken as an older building complex, the unlisted residential Neo-Georgian Green College, 1978-81 by the University Surveyor, is visible above the stone boundary wall to Woodstock Road. On a more domestic scale, the 17th/18th century Grade II timber-framed rough cast 2–storied Royal Oak PH fronts the Acland site on the west side of Woodstock Road.
15. Immediately on the north of the Acland site, St Anne’s no’s 27 and 29 Banbury Road designed by J J Stevenson in 1881 in the Queen Anne style and listed Grade II in 1972 are detached houses, of 2-storeyed orange/red brick construction under hipped, tiled roofs surmounted by white painted balustrades. Built for the Bursar of St John’s College and T H Green, the philosopher, they were the first Queen Anne houses in Oxford. No 27, more elaborate in design than its partner, is referred to in the statutory list description as an “Outstanding example in local context.” Its south elevation with oriel window is particularly visible from the street due to the setting back of the Acland’s 1936 Banbury Road wing.
16. Beyond the Stevenson houses, well set back and partly hidden from the Banbury Road by trees, St Anne’s two, 4 storied, flat-roofed, lozenge-shaped residential blocks, Wolfson and Rayne Buildings are examples of an uncompleted scheme. Built in pre-cast and board marked concrete in 1969 their architects, Howell, Killick, Partridge and Amis, had designed a serpentine plan of six linked blocks comprising one high and five low buildings facing onto a lake behind the boundary with Banbury Road. The buildings were listed Grade II on 30th March 1993.
17. South of Felstead House, no. 21 Banbury Road, the Former Girls’ High School now the University’s Materials Building, designed by T G Jackson, and dated 1897 is of 2-storeyed red brick, render and terracotta mouldings under a red tiled hipped roof with cupola and tall brick stacks. A trademark combination of materials and design used to great effect on several of Jackson’s Oxford buildings.
REPORT 18. Next to, and south of, no. 21, are a series of semi detached and one terrace of three villas, circa 1855, by Samuel Lipscomb Seckham, architect of Park Town. They are now occupied by Oxford University Computing Services and were Grade II listed for their group value on 28th June 1972. The northernmost group, no’s 15 – 19 Banbury Road, are 2-storeyed and of stone coloured stucco. Of seven bays, with the central three projecting under a pediment, they have slate roofs and have a 2-bayed extension. No’s 11 and 13 Banbury Road are of stucco, 2-storeys, and attic with slate mansard roof inset with arched dormers. The windows and doors have vermiculated surrounds and quoins on the ground floor with these details plain above. Arched sash windows are at ground floor and sashes with Gibbs surrounds on the first. No’s 7 and 9 Banbury Road are of three storeys, stuccoed with horizontal rustication on the ground floor in which are set arched sash windows. There are French windows at first floor. Bracketted eaves occur beneath a hipped, slate roof.
19. Outside the conservation area, on the eastern side of Banbury Road, looking onto the Acland site, other buildings stand out and contrast by virtue of their modernity, different materials, and relationship to ground levels. Forming part of the University’s Keble Road Triangle the majority are concrete and glazed blocks built from the mid 1960’s to the early 21st century to house engineering, science, technology and physics. The one exception is the Jenkin Building containing engineering science, situated at the northern apex of the Banbury and Parks Roads. This severe Jacobean style brick and stone building was designed by W C Marshall in 1914 and extended in 1927 by E P Warren. There is little spatial quality in this quarter; the buildings converge into one another, their entrances far from apparent on the road frontage. Strips of token planting with a few trees and shrubs make a positive and welcome contribution to the roadside alleviating the hard, vertical surfaces of the buildings.
Historic Development of the Acland site, in chronological order, subject to the application for redevelopment at the former Acland Hospital:
20. The development of the Acland site is one of some complexity given its 1840’s origins. This was precipitated by its nursing and medical functions that led to a series of building projects to respond to the changes in requirements for patient and staff care. In all, 18 separate building phases occurred between 1840’s and 1983, some of greater magnitude than others. A distillation of its history with concise description of the buildings concerned is covered in the following paragraphs.
1840’s, Northgate House: (fully demolished 1936) 21. Northgate House, built on the site of a garden in the 1840’s by Samuel Browning, an ironmonger with a shop in Corn market, was the first building to occupy the Acland site. Set well back from, with its eastern elevation parallel with, Banbury Road in spacious grounds extending almost to Woodstock Road, it had some 6 smaller scale detached ancillary buildings informally positioned to its south-west. Similar in appearance to Samuel Lipscomb Seckham’s, (the architect of Park Town) surviving Grade II listed, 1855 villas and terrace at no’s 7-19 Banbury Road, this 2 storey, with attics, stuccoed,
REPORT classically influenced, house remained the Browning family home until after Samuel’s death in 1880. The significance of this building is later apparent in this report due to its influence on the siting of subsequent buildings.
1867, Felstead House, No 23 Banbury Road: (outside application site) 22. Felstead House was built for University College in 1867 to the designs of architect E G Bruton with a rear extension of 1876. It has a slightly austere appearance, is of 2 storeys and attic having red brick walls, minimum stone dressings to lintols and cills serving paired, narrow, window openings and bays. Occupied by two successive separate individuals until 1882, it functioned after this date as the Oxford Diocesan Training College for Mistresses. In 1907 a west extension by architect Slingby Stallwood was built to accommodate a chemical laboratory, art room, clothes room, governess’ bedroom, staff common room, a sick room and servants’ rooms. On 16th July 1913, Felstead House was signed over to the Acland Home. Used as a residence since 2004 by Keble College Fellows, partnered graduates and the College Chaplain, this arrangement will not change in the current proposals.
The Acland Family and Sir Thomas Graham Jackson’s work of 1897: 23. Association of the site with the Aclands, Sir Henry, then Regius Professor in Medicine for Oxford University, and Sarah, his wife, grew out of the founding of an institution for nurses after her death in 1878. This tangible and compassionate memorial to Sarah was made possible through a £4,000 fund set up by the ladies of Oxford “in order that a nurse might be provided in perpetuity, who would visit and tend the sick poor of Oxford in their own homes.” The first buildings for this intent opened in 1883-4 at 37 Wellington Square, as the Sarah Acland Memorial Home for Nurses with the Medical and Surgical Home at no 38. In turn, these premises were to prove inadequate and a larger site was later sought elsewhere.
24. At Sir Henry Acland’s retirement in 1894, after 36 years as Regius Professorship of Medicine, the Bishop of Oxford motioned, and was seconded by the Vice-chancellor, that it was desirable that Acland’s services to the university, the city of Oxford and to medical science should be recognised by a testimonial. It was unanimously resolved that the testimonial should take the form of ‘a provision for the increased usefulness of the Sarah Acland Home for Nurses, and without prejudice to any proposal for a personal memorial to Sir Henry Acland.’ Thus, £3,000 was available for the expansion of the Home for Nurses “in view of the benefits conferred on all classes by the varied services of the Sarah Acland Home”. This sum was increased by other donations and borrowed monies to assist the transfer of the nursing home to the site, now subject to this proposal in Banbury Road.
25. Sir Thomas Graham Jackson, an acclaimed architect who had, amongst his distinguished patrons, Oxford University and several of Oxford’s autonomous colleges, was approached to design a building for the nurses’ home in July 1896. Jackson’s building was conceived as a long, north range located to run parallel with the northern boundary of the site, rather than the eastern, skewed boundary adopted by Northgate House. It was envisaged that it would be completed in the future but this did not happen. Instead the part built west of
REPORT Northgate House supplemented its facilities, which on a ground floor plan, dated 1896, allocated rooms to superintendent, district nurses’ and servants, the latter accommodated on the first floor.
Description of Thomas Graham Jackson’s 1897 work west of Northgate House: 26. What was built on the ground in 1897 of Jackson’s 3-bayed, 3-storeyed with attic, Queen Anne centrepiece building flanked by 3-bays of the 2-storeyed scrolled Dutch gabled element comprised two thirds of the central element, (adjacent to Northgate House), and two west bays of the 2 storied element, The third bay of the west range was not completed due to insufficient funds.
27. Facing south onto the garden, the principal elevation has a central, red brick with terracotta detailed, taller 2 bays containing the main entrance door with its fanlight within the eastern bay. Within this brick element there are red terracotta, shallow projecting, paired pilasters with cornices. Triple-grouped, multi-paned sash windows, with a wider central window, separated by narrow brickwork are set at each floor level over the entrance with a simplified Venetian window arrangement to the shaped, voluted, (scrolled) attic gable. The sand coloured, rendered, western element of the 3-storey with attic centrepiece has brick quoins and brick band courses denoting floor levels.
28. Internally, this centrepiece also contains a fine newel wooden staircase with turned balusters around an open well. Behind this part, and separated by a corridor at ground floor is a high, rear wing. Jackson’s drawings indicate that a matron, district and private nurses, kitchens, pantry, scullery, stores and box room were to be accommodated here. The kitchen and its ancillary rooms were placed in the northern part of the building. Most of the rooms had fireplaces, with the bedrooms generally having a diagonally placed stack in the corner of the rooms. The stacks survive but their fireplace openings are blocked and fireplace surrounds removed in the past. External red brick stacks survive. A series of basement rooms exist, accessed via a staircase from the kitchen. There is conjecture that these may have had some relationship with Northgate House.
29. With respect to the two westernmost 2-storeyed Jackson bays, these also have sand-coloured, rendered wall surfaces having red brick quoins, with red brick dressings to the arched window and door openings. Moulded, red terracotta is used to finish each bay’s semi-circular headed gable, capped by volutes flanking a finial. The windows under the gables are simple, tall sashes that served the patients’ rooms. A rear wing housed linen, baths and lavatories.
1904, Relocation to Wellington Square: 30. In 1904 Sarah Acland Memorial Nurses’ Home moved back to Wellington Square, there having been a split between the Home that depended on charity and the Acland Nursing Home as a self supporting Institution.
1904, The Lodge, 46 Woodstock Road: 31. At the beginning of the 20th century a piece of land adjoining the Home’s garden, facing onto Woodstock Road, north of the Royal Oak Public House,
REPORT was leased for 99 years from St John’s College. St John’s continued to exert its controls on a good standard of building construction by stipulating that a dwelling to the value of at least £500 should be erected. Accommodation for the Porter in the half facing Woodstock Road with a washing room and rooms for nurses in the eastern part, within the one Lodge was built to the designs of Robert Langton Cole in 1904. At a cost of £945 6s 8d, this building exceeded the conditions laid down by college. Set forward of the front building line of the houses to its north it is 2 storeys in height and of domestic appearance. Its external walls are white painted render with, on the first floor, black painted, applied timber framing. On the first floor west, Woodstock Road, elevation is a central, shallow, projecting black and white framed, gabled window flanked by tile hanging. Elsewhere, there exist orange clay tile-hung gables all under a red tiled roof with external red brick stacks.
1905-06, West Extension of the Jackson Building: 32. Expansion of the Nursing Home on the footprint of the western-most third bay of Jackson’s scheme took place in 1906 to the designs of The Lodge’s architect Robert Langton Cole. Jackson’s design was not reproduced and the operating, anaesthetic and sterilizing rooms with rooms for patients were contained within a 2-storey red brick extension, whose south elevation is now obscured by a later addition. An external staircase was added in 1907.
1912, Administration Building, the completion of Jackson’s Queen Anne block and the 1913 link: 33. Five years later discussions took place on further improvements to include a new dining room and additional accommodation for nurses. The architect Robert Langton Cole was appointed for the project. This involved the removal of the southwest corner of Northgate House, to enable the completion of the eastern third of Jackson’s central block to his Queen Anne design and a rear addition to Northgate House. The work was finished in 1912 and mirrors the detailing on the western bay, apart from a wider multi-light window on the second floor.
34. In 1913, Langton Cole designed a single storey structure with rows of windows under a red tiled roof linking the main nursing block to the leased Felstead House to the south. This corridor link covered up the main entrance door case to Jackson’s building.
1936, Banbury Road Wing: 35. Having stood on the site for nearly 100 years influencing the location of all the later buildings at 25 Banbury Road, Northgate House was completely demolished in 1936. This enabled Ronald Fielding Dodd’s design for a substantial, 2- storied, red brick, pitched pantiled roof, neo-Georgian building to be constructed. Incorporating a modern x-ray room, new reception, dining facilities, wards, plant and outpatients room it benefited from a £30,000 donation from William Morris, Lord Nuffield. It continued the building line, though slightly set back, of the north range and returned southwards at right angles, but slightly skewed, to the boundary with Banbury Road. Nuffield’s donation also funded some reconstruction of the existing buildings.
REPORT 1962, creation of Acland Nuffield Nursing Home and 1977-1979 West Wing Extension: 36. The Acland Nursing Home was taken over by the Nuffield Trust, advised by a local Acland Home Advisory Committee in 1962, and renamed the Acland Nuffield Nursing Home. Renovations and extensions on the north side of the main building were carried out to the designs of Anderson, Foster and Wilcox in 1964. In 1979, a western wing, smaller than originally planned, by the same practice was built from public funds behind, and to the south of, The Lodge. This enclosed the Home’s garden and contained additional operating theatres and patients’ room. Finally, in 1983, a single storey incinerator was built to the west of the extension to Felstead House.
The status of the listed building and unlisted buildings on the Acland site:
37. Oxford City has had a list of buildings of special architectural or historic interest drawn up by central government since 12th January 1954. The term, listed building, did not exist until the passing of the Town and Country Planning Act 1968. Listed Building Consent as brought in by this act commenced, therefore, from 1st January 1969. A listed building is one included by the Secretary of State in the statutory list, at the address described, (known as the principal building), and any structure fixed to the building at the date of listing, unless specifically excluded in the list description. Any pre-1948 structure that was in the curtilage of the principal building at the date of listing will be included in the listing, provided that it is a fixture, and is ancillary to the principal building.
38. No 25 Banbury Road was included in the statutory list of buildings of special architectural or historic interest on 28th June 1972 as a Grade II listed building, under reference SP 5107 SW 3/662. By then heavily extended, the list description specifically refers to the rear part of no 25 (The Acland Home) as the listed element. This is further clarified by the descriptive text that states:
“1896. T G Jackson. Red brick. 3 storeys and attic. Sash windows with glazing bars. Slate mansard roof with Dutch gables, Venetian windows in the gables. Tall brick stacks.”
39. In order to accord with the wider legal interpretation that extensions are part of the listed building, the application for listed building consent, in this instance, included all the extensions.
40. The Lodge at no. 46 Woodstock Road has a separate address, and is regarded to be a principal building in its own right, not a curtilage building of no. 25 Banbury Road. For this reason, and for the purpose of the application, officers considered that as the building is proposed for total demolition conservation area consent should be sought for the demolition of an unlisted building in a conservation area.
Interpretation by Officers of the extent of the Grade II listed Jackson North Wing to The Acland Hospital:
REPORT 41. There was some initial confusion as to how much of the extended Acland site was actually part of Jackson’s work, and listed, as central government had not made it clear on the non-statutory map sent to the local planning authority at the time. Since its listing in 1972, and during its period as a hospital, it had needed very little alteration that required planning permission, or listed building consent, except for improving the extraction facilities to the kitchen within the rear of the north range, so officer knowledge was limited. Soon after Keble College acquired the site, officers took the opportunity to carry out a detailed site inspection and this, together with initial documentary evidence, led to a better understanding of the original historic core. Consequently, Jackson’s Queen Anne central building with its 1912 eastern bay completing the symmetry, the two western Dutch scrolled and gabled bays, together with the two rear wings were considered to represent the extent, and intent, of the Grade II listed building.
The buildings on the Acland site and Officers opinion of their contribution to the conservation area and street scene:
42. Given the fact that the Acland site has a multitude of buildings and extensions on its land, it might be presumed that they are visible to the general public. As is the case with many institutional establishments on large, deep sites, a good number of the buildings do not have direct contact with the street, but are tantilisingly glimpsed and experienced in part. A gable here; a range of chimneys there; an angle of roof, a section of wall or window, all making up a selection of architectural features that contribute to variety of streetscape. The Acland is fortunate too, in having single, or small groups, of trees growing throughout the site, that perfectly express the characteristics of a garden suburb with space and planting surrounding buildings.
43. Together with Felstead House, the long, 2-storied 1936 Fielding Dodd wing dominates the Banbury Road frontage. Through the gap between these two, and beyond the copper beech tree may be obliquely seen the central and western parts of T G Jackson’s 1897 Grade II listed building. On the Woodstock Road side, the utilitarian red brick rear of the 1977-79 is visible, set back in the site with the 1904 Lodge that gives some relief to the eye with its bright combination of materials, red tiles, white render and windows and black painted, applied timber framing.
44. Excluding Felstead House, which is to remain and is outside the application boundary, the other buildings proposed for demolition as a group, for their choice of orange/red bricks and tiled roofs, their relatively small scale, the space around them, relationship to ground or garden level, trees and soft landscaping combine collectively to sit comfortably within this part of the North Oxford Victorian Suburb Conservation Area. Officers consider that they are not visually, or spatially, at conflict with their surroundings, and as such their presence is a positive one. Taken individually, the more utilitarian blocks are considered to have a negative effect on the conservation area.
The Historic Environment: Central Government legislation and English Heritage Guidance:
REPORT
45. Central government legislation on the historic environment is contained within The Planning (Listed Buildings and Conservation Arreas) Act 1990. Guidance and advice on the application of the Act with reference to listed buildings and conservation areas is contained within ‘Planning Policy Guidance Note 15, Planning and the Historic Environment, (PPG15), published in September 1994. Guidance on alterations and extensions to listed buildings is contained within paragraphs 3.12 – 3.15 of PPG15. Paragraph 3.17 states that the demolition of listed buildings will only be allowed in exceptional circumstances. The strongest justification would be needed to support any application for demolition taking into account 3 considerations as applied under paragraph 3.19. These are:
I. The condition of the building including the cost of its repair and maintaining it in relation to its importance and the value derived from its continued use; II. The adequacy of efforts made to retain the building in use. This should include the offer of the unresticted freehold of the site on the open market at a realistic price reflecting the buildings condition; and III. The merits of alternative proposals for the site including any community benefits that may arise from the development.
46. Reference to the use of planning powers in conservation areas is made in Section 72 of the 1990 Act that requires that special attention shall be paid in the exercise of planning functions to the desirability of preserving or enhancing the character or appearance of a conservation area. Guidance and reference to the relationship between development plans and the historic environment, now a material consideration in the planning process, is covered by paragraphs 4.14 – 4.20 of PPG15.
The applicant’s assessment with respect to the special interest of the listed building:
47. The applicant draws attention to government circular 1/2007, March 2007 Revisions to Principles of Selection for Listed Buildings, especially the section dealing with Health and Welfare Buildings. It is the applicant’s argument that, were these principles applied today to Thomas Graham Jackson’s 1897 extension, the architectural calibre of the building, as a listed building would be questionable. A number of reasons are put forward.
I. The building is only a fragment of an uncompleted range, II. Its detailing is not up to Jackson’s quality and the work is further lessened by later additions of variable quality, III. External alterations and the undistinguished quality of the building’s execution in its various phases have led to a piece of architecture lacking in tangible quality, IV. It is not a nationally important example of a building type, V. It has only a short-lived association with the Aclands. Dr Henry and his wife, Sarah.
48. PPG15 has since been supplemented by other guidance, but the most recent and pertinent is English Heritage’s ‘Conservation Principles, Policies and
REPORT Guidance for the Sustainable Management of the Historic Environment’, April 2008. Together they provide the bedrock to enable a considered approach to be adopted based on the understanding of the relative significance of heritage values attached to places under the following four points;
I. Historical value; the ways in which past people and events and aspects of life can be connected through a place to the present – it tends to be illustrative or associative. II. Communal value; the meanings of a place for the people who relate to it, or for whom it figures in their collective experience or memory. III. Aesthetic value: the ways in which people draw sensory and intellectual stimulation from a place. IV. Evidential value; the potential of a place to yield evidence about past human activity.
49. Thus, these values are a material consideration in discussions of changes through the planning system likely to affect the historic environment. The applicant has understood the importance of identifying these values, and has discussed them in detail as part of the Heritage Assessment, February 2009, forming part of the applications’ redevelopment submission. However, the conclusions drawn by this exercise will, inevitably, differ due to the various interests and opinions involved.
The applicant’s assessment of the site and buildings in relation to English Heritage’s Four Heritage Values:
50. Historic value: Here the applicant states that although both Jackson and Acland were notable figures their brief, direct connection with the site is not enough to support the claim that Jackson’s work has historic interest in its own right. It is also stated that the remaining buildings have limited historical value.
51. Communal value: The applicant raises three points in the supporting Heritage Statement. Firstly, that the community interest engendered during the occupation of the buildings at the time of the Sarah Acland Memorial Home for Nurses, was of some value. However, as the establishment was on site for only 7 years before moving back to Wellington Square and the nurses worked off-site, rather than at Banbury Road, public recognition would not be great. Secondly, during the site’s use as a private hospital the service it offered would have had little communal value, being available to only a few. Thirdly, it is stated that the current use of the site by Keble College to accommodate students gives it a stronger public presence and a correspondingly higher communal value.
52. Aesthetic value: It is commented that Jackson’s 1897 extension to Northgate House was a commission that he likely undertook without a fee, and does not represent the usual high quality of work with which he is associated. It describes his busy schedule elsewhere at the time on other more lucrative and distinguished projects implying that professionally the contract for Sir Henry Acland did not
REPORT fully engage his interest. It is further stated that the retention of Northgate House compromised Jackson’s scheme from the start, and what was built, as a fragment of the North Range, does not rank with the other Jackson buildings in Oxford, nor indeed does it compare favourably with other nearby listed buildings of a similar era. It is stated that the unlisted Lodge at no. 46 Woodstock Road makes a neutral contribution to the conservation area.
53. Evidential value: The 1897 work is described as being a typical design for a nursing home of the time, distancing itself from the institutional style of hospital. In line with contemporary attitudes to health care and the benefits of fresh air and nature, patients’ rooms were located on the garden side of the building with nurses’ rooms to the rear. This may be evidenced by the presence of large, south facing windows. It further concludes that the building has been significantly altered to the extent that the legibility of the original sequence, configuration, height and size of space has been compromised, while many of the changes to the plan form are irreversible.
54. Having reached the conclusions that English Heritage’s four values are not sufficiently well represented to warrant retention of any of the buildings on the site, the applicant’s opinion is that this, together with the need of college is sufficient justification to permit their demolition to make way for a new quadrangle and associated facilities.
Applicant’s Option Appraisals for retaining parts of the listed building:
55. The applicant has produced a series of 6 option appraisals retaining various parts of the defined listed building; one option also retaining the unlisted Lodge at No 46 Woodstock Road. Option 3 shows the retention of the centrepiece and the 2 west bays of the listed building, but removes the rear corridor and wing from the west bays and the rear wing from the centrepiece. Main disadvantages of this option highlighted by the applicant would be a shortfall of 103 bed spaces, closer proximity of the new build to the Royal Oak PH, floor level or disabled access compromised by the floor level in the Jackson building and the imposed height restriction that would create a low scale Banbury Road frontage.
56. Option 4 retains the listed centrepiece with its three south facing rooms, main staircase and smaller rooms to its south and east. The new build gains an additional floor level to bring it up to 4 floors, with basement to Banbury Road. Still the applicants felt this would be an unsatisfactory solution. College would be 14 bed spaces short of its need, disabled access would be compromised, the retained listed building part would have undue significance in a much larger development, which would be compromised, while the building line would be too close to the Banbury Road and west boundaries.
57. Option 5 retains the listed centrepiece but with a wider northern range. This would lead to a shortfall in 11 bed spaces and a similar set of drawbacks as in Option 4. Option 5 would allow the east and west ranges to be pulled slightly further away from Banbury Road and the Royal Oak PH.
REPORT
58. Option 6 was devised after a meeting with officers on 12th November 2008. This took on board a more realistic approach that would not overcrowd the retained part of the listed building. The south façade of the new north range is shown set back behind the existing building and the roof would be brought down to the existing roofline. 227 student bed spaces would be attainable in this option, which would have the same height as the preferred option to demolish Jackson’s building that forms the application under consideration. It would, however, be slightly closer to the north, east and western boundaries.
Structural Inspection of the listed building and discussion of engineering options for its retention:
59. The applicant commissioned a visual inspection of the listed building by a firm of structural engineers on 8th December 2008. This focused on the three floor levels, attic and basement to the front and middle sections of the Jackson centrepiece shown retained as Option 5 of the Planning Report. The typical upper floor layout of the part to be retained includes three rooms to the front (south) side, a corridor running east-west across the middle of the block, a stair well in the rear, north-west corner and a cluster of small rooms on the rear, north-east corner.
60. The findings of the investigation were then used to formulate an initial appraisal of the structural implications of the building’s retention, with particular reference to the basement. Structurally the fabric of the building appeared to be in reasonable condition, showing no obvious signs of undue stress or deformation. Some alterations and installation of services of poor standard had taken place within the building. Chimneybreasts and been removed from some places with poor quality structure used to support the remaining parts of the upper stacks.
61. The structural engineer considers that the building superstructure is reasonably robust and would be independently stable when cut back to the extent indicated in Option 5. Various ways of dealing with the existing basement with shallow underpinning to respond to piling required for any new basements is discussed. It is pointed out that the potential to undermine the existing structure is more significant in the area of the retained building without a basement. Much deeper underpinning would be needed and would be done in two or more rows of pins.
62. The consequences of extending the basement, or totally removing the existing basement to enable a new basement to be run continuously beneath the listed building into the proposals, is examined in detail. The first, in brief, would be achieved through mass concrete underpinning, in one or more rows, of the structural walls that do not extend down to basement level. However, the result would be an inflexible space made up of a series of cellular rooms as opposed to a structurally open space that could be arranged in a more useful way.
REPORT 63. An alternative new basement below Jackson’s building, would allow for a larger room area. This would be achieved by totally supporting the existing building on piles and beams allowing excavation, and removal of the basement below. The piles would be left as temporary columns within the building. A new concrete box would be formed as an extension of any new development, tied into the beams at ground level to take their load. This would then allow most of the piles and columns to be removed. Reinforced concrete walls would be needed within the new structure, on each side of the existing, running from basement to roof. The engineer considers the disadvantage of this option, based on similar operations elsewhere, is that it is a very time consuming, complex and expensive process. Specialist contractors would carry out the site work, but it would carry a greater risk to the building than a traditional underpinned system.
Applicant’s summary as to why the proposed redevelopment scheme should be supported and approved:
64. The applicant states that a long process of options analysis based on research, design development and careful consideration of all the issues and opportunities raised by the Acland site has been undertaken. This has been within the context of an attempt to define precisely what the special interest of the listed Acland Home is. This is not a case where demolition of the listed building is promoted on the basis of viability or condition; these are just two of the recommended considerations for assessment. The case for demolition turns rather on a judgement about relative value in the context of a site with enormous potential, which represents a rare opportunity in Oxford as a whole.
65. The options study and structural engineer’s analysis illustrate the architectural problem raised by the Acland site -should all, or part of a retained fragment of modest architectural quality drive the beneficial reuse of the site. They also illustrate the negative effects of retention on the architectural quality and layout of the site as well as the amount of accommodation that can be provided as compared to the brief. This is a brief, which has been carefully set to meet the college’s academic needs.
Pre-application discussion between Officers and the applicants on the proposed redevelopment of the Acland Hospital site.
66. Officers were first approached by Keble College to discuss its long-term plans and aspirations for redevelopment of the Acland Hospital site in September 2004, prior to its purchase. At that time the listed façade of 25 Banbury Road and the whole of Felstead House was proposed for retention. All other buildings and structures within the site were proposed for demolition. Resort to facadism in respect of the city’s listed building stock is virtually unknown, and officers explained that no. 25 should be retained with, at least some principal rooms and staircase to make sense of its plan form and main architectural features.
67. Officers were surprised, therefore, when the appointed architect later tabled a small model and explained a scheme that was dependent on the demolition of
REPORT the listed building. Officers continued to make known their concern for its demolition and also made general observations on the length of the proposed buildings fronting Woodstock and Banbury Roads. The architect did delete one bay from each of these buildings, prior to formal submission of the application, in order to reduce their horizontal emphasis.
Officers Conclusions on the submitted scheme:
68. Officers have no objection to a certain amount of development on the Acland site that is of a good quality, contemporary 21st century design that would meet environmental and energy efficiency standards. Schemes at Keble College for the Arco (1995) and the more recent Sloane Robinson Buildings by the same architect for this proposal have already demonstrated that the practice can design to respect nationally important Grade I listed 19th century William Butterfield Quadrangles and the Grade II starred listed 1973-77 de Bryne and Hayward Buildings by Ahrends, Burton and Koralek.
69. In this instance however, Officers consider that the applicant’s Heritage Assessment fails to recognise the true heritage and landscape assets of the Acland site, and respond to the special character and appearance of this part of the North Oxford Conservation Area. It has not presented convincing justifications for the wholesale clearance of the site for redevelopment.
70. In the opinion of Officers, English Heritage, The Victorian Society and local amenity groups there is no question that Thomas Graham Jackson’s no. 25 Banbury Road, Acland Home, together with the 1912 eastern bay to complete the symmetry of his centrepiece, is deserving of its statutory Grade II listing as a building of national special architectural or historic interest. It is considered to be significant due to its historical associations with two eminent Victorians, Sir Henry Acland and Thomas Graham Jackson, and for its architectural design created by the latter.
71. Sir Henry Acland (1815-1900) 36 years Regius Professor of Medicine for the University of Oxford, and a life-long friend of John Ruskin, was largely responsible for the establishment of Oxford’s University Museum, now known as the Science Museum, in Parks Road. He founded and developed the Nurses’ Home that became the Acland Hospital at no. 25 Banbury Road. Having been appointed Lee’s Lecturer in Anatomy in 1845 he became physician to the Radcliffe Infirmary in 1847 and championed the care of the poor at a time when disease and epidemics in the city were rife. Under his professorship he vastly improved the status of the University’s medical school.
72. Sir Thomas Graham Jackson, given the name ‘Anglo-Jackson’ was responsible for the move away from architectural Gothicism in Oxford through his design for the University’s Examination Schools, 1876-1882, on the corner of High Street and Merton Street. Described by the architectural historian, Sir Nikolaus Pevsner, as Jackson’s ‘most noteworthy building in Oxford’ and his ‘first challenge to University architecture’ the stone-built Examination Schools displays all the distinctive architectural design and exuberance that became associated with Jackson’s buildings. Pevsner calls him ‘A mature man of
REPORT supreme confidence handling with undeniable panache, a style no longer Gothic or Tudor, but licentiously fabricated out of elements from the Quattrocento to the Georgian with the main stress on the impure classical of the 17thc after Jones and before Wren’. Well versed in architectural history, a successful practioner and in later years, a scholar, Jackson’s impact on Oxford was considerable. No 25 Banbury Road is instantly recognisable as a design by his hand. Here are orange red bricks, and terracotta, sand coloured render and his emblematic pilasters and volutes. The very fact that the detailed design is simpler, does not have the full-bloodied embellishments, sculptural features or use of stonework as some of his work, is not a reason to regard this building in any way of diminished quality to other examples of his architecture. The aesthetic experience derived from this building is considerable.
73. Neither is the fact that No. 25 Banbury Road part of an uncompleted scheme a sound reason to argue that it is of no intrinsic value, or special interest, in its own right. Many buildings that may be described as fragments, or parts, survive in Oxford, as in other cities, towns and settlements. Over centuries, up to the present day, they have been successfully incorporated and put to use, often in tandem with contemporary designs, which in their turn have become historic; even listed buildings.
74. The communal and historic value of no 25 Banbury Road, Nurses’ Home is as a memorial to Sir Henry’s wife, Sarah, the pioneering nursing care for Oxford’s poor and the provision of nursing, at a cost, for the middle classes. The 7-year association with the Home at this address is considered not to be a barrier to a lack of importance for the building’s listed status on these grounds. Single important historical events, or association with charismatic and pioneering figures, or technological achievements are often sufficient reason to merit listed status. For example, the eastern wing of T G Jackson’s former Military College at Temple Cowley, itself one of only two wings to be built of a larger scheme, was listed Grade II in 1987. The reason for this was, as part of William Morris’s ‘bullnose’ Morris car factory where it formed the first assembly line in car production. At the time of listing the building was in use by the Nuffield Press. It has since been converted to flats.
75. The references to it being ‘believed to be the first such building for its purpose’ and an ‘utterly modern…. self consciously progressive’ project should not be ignored. Its historical connections are further enhanced by the fact that it was opened by the Prince of Wales.
Recommendation:
76. Having regard to the contents of this report officers recommend the following: • That the application for the demolition of the Grade II listed building be refused, due to the loss of that part of special architectural and historic interest built, and extended in 1912, to Thomas Graham Jackson’s 1876 designs for the Nurses’ Home.
REPORT • That the application for planning permission for the proposed accommodation, based on a cleared site, be refused in that it requires the demolition of the Jackson building. The replacement Banbury Road frontage would affect the setting of the Grade II listed no. 27 Banbury Road, by virtue of its siting, and the special character and appearance of this part of the North Oxford Victorian Suburb conservation area, and its environs, would be harmed by virtue of the proposal’s scale, horizontal emphasis of the Banbury Road frontage, materials, siting, loss of trees and ground level front gardens. • That the application for conservation area consent for the demolition of The Lodge at No 46 Woodstock Road be refused in the absence of an acceptable replacement scheme.
Other:
77. Officers recommend that negotiations on a suitable scheme for the site should continue with the applicants, and advise that the following bullet points represent the key issues for discussion: • Retention, at the very least of Thomas Graham Jackson’s centrepiece, comprising its three front (south) rooms, main staircase and the small, northeast and south rooms. • Explore a flanking new build as described under applicant’s option 6, but consider introducing a different design and/or use of materials at the vertical junctions of the listed building and new buildings to provide a visual separation between the two, i.e. the idea of detachment. • That it would be preferable not to have a completely new basement beneath the retained Jackson building, linking to the new buildings, in order that the wellbeing and structural integrity of the listed building is not compromised by invasive and excessive engineering works. • Keep the new buildings as far away as possible from the west, north and east site boundaries, seeking to retain the existing, eastern building line in order to improve the setting of no. 27 Banbury Road and help to minimise the height of the proposed Banbury Road block. • Introduce a centrepiece or an additional element of verticality into the Banbury Road block to alleviate the horizontality of the design when viewed in elevation from Banbury Road. • Consider introducing some orange/red bricks and/or tiles, either of conventional or slim dimensions as used by the architects on Keble’s Arco and Sloane Robinson buildings. • Investigate a design that involves, for example slightly different ranges to give an impression of an evolved townscape, rather than virtually all one build and design. Importance of trees and gardens. • Important to keep an open vista to the Jackson building from Banbury Road pavement.
Trees:
REPORT
78. The proposal involves the direct loss of all but three trees on the site; of these only one is likely to survive the impacts of the proposed development. The reasons for these losses are the size of the proposed new building footprint and changes in existing ground levels associated with the sunken quad and gardens. The proposed level changes also represent a threat to an important copper beech tree, which is shown to be retained. No Tree Preservation Orders exist on the site, however being in the North Oxford Victorian Suburb conservation area (NOVSCA) the trees already enjoy a measure of legal protection to prevent any felling without consultation. Officers’ comments are restricted to those trees, which it is considered make a significant contribution to public visual amenity and the character and appearance of the conservation area.
Landscape Character 79. As a garden suburb the character and appearance of the conservation area is highly influenced by its green components especially its stock of large and mature trees. In general terms the tree cover in the conservation area is characterised by the mixture of forest and exotic trees. Ornamental shrubs and large specimen trees are a common feature within the gardens and grounds of larger residential or institutional properties. The present buildings occupy a site that once contained a large early Victorian villa, which historic maps show was set within an expansive well laid out garden. There is no indication that any of the original features remain today and the existing landscaping on the site is poor and fragmented. However, the site contains four mature trees, which are visible to public views and that make a significant positive contribution to the character and appearance of the conservation area.
80. Indicative landscaping details have been submitted including a single line avenue of trees along the northern boundary of the site. Whilst this detail is perhaps only illustrative it should be noted that this form of planting is without precedent in north Oxford and is therefore quite out of place in the NOVSCA. The proposed route linking the Woodstock and Banbury Roads is used to accommodate an electricity substation, parking bays and cycle racks and so this effectively makes this a service road at the 'back' of the site. In this context the avenue does not work as a landscape feature in its own right. A landscape treatment that employs smaller numbers of large specimen trees in less regimented arrangements would be more appropriate in reflecting and reinforcing the existing character and appearance of the conservation area.
Tree Impacts 81. The significant existing trees in the raised planter along the Banbury Road are an early mature gingko and a Honey locust (Gleditsia tricanthos 'Sunburst'; erroneously described as a Sophora japonica in the application details). Irrespective of the application the rooting area around the trees would need to be significantly increased in order to secure the long-term retention of the trees as they are rapidly out-growing their existing surroundings and root development into the wider tarmac covered ground is likely to have been
REPORT inhibited by such inhospitable conditions. The proposal indicates a slight increase to the area of the planter about the gingko. However the planter is shortened with the Gleditsia shown within a much-reduced landscaped area; this effectively implies the loss of this tree, which would be unlikely to survive the changes to its surroundings.
82. The copper beech standing in the southeast corner of the site is the most significant tree as it is a key feature in the setting of the listed Jackson building. The tree is of good form and condition and has a reasonable future life expectancy. The species is typical of the conservation area and is one of a number of notable similar trees seen at intervals along the Banbury Road. The tree is shown for retention in the scheme. However, the surfacing treatments and level changes associated with the proposed central quad threaten the viable retention of the tree. The southern boundary wall may have been a barrier to root development in this direction, which if the case, would require an extra provision for Root Protection Area into the proposed sunken quad area. This issue has not been investigated despite this recommendation by the applicant's arboricultural consultant.
83. A large and attractive ash-leaved maple stands in an isolated grassed area to the south of the existing buildings close to the southern boundary of the site. The tree has an old bark wound close to its base but is generally in apparent good health and condition. The tree is of good form and is an unusually large specimen of the species. It makes a modest contribution to public amenity being visible from a limited line of sight between the Royal Oak and No. 40 Banbury Road. Nevertheless this kind of 'glimpsed' view of gardens and trees is characteristic of college locations and is part of the public's collegiate experience of Oxford.
84. A mature sycamore tree stands along the western boundary of the site. The tree is of reasonable form, condition and future life expectancy. It makes a positive contribution to public views of the site from the west over the roof of the Royal Oak public house. This benefit is made more significant by the relative scarcity of mature trees along this stretch of the street. The tree is shown lost, presumably as a consequence of level changes associated with a sunken garden along the western flank of the proposed building footprint where there is currently a tarmac service road.
85. Adjacent to The Lodge is an early-mature plane tree and an early mature cherry tree. The cherry tree fronts directly onto the Woodstock Road and makes a significant positive contribution, especially during spring when it is adorned by attractive pink/white blossom. However, the tree has a structural defect at its base and therefore its future life expectancy cannot be assumed to be much more than 10-15 years. The near adjacent plane tree is of good form and condition and has the potential to become a prominent tree in the future with all the associated public amenity benefits that this implies.
86. Outside of the site in the curtilage of No 48 Woodstock Road is another large mature copper beech, which makes a very important contribution to the street scene. The make up of the ground about the tree is complex and it is difficult
REPORT to assess the likely extent of the tree's root development into the application site. However, the Root Protection Area of the tree as defined by the BS5837: 2005 is not adequately accommodated, being encroached upon by the proposed electrical substation.
87. On the northern boundary of the site is a mature false acacia. The tree is of reasonable form, condition and future life expectancy. Although not directly compromised by the proposed new build footprint the tree is shown removed. The arboricultural assessment in the application supporting documents fails to take account of its positive contribution to views from the Woodstock Road. From here the tree is clearly visible, appearing on either side of The Lodge (No.46) Woodstock Road.
88. The arboricultural impacts of the scheme are very significant in cumulative extent. The proposal effectively calls for the removal of almost all of the valuable trees on the site and threatens the retention of others including a copper beech tree, which has importance to the setting of a listed building and which contributes positively to public visual amenity from views along the Banbury Road and to the character and appearance of the conservation area generally.
89. None of the trees are covered by Tree Preservation Orders. However being in the NOVS conservation area they already enjoy a measure of legal protection; had a statutory notice been given for the removal of the trees it is probable that officers would act to make such orders to necessary protect [the majority of] the trees on the site.
90. The proposal does not appear to take account of the constraints on the redevelopment of the site, which trees that are significant should properly impose. Furthermore indicative replacement landscaping proposals are inappropriate to conservation area's landscape character and do not adequately mitigate the losses to public visual amenity caused by the proposals.
91. It is recommended therefore that the applications be refused due to the proposals cumulative impacts on trees, which are significant to public visual amenity and the character, and appearance of the NOVS conservation area, contrary to Policies CP1 (e) and NE15.
Archaeology:
92. An archaeological impact assessment has been submitted for the site by Oxford Archaeology (2007). The assessment notes that the site has the potential for prehistoric, Roman and early medieval deposits and notes that ‘the survival of any below- ground archaeology on the Acland hospital site should be good away from actual foundations and areas of basement’ (3.1.1). Since the impact assessment was completed in 2007 a number of archaeological investigations have taken place in the vicinity of the site producing further evidence for prehistoric activity in the locality. An important new discovery has been the location of a large Neolithic henge monument
REPORT approximately 150m to the south of the former Acland Hospital site. In addition to this new information it is noted that the footprint of the proposed development extends significantly beyond the footprint of the existing structures.
93. Planning Policy Guidance 16 (Archaeology and Planning) states that the desirability of preserving important ancient monuments, and their settings, is a material planning consideration. For nationally important archaeological remains (whether scheduled or not), and their settings, there should be presumption in favour of physical preservation. The advice in PPG 16 is reflected in policy HE 2 of the City Local Plan. In light of recent archaeological evidence a field evaluation is therefore required prior to the determination of the FULL application (09/00322/FUL) in order to establish the archaeological impact of the proposed development and whether it may have a damaging effect on known or suspected elements of the historic environment of the people of Oxford and their visitors, including potentially prehistoric, Roman and Saxon remains. In this case, a field evaluation has not been undertaken and therefore there is insufficient information to establish the archaeological impact of the proposed development. Officers therefore recommend that the application be refused on the grounds of failure to provide adequate archaeological information.
Amenities:
94. In general it is considered that the development would not have a significant adverse impact on neighbouring residential amenities in terms of being overbearing or cause loss of daylight and sunlight. To the north and east of the site the new building is pulled away from joint boundaries, in comparison to the existing building(s) and whilst higher than existing, is not considered to be detrimental to the adjacent properties. To the South the new building would be closer and again higher, however due to distance between buildings and orientation there would be no adverse impact. The setting of the adjacent listed buildings (No.27 Banbury Road and The Royal Oak pub Banbury Road) has been addressed earlier in the report.
95. At Anne’s College adjacent to the north has raised concerns in relation to its Nursery. The Nursery building is adjacent to the boundary, which is formed by a stone and brick garden, which would not be altered. There is already existing parking the other side to the Nursery at this point within the Acland site and it is considered that there would be no significant change. The Nursery play area is to the north of the building and therefore not directly affected by the proposed parking. It is considered that there would not be any significant adverse impact on the children from cars parking the other side.
Traffic and Parking:
Access 96. The transport statement submitted in support of the application states that the site currently has five accesses onto the public highway, one onto Woodstock Road and four onto Banbury Road. There is currently no vehicular ‘through route’ from Banbury Road to Woodstock Road.
REPORT
97. The application seeks permission for alterations to the existing accesses. A new access/ service road is proposed to be constructed along the northern boundary of the site to improve access for students, visitors and staff. Access into the service road is proposed from Woodstock Road in a one-way system with egress onto Banbury Road. The service road would be gated at either end to prevent the site from being used as a vehicular cut through between Woodstock and Banbury Road. The Transport Statement indicates that the new configuration would mean the removal of two dropped kerbs, one on Banbury Road and the other on Woodstock Road. This new east-west route would be open to the public during the day to allow a pedestrian through route to the former Radcliffe Infirmary site and that part of the City. Officers welcome this proposal. However, in line with similar new east-west routes on the Radcliffe Infirmary site opposite, Officers would like to see this open 24hours and not closed overnight. It is acknowledged that security is a prime concern, as it is for the Radcliffe Infirmary developments, but measures could be put in place that would allow assessment of this situation should problems arise and a solution be considered at that stage.
98. This route would be located opposite an existing access to the Radcliffe Infirmary site on the Woodstock Road (Gate 7). However, given the Radcliffe Infirmary site is no longer operating as a hospital and given the proposed level of traffic generation for the Keble College site, the Highways Authority is of the opinion that the proposed new access to the service road is unlikely to have any detrimental impact on either traffic flows or highway safety on the Woodstock Road.
Parking 99. The site is located within the Transport Central Area and close to existing good public transport links and therefore car parking should be for operational and disabled purposes only, unless justification is provided. The Transport Statement indicates that 33 car parking spaces are proposed, including 4 disabled spaces. The level of disabled parking provision is in accordance with Local Plan standards. There is a significant reduction in the level of parking provision currently on the site from 55 spaces to 33 (loss of 22), which is welcomed. The College state that the parking proposed would provide 16 spaces for Resident Fellows at College, 4 reserved spaces for visiting academics, 4 allocated spaces for College vehicles, which will be based on site, and 5 unallocated spaces for Contractors / Deliveries / Visitors.
100. It is acknowledged that Keble College applies a parking policy and that a great deal of parking currently exists. However, 16 spaces proposed for Fellows at the College implies parking for those Fellows not resident actually on site and therefore seen as excessive, in the absence of any further justification. Similarly 5 unallocated spaces for visitors/ contractors/ Deliveries is also seen as excessive, especially in view of the good transport links and Park & Ride available to visitors. Visiting academics may be resident for short periods of time to possibly a year or more and given the situation at Colleges elsewhere in the City Centre who do not have parking for Fellows or visiting Academics, this number of spaces is also questioned. A Travel Plan for Keble College
REPORT should be drawn up to part mitigates the impact of the development. Officers therefore consider that a further reduction in number could be achieved through further discussion and negotiation and are therefore not recommending refusal on car parking provision.
101. Varying numbers of cycle spaces are mentioned in the submitted application and plans, from 200 to 250 spaces. In the event, 126 spaces would be required in accordance with the Local Plan and therefore adequate cycle parking is proposed along the new access route. Clarification on exact numbers is being sought however and will be reported verbally to Committee.
Other:
Sustainability:
102. A Natural Resource Impact Analysis (NRIA) has been submitted and the development scores highly, attaining 8 out of 11 on the checklist score (a minimum of 6 /11 required). The NRIA states that solar panels will be installed on the roof to provide solar energy for hot water and ground source heat pumps for heating and cooling. Two areas will have a green roof. A mixture of natural and mechanical ventilation is proposed and a combined heat and power unit to provide ventilation heating and hot water, in addition to the solar hot water. Grey water harvesting will provide water for flushing of WC’s and for the laundry. High levels of insulation are proposed. Locally produced materials will be sourced and timber from sustainable sources. Officers consider that the proposals are in accordance with the local plan policy to increase energy efficiency and use of renewable energy sources and reducing carbon emissions.
Contributions:
103. If granting of planning permission were to be supported, the following contributions would be required, as set out in the Obligations SPD, based on 207 persons:
City Council: Indoor sport: £12,420 County Council: Libraries (Westgate Library): £13,041 Cycle infrastructure improvements in the vicinity of the site: £28,566
County and City Council’s admin fees also apply.
Overall Conclusion:
104. The redevelopment of this site as proposed would result in the unacceptable loss of a listed building and a detrimental impact on special character of conservation area and setting of adjacent listed buildings. It would also result in the unacceptable loss of existing trees to the detriment of the conservation area. Insufficient archaeological information has been
REPORT provided in order to assess the archaeological impact. Officers therefore recommend the applications be refused, as set out in the above report.
Human Rights Act 1998
Officers have considered the Human Rights Act 1998 in reaching a recommendation to refuse planning permission, listed building consent and conservation area consent. Officers have considered the potential interference with the rights of the owners/occupiers of surrounding properties under Article 8 and/or Article 1 of the First Protocol of the Act and consider that it is proportionate.
Officers have also considered the interference with the human rights of the applicant under Article 8 and/or Article 1 of the First Protocol caused by imposing conditions. Officers consider that the conditions are necessary to protect the rights and freedoms of others and to control the use of property in accordance with the general interest. The interference is therefore justifiable and proportionate.
Section 17 of the Crime and Disorder Act 1998
Officers have considered, with due regard, the likely effect of the proposal on the need to reduce crime and disorder as part of the determination of this application, in accordance with section 17 of the Crime and Disorder Act 1998. In reaching a recommendation to refuse, officers consider that the proposal will not undermine crime prevention or the promotion of community safety.
Background Papers: 09/00321/LBD, 09/00322/FUL, 09/00323/CAC Contact Officers: Felicity Byrne & Edith Gollnast Extension: 2159 & 2148 Date: 20th April 2009
REPORT
REPORT
REPORT