Planning Services COMMITTEE REPORT

APPLICATION DETAILS

APPLICATION NO: DM/16/00142/FPA Provision of use class D1 (Non-Residential Institutions) museum pieces including: (i) 1950s Town comprising road, lighting, drainage, overhead trolley bus cables, cinema, terrace of single house and 3 shops, 8 semi- detached and terraced housing units, terrace of 4 aged miners homes, 3 shop units, bus shelter, gents urinal, lock-up garages, bowls pavilion and bowling green, biomass building, community centre and recreation ground. (Ancillary uses including hot food café, fish and chip shop, elderly persons health and wellbeing day FULL APPLICATION DESCRIPTION: centre and school group education rooms); (ii) 1820s Area comprising coaching inn, windmill, pottery, blacksmiths, candle house, lime kiln, heather thatched cottage, biomass building and drainage (Ancillary uses within coaching inn include overnight accommodation comprising 17 guest bedrooms, guest accommodation cottage and 3 accessible guest accommodation cottages, licensed premises serving food and drink); (iii) Two storey stone upland farm house, barns and drainage; (iv) Transport shed and associated infrastructure NAME OF APPLICANT: Mr R Evan - Beamish Museum Beamish Museum, Regional Centre, Beamish, Stanley, ADDRESS: DH9 0RG ELECTORAL DIVISION: Pelton Nick Graham, Planning Officer CASE OFFICER: 03000 264 960, [email protected]

DESCRIPTION OF THE SITE AND PROPOSALS

The Site

1. The North of England Open Air Museum at Beamish is situated to the north of the A693, midway between the towns of Chester-le-Street and Stanley and close to the village of Beamish. The site is large, and well screened, sitting in a natural 'bowl' in the landscape, with limited views from outside the Museum. The Museum is one of North East England's most popular and important tourist attractions and the site has developed over time with various additions, including extensions to the boundary of the Museum itself.

2. The majority of the site falls within the former Chester-le-Street District boundary, although part of the site falls within the former Derwentside District boundary, however it is noted none of the proposed works are within the former Derwentside District area. The Gateshead Metropolitan Borough Council area is positioned a short distance away to the north east, whilst part of the site falls within the Forgebank Woods Local Wildlife Site and the Beamish / Causey Arch Area of High Landscape Value. Various Public Rights of Way traverse across the site whilst several Listed Buildings are located within the site, the most prominent of which being the Grade II Listed Pockerley Farmhouse, and the Grade II* Listed Pele Tower.

The Proposal

3. The proposal under consideration relates to four distinct areas. Firstly the erection of a 1950s town to the north of the site, close to the existing 1910s town. As part of this area, a cinema, bowling green, community centre, as well as associated residential and commercial buildings are proposed. Secondly the erection of buildings within the 1820s ‘Georgian North’ area to the south east of the site, including a Coaching Inn where visitors and non-visitors would be able to stay overnight on site, as well as a restaurant/pub serving traditional food and drink, a ‘post mill’, lime kiln and various other buildings indicative of the period. Thirdly, an upland farm indicative of a style in Weardale is proposed to the centre of the site, with associated boundary treatments. Finally, the erection of a transport shed designed to house buses and trolley buses. Associated infrastructure is also proposed around the site, including overhead power lines for trolley buses, two biomass boilers in the 1950s and 1820s areas respectively, and two sewage treatment works. The primary objective of the proposal is to introduce new areas and eras to the Museum site which would in turn increase visitor numbers to the attraction, maintaining the Museum’s position as one of the County’s, and region’s, premier tourist attractions, whilst acting as a heritage gateway to life in historic North East England.

4. The application is reported to the County Planning Committee because it is major development with a site area greater than 2 hectares.

PLANNING HISTORY

5. The site has been a Museum since opening in 1970, with various additions throughout this period, the most recent of which being a stable block in the Colliery village (ref. 2/13/00025/FUL), a Georgian-style building in the 1910s town (ref. 2/14/00002/FUL), and the relocation of the seasonal ice rink to the fairground area (ref. DM/15/02241/FPA).

PLANNING POLICY

NATIONAL POLICY

6. The Government has consolidated all planning policy statements, guidance notes and many circulars into a single policy statement, the National Planning Policy Framework (NPPF), although the majority of supporting Annexes to the planning policy statements are retained. The overriding message is that new development that is sustainable should go ahead without delay. It defines the role of planning in achieving sustainable development under three topic headings – economic, social and environmental, each mutually dependant.

7. The presumption in favour of sustainable development set out in the NPPF requires local planning authorities to approach development management decisions positively, utilising twelve ‘core planning principles’. The following elements of the NPPF are considered relevant to this proposal. 8. NPPF Part 1 – Building a Strong, Competitive Economy – The Government is committed to securing economic growth in order to create jobs and prosperity and to ensuring that the planning system does everything it can to support sustainable economic growth. Planning should operate to encourage and not act as an impediment to sustainable growth. Therefore significant weight should be placed on the need to support economic growth through the planning system. Decisions should support existing business sectors, taking account of whether they are expanding or contracting.

9. NPPF Part 3 – Supporting a Rural Economy – Requires planning policies to support economic growth in rural areas in order to create jobs and prosperity by taking a positive approach to sustainable new development, supporting all types of business and enterprise, promoting development and diversification of agricultural and rural business and supporting tourism and leisure activities that benefit rural businesses, communities and visitors whilst respecting the character of the countryside.

10.NPPF Part 4 – Promoting Sustainable Transport – States that the transport system needs to be balanced in favour of sustainable transport modes, giving people a real choice about how they travel. It is recognised that different policies and measures will be required in different communities and opportunities to maximize sustainable transport solutions which will vary from urban to rural areas. Encouragement should be given to solutions which support reductions in greenhouse gas emissions and reduce congestion.

11.NPPF Part 7 – Requiring Good Design – The Government attaches great importance to the design of the built environment, with good design a key aspect of sustainable development, indivisible from good planning. Planning policies and decisions must aim to ensure developments; function well and add to the overall quality of an area over the lifetime of the development, establish a strong sense of place, create and sustain an appropriate mix of uses, respond to local character and history, create safe and accessible environments and be visually attractive.

12.NPPF Part 8 – Promoting Healthy Communities – Recognises the part the planning system can play in facilitating social interaction and creating healthy and inclusive communities. Access to high quality open spaces and opportunities for sport and recreation can make an important contribution to the health and well-being of communities.

13.NPPF Part 10 - Meeting the Challenge of Climate Change, Flooding and Coastal Change – Planning plays a key role in helping shape places to secure radical reductions in greenhouse gas emissions, minimising vulnerability and providing resilience to the impacts of climate change, and supporting the delivery of renewable and low carbon energy.

14.NPPF Part 11 – Conserving and Enhancing the Natural Environment – The planning system should contribute to, and enhance the natural environment by; protecting and enhancing valued landscapes, recognizing the benefits of ecosystem services, minimising impacts on biodiversity and providing net gains in biodiversity where possible, preventing new and existing development being put at risk from unacceptable levels of soil, air, water or noise pollution or land instability, and remediating contaminated and unstable land.

15.NPPF Part 12 – Conserving and Enhancing the Historic Environment – In determining applications LPAs should take account of; the desirability of sustaining and enhancing the significance of the heritage asset, the positive contribution conservation of heritage assets can make to sustainable communities and economic viability, and the desirability of new development making a positive contribution to local character. 16.In accordance with paragraph 215 of the National Planning Policy Framework, the weight to be attached to relevant saved local plan policy will depend upon the degree of consistency with the NPPF. The greater the consistency, the greater the weight. The relevance of this issue is discussed, where appropriate, in the assessment section of the report below.

17.NPPG – Historic Environment – The conservation of heritage assets in a manner appropriate to their significance is a core planning principle. Heritage assets are an irreplaceable resource and effective conservation delivers wider social, cultural, economic and environmental benefits. Heritage assets may be affected by direct physical change or by change in their setting. Being able to properly assess the nature, extent and importance of the significance of a heritage asset, and the contribution of its setting, is very important to understanding the potential impact and acceptability of development proposals.

18.NPPG – Design – Good quality design is an integral part of sustainable development. Achieving good design is about creating places, buildings, or spaces that work well for everyone, look good, last well, and will adapt to the needs of future generations. Good design responds in a practical and creative way to both the function and identity of a place.

19.NPPG – Public Rights of Way – Public rights of way form an important component of sustainable transport links and should be protected or enhanced.

20.NPPG – Open Space, Sports and Recreation – Open space, which includes all open space of public value, can take many forms, from formal sports pitches to open areas within a development, linear corridors and country parks. It can provide health and recreation benefits to people living and working nearby, have an ecological value and contribute to green infrastructure as well as being an important part of the landscape and setting of the built environment.

http://www.communities.gov.uk/documents/planningandbuilding/pdf/2116950.pdf

LOCAL PLAN POLICY:

Chester-le-Street District Local Plan (saved policies 2007)

21.Policy NE6 – Development affecting the Visual Amenity of the Green Belt – Development within or conspicuous from the Green Belt will not be granted where the proposal by virtue of its scale, siting, materials or design is detrimental to the visual amenity of such.

22.Policy NE8 – Sites of Nature Conservation Importance and Local Nature Reserves – Sites of Nature Conservation Importance, including Forgebank Woods, will be protected according to their significance to nature conservation. Planning permission will only be granted for development proposals which: enhance the designated site or; do not harm the nature conservation interest of the site; or minimise damage to the designated site and compensate fully for the damage by habitat creation or enhancement elsewhere within the site or local area.

23.Policy NE15 – Areas of High Landscape Value – Special attention will be given to the maintenance and enhancement of the landscape character and quality of Beamish / Causey Arch Area of High Landscape Value. Proposals for development within these areas will only be permitted where they are of a high standard of design, reflect the scale and character of buildings in the area and do not detract from the high landscape quality.

24.Policy T15 – Access and Safety provisions in design – Development should have safe access to classified road, should not create high levels of traffic exceeding the capacity of the local road network, and have adequate links to public transport, with consideration for cyclists and service vehicles and emergency vehicles.

25.Policy TM1 – Beamish Open Air Museum – The provision of new tourist and recreational facilities within the Museum will be permitted provided they do not have an unacceptable impact on sites of nature conservation, the amenities of neighbouring residents, the scale, design, layout and materials respect the open countryside and AHLV and the proposal does not conflict with Policy NE6 of the Plan.

EMERGING POLICY:

26.Paragraph 216 of the NPPF says that decision-takers may give weight to relevant policies in emerging plans according to: the stage of the emerging plan; the extent to which there are unresolved objections to relevant policies; and, the degree of consistency of the policies in the emerging plan to the policies in the NPPF. The County Durham Plan was submitted for Examination in Public and a stage 1 Examination concluded. An Interim Report was issued by an Inspector dated 15 February 2015, however that report was Quashed by the High Court following a successful Judicial Review challenge by the Council. As part of the High Court Order, the Council has withdrawn the CDP from examination. In the light of this, policies of the CDP can no longer carry any weight at the present time.

CONSULTATION AND PUBLICITY RESPONSES

STATUTORY RESPONSES:

27.DCC Highways – have raised no objections as the Transport Statement provides good evidence regarding the likely traffic generation, and that the A693 Beamish roundabout is operating with significant spare capacity. Although car occupancy is high to the site, a low figure has been used within the Statement which ensures the assessment is robust.

28.Environment Agency – have raised no objections however notes that the proposed treatment plants require an Environmental Permit, and the applicant is advised to contact the Environment Agency for further advice.

29.The Coal Authority – have raised no objections to the proposal, considering the content and conclusions of the prepared information are sufficient for the purposes of the planning application, demonstrating the application site is safe and stable for the proposed development. The applicant is advised that more detailed considerations of ground conditions and / or foundation design may be required as part of any application for Building regulations.

30.Historic England – have no comments to make with respect to the proposal.

31.Highways England – have noted there is some distance between the Museum and the Strategic Road Network, however a proposed increase of 100,000 visitors per year will likely increase trips onto the SRN to a degree. It is anticipated many trips would occur at weekends and out of peak traffic however a traffic management plan is requested to be implemented as there are likely to be some peaks in demand on the SRN within peak hours. INTERNAL CONSULTEE RESPONSES:

32.DCC Ecology – initial comments were returned noting the woodland and hedge elements were acceptable with respect to impacts and mitigation. The remainder of the detail in the statement relating to ecological matters was not considered sufficient. Subsequent information was provided particularly with respects to the grasslands elements and this was considered acceptable.

33.DCC Design and Conservation – have raised no objections to the 1950s Town and the majority of the 1820s area. With regards to the transport depot, an amended design and layout was preferred which would be more in keeping with the character of the traditional buildings. It was recommended the Spainsfield Farm area should not appear too isolated with the addition of boundary treatments to link the building to existing boundary hedges and fences. The windmill is deemed to be too dominating adjacent to the Listed Buildings at Pockerley, and would be better suited elsewhere. More detail is requested on the Coaching Inn and the access arrangements, whilst the juxtaposition between the existing 1910s Town and proposed 1950s Town should be justified.

34.DCC Landscape – two main concerns were raised: the loss of trees as a result of the transport depot and if this could be reconfigured, and the location of the proposed sewer treatment plants and their impacts on adjacent trees and their root protection areas. Subject to these matters being resolved, there would not be significant landscape and visual effects.

35.DCC Trees – have raised no objections to the proposal, noting the trees proposed to be removed are of poor value and do not warrant individual Tree Preservation Orders.

36.DCC Environmental Health (Air Quality) – a Dust Action Plan was recommended during the construction phase to ensure dust emissions on site are balanced against the overall construction works, whilst it was recommended a Biomass Information Request Form was filled in to ascertain the impacts of the biomass boilers in terms of local air quality.

37.DCC Environmental Health (Pollution Control) – has raised no objections to the proposal in terms of the potential for the development to cause a statutory nuisance.

38.DCC Sustainability – have raised no objections to the proposal subject to a Biomass District Heating Feasibility Assessment being undertaken given the inefficiency of the buildings to be heated.

39.DCC Public Rights of Way – notes various public rights of way cross the site, however the Landscape Plan sheet 1 shows a proposed 14 space car parking area and hedge planting on the legal line of footpath no.6. This element may need to be redesigned or an application to divert the footpath will be required. The applicant subsequently amended this element of the scheme, reducing the size of the car park which would not affect the public right of way and the officer has confirmed that this is considered acceptable.

40.DCC Drainage – no objections are raised subject to the surface water drainage being controlled and discharged in accordance with the submitted Flood Risk Assessment and Drainage Strategy Report. The detailed design drawings and calculations should be submitted to the Drainage and Coastal Protection section for approval prior to works commencing.

PUBLIC RESPONSES: 41.The application has been advertised in the Northern Echo, eight site notices were posted around the site and in Beamish village, and direct neighbour notifications were sent to nearby properties. Two representations have been received, one being an objection and one offering comments.

42.The objection acknowledges the benefits of the Museum and supports its future development; however the concern is with regard to noise levels reached during certain events, and the potential repercussions of a licenced premises and overnight accommodation being located on the site. The current events have a PA system and outdoor music which can be heard one mile away, and it does not appear the noise levels are managed or monitored. A licenced premises and overnight accommodation would undoubtedly lead to more functions and organised events with additional noise for local residents. Conditions should be applied to any planning permission so the amenity of local residents is not impeded further, particularly given the site is within historic parkland. It is requested conditions restrict outdoor entertainment after 8pm and the noise levels are restricted to a level that is relative to the background noise of the locality.

43.The representation offering comments notes the good work of the Museum and the good relationship they have as neighbours. The concern is construction workers or members of the public using the Public Right of Way adjacent to their property to access the Coaching Inn outside of standard Museum opening hours. There is no concern regarding Beamish Museum vehicles using this however it is a small track and would not support over use.

APPLICANTS STATEMENT:

44.Beamish has grown over the past forty or more years into one of the foremost open air museums in the world and a star attraction for the region. Through the Remaking Beamish project we hope to expand and enrich our offer, bringing new audiences to the Museum and creating new experiences to attract our ever-growing cohort of regular visitors. The plan fits into our wider Development Engagement Plan 2012-2025, and we have considered the wider planning priorities of the region as referenced below.

45.The planning application covers two significant areas of expansion within the existing site: a new 1950s-era town, with a cinema, social housing, a bowling green and a community centre; and a number of buildings in the 1820s landscape showing early industrial life and travel on the Great North Road. Although the majority of the buildings will be replicas – constructed from reclaimed materials wherever possible – some will be translocated to the site following generous donations from people in the region. An expanded transport system, including period trolleybuses, will improve access around the site. Enhanced facilities will allow greater opportunities for schools, community groups, and our pioneering work with older adults.

46.The Durham Tourism Management Plan 2012-2016 outlines the vision for the county to ‘fulfil its potential as one of the North of England’s lead destinations, attracting visitors to the region from across the UK and from target overseas markets… by 2020 the county’s visitor economy will account for 17% of the county’s economy.’ The plan acknowledges Beamish as one of the most significant attractions in the region with 497,891 visitors in 2011/12. This figure has grown to 655,936 in 2014/15, and we hope to add a further 100,000 annual visitors through the Remaking Beamish project. We know from our consultation across the region that there is an appetite for the new historic periods and the facilities we propose to offer.

47.The project will also benefit the region by creating jobs – estimated to be at least 95 FTE posts – and providing apprenticeships and traineeships in diverse trades including construction and hospitality as well as more traditional museum roles. A single main contractor will not be appointed for the building works: rather, Beamish will increase the size of its in-house building team and work directly with suppliers and tradesmen as the Principal Contractor, and we anticipate a significant proportion of these will come from within the region.

48.Expansion was anticipated at Beamish from its inception. As the Chester-le-Street Local Plan recognises “Beamish is not complete” and really never will be: we are constantly looking for new ways to tell the story of the region’s history and to engage our visitors in new ways. We have the advantage of sitting within a natural bowl that prevents our developments from being visible to the ‘outside world’. However, we recognise that growth within the site must be sensitive to the local ecology, our neighbours, and the nature of the site. We have given careful consideration to how we can use natural screening both to enhance the biodiversity of the site and to preserve the historic contexts and vistas that we have constructed over the lifetime of the Museum, and we have consulted with local residents to ensure our plans make as little impact on them as possible.

49.We have worked as closely as possible with the Durham County Council Planning team to explain and refine our proposals, and we believe that we share a vision for how Beamish can contribute to the region. The Chester-le-Street Local Plan clearly respects the value of Beamish to the area, and we are confident that our proposed development does not negatively impact on the area at all, certainly does not conflict with the specified polices NE6, NE8 and NE10. The natural environment we have shaped at Beamish is as much a part of the visitor experience as our buildings and activities, and as our Landscape and Environment policy shows we are committed to maintaining and improving the ecology of the site. As noted in our Preliminary Ecological Appraisal, the development does include some works within the Forgebank Woods SNCI specified in policy NE8. The conclusion of the PEA is that there will be no long-term negative effects to the site.

50.Beamish was formed with a unique and warm relationship with the people of the North East and a shared passion for the outstanding heritage of the region. We believe the Remaking Beamish is a natural continuation of this relationship and vision, and will take the Museum forward as an important and excellent attraction for the county, the region and the country.

PLANNING CONSIDERATIONS AND ASSESSMENT

51.Having regard to the requirements of section 38(6) of the Planning and Compulsory Purchase Act 2004, the relevant Development Plan policies, relevant guidance and all other material considerations including representations received it is considered that the main planning issues in this instance relate to the principle of development, nature conservation, residential amenity, the impact on the character and appearance of the countryside and the AHLV, the impact on the heritage assets, public rights of way, highways and access, environmental health, drainage, sustainability and energy, coal mining risks, and the proposed coaching inn.

Principle of Development

52.The proposed elements of the scheme fall within the parameters of the Museum itself, and within the boundaries of Policy TM1 as designated on the Chester-le-Street District Local Plan Proposals Map. 53.Policy TM1 of the Chester-le-Street District Local Plan specifically supports the aims of the Museum providing the proposal does not have an adverse impact on any site of nature conservation importance nor the amenities of nearby residents or land-uses, respects the character and appearance of the open countryside and the integrity of the AHLV, and does not conflict with other Policies in the Local Plan. Each of these issues will be addressed below.

54.The Local Plan stresses the importance of the Council in providing an enabling role to the continuing development of the Museum, and to ensure the benefits the Museum can bring are passed onto surrounding areas in terms of employment, increased spending, environmental improvements and to enhance the profile of the County within a regional and national context. It is considered the proposal complies with the overarching aims of Policy TM1, subject to the proposal meeting the ecological and environmental constraints and amenity considerations as set out within Policy TM1.

Nature conservation

55.The details contained within the original statement relating to ecological matters were sufficient with respect to the woodlands and hedges proposed as part of the scheme. Additional information was requested with respect to the measures proposed for the enhancements of grasslands within the site and the information was subsequently provided with a timetable for paring and seeding, as well as ongoing maintenance of the meadow. It is considered appropriate to condition the methods set out for the biodiversity measures outlined in the statement relating to ecological matters, to ensure the measures are implemented and monitored correctly. There are no protected species within the site, and subject to the above condition, the proposal is considered to be in accordance with Policy NE8 of the Chester-le-Street District Local Plan, and Part 11 of the NPPF as it would provide net gains in biodiversity mitigation measures.

Residential privacy and amenity

56.The closest residential properties affected by the proposals are within the boundaries of the Museum itself at Flint Mill House and Flint Mill Cottage, which are occupied by Museum employees. The closest non-Museum properties are at Hammer Square House, High Forge Cottage, High Forge House and Burnside Cottage on Hammer Square Bank, approximately 300-400 metres to the south and east of the proposed Coaching Inn. As the site is bounded by heavy vegetation, there are no implications in terms of privacy from the site looking outwards.

57.With regards to amenity, it is appreciated additional traffic will be generated as a result of the proposal however this would largely be restricted to the A693 with direct access off the Beamish roundabout and into the car park. A representation has been received regarding the potential use of a Public Right of Way adjacent to Hammer Square House as a means of access to the Coaching Inn. This is not considered to be likely given this would mean gaining access through two closed gates. The Museum are not actively promoting this as a means of access and therefore it considered visitors would use the existing entrance and car park to access the Coaching Inn part of the site out of hours. It is also not considered a route visitors would be familiar with particularly given the existing Museum entrance which is well established and signposted.

58.Concerns have also been expressed by a neighbour with respect to the existing arrangement of late-night events being held at the Museum generating noise. It is not possible for the current application to address existing issues however it is understood that the events referred to are held relatively infrequently and are an integral part of the operation of the Museum. Any existing problems would need to be investigated via the Environmental Health section who would need to assess whether the events result in a statutory nuisance to the occupiers of nearby properties. The impact of the Coaching Inn is assessed further below, however asides from this in broader terms the amenity and privacy of neighbouring properties is not considered to be adversely affected as a result of the scheme and the proposal meets this criterion of Policy TM1 of the Chester-le- Street District Local Plan.

Impact on character and appearance of the countryside and AHLV

59.The site sits within the Beamish / Causey Arch Area of High Landscape Value, within which proposals must meet a high standard of design, reflecting the scale and character of surrounding buildings and must not detract from the high landscape quality. As the proposals are within a self-contained site, which largely sits in a natural bowl in the landscape, the proposals are considered to meet the above criteria, particularly as the design of various elements of the scheme are to a high standard, indicative of their era, and in the context of an open air Museum sit comfortably within their natural surroundings. Therefore, the proposal is considered to be in accordance with Policy NE15 of the Chester-le-Street District Local Plan.

60.Concerns were raised regarding the siting of the proposed bus depot and the loss of non-protected trees within this area. Although this is regrettable, functional reasons have been cited by the applicant with respect to the position of the bus depot in terms of the practicalities of manoeuvring trolley buses into the shed and avoiding existing tram lines and the tram shed, as well as more general health and safety reasons. It is appreciated additional tree planting would take place to the east of this area, and the Council’s Tree Officer has raised no concerns with respect to this.

Impact on the Heritage Assets

61.Parts of the proposal fall within close proximity to two Listed Buildings, the Grade II Listed Pockerley Farmhouse, and the Grade II* Listed Pele Tower. Proposed immediately adjacent to these on the crest of the hill is a replica of Buck’s Hill Post Mill, an early form of windmill, which would stand to the west. The post mill for which this has been replicated had previously stood on the riverbank at Blyth in Northumberland, and whilst it is acknowledged the proposed setting is not a known original location, it is not an inauthentic site as post mills were permitted on rented land. The location is acknowledged as one of the windiest in the site, with strong winds particularly from the west.

62.The applicant have noted that as the majority of the Museum sits within a valley, there are limited options by way of appropriate siting for the windmill to function. The aim of the Museum is to ensure all exhibits are contextually appropriate, both geographically and in terms of presenting a period of history accurately. The date of the mill complements the post-medieval structures at Pockerley Old Hall whilst also having the advantage of shelter from the Pockerley beech trees, which is of particularly issue as North East post mills never adopted fantails so the mill could not re-orientate itself. It is also noted early mills often related to manorial ownership, and on the Beamish site are the remains of two water mills, one for Pockerley and one for Beamish Hall.

63.When considered against Paragraphs 131 and 132 of the NPPF, great weight is given to the Listed Buildings and their conservation. Significance can be harmed or lost through development within the setting of heritage assets, and any harm or loss requires clear and convincing justification. The Historic England guidance note ‘Managing Significance in Decision-Taking in the Historic Environment’, sets out the nature, extent and importance of the significance of a heritage asset, however notes the cumulative impact of incremental small-scale changes may have as great an effect on the significant of a heritage asset as a larger scale change. Positive change could include the restoration of a building’s plan form or an original designed landscape. When examined against Paragraph 66 of the Planning (Listed Buildings and Conservation Areas) Act 1990, special regard should be given to the desirability of preserving the building or its setting, or any features of architectural or historic interest which it possesses.

64.Given the above, the significance of the Listed Buildings is noted as being considerable, particularly given their prominent siting on the crest of the hill and that they pre-date the Museum itself. It also considered the proposed post mill would impact upon the Listed Buildings, however this is not considered to be a harmful impact, given historically this is how such a manor may have operated. The context of these heritage assets is also important in this regard as the aims of the Museum are to provide an insight into historic life in North East England and to provide a deeper understanding of the past. It is also appreciated that this is a unique situation where development is taking place within an established open air Museum and therefore is arguably an artificial environment. Given the Museum has traditionally grown and evolved despite several Listed Buildings being located within the site. Therefore it is considered, on balance, the proposed siting of the post mill is acceptable and would maintain the setting of the heritage assets in accordance with Part 12 of the NPPF, whilst unaffecting the desirability of their setting in accordance with Paragraph 66 of the Planning (Listed Buildings and Conservation Areas) Act 1990.

Public Rights of Way

65.It is acknowledged that several public rights of way traverse the site, particularly in the 1820s Georgian North Area. An initial landscape plan indicated that a proposed car park for the Coaching Inn would directly conflict with a public right of way. The applicant subsequently provided an amended plan revising the layout of the car park which would not directly conflict with the public right of way, and this was considered acceptable. All other public rights of way are unaffected by the proposals.

Highways and access

66.The site is located a short distance to the north of the A693, with the Transport Statement noting approximately 92% of visitors arriving via car or coach, however the existing roundabout leading to the site from the A693 is operating within capacity. Taking into account the expected visitor numbers associated with the proposed development, the roundabout and surrounding roads would still be operating within capacity, and even in the PM weekday period (16:45-17:45) there would be no significant impact on the local road network. Car parking requirements are also considered to be met.

67.Highways England have requested a Traffic Management Plan is implemented to ascertain the impact the additional visitors may have on the nearby A1(M) motorway and the associated Junction 63 roundabout, part of the Strategic Road Network (SRN). Subject to the above being conditioned as part of any approval granted it is considered the proposal meets the requirements of Policy T15 of the Chester-le-Street District Local Plan.

Environmental Health

68.With respect to noise, dust, odour, light and smoke, the proposal is not considered to cause a statutory nuisance, however with respect to local air quality, the biomass boilers do not contain enough detail to establish their effects in terms of air quality pollutants. The applicant was requested to complete a biomass request form however the questions were not able to be answered at this stage as the final technicalities of the biomass boilers yet to be established, as well as a procurement stage being undertaken by the applicant. It is therefore considered acceptable to condition such detail is provided prior to works commencing as part of any approval granted.

69.Concerns were raised that the scale of development, particularly over a number of years, may increase dust emissions at the site and a Dust Action Plan was recommended. However, it is acknowledged the site is broadly sheltered from residential properties, and it is noted the predicted prevailing background levels of particulates will be low and well below the annual mean air quality objection, whilst there are no other known sources within the site’s locality. In this respect, a Dust Action Plan is not requested.

Drainage

70.Part of the site falls with the defined Environment Agency Flood Zone 2, close to the Beamish Burn, however given the extent of the works within these zones and noting the findings of the submitted Flood Risk Assessment, it is not considered the proposal would be adversely affected by surface water drainage subject to the findings of the Flood Risk Assessment being implemented. This is considered acceptable and appropriate to condition as part of any approval granted.

71.Two sewage treatment plants are proposed, within the 1950s Town and adjacent to the 1820s area respectively. A specification has been provided however similarly to the biomass boilers, further detail would follow at a later stage following the detailed design and analysis phase of current and proposed flows. Consequently, it is considered appropriate to agree these details via condition.

Sustainability and Energy

72.The nature of the application is unique given the site is an existing visitor attraction and the site is considered to be a sustainable location. It is appreciated the proposed biomass boilers require further detail to establish their feasibility with respect to the differing building and construction types, however it is noted the buildings are not intended to be constructed to modern Building Regulations standards. The buildings would also remain open to the visitors with coal fires inside, and on this basis given they would not be standard functional buildings and instead act as historical pieces. On this basis, it is not considered a condition requiring a feasibility assessment of the biomass boilers is required.

Coal Mining Risks

73.It is acknowledged the site falls within the defined Development High Risk Area, and as an up-to-date coal mining information assessment has been undertaken, it is considered the application site is safe and stable for the proposed development, with no objection raised from the Coal Authority. An appropriate informative is recommended with respect to further detail of ground conditions and foundation design.

Proposed Coaching Inn

74.Part of the proposal incorporates the provision of a Coaching Inn with the capacity for both after-hours food and drink and overnight accommodation with 17 guest bedrooms and 3 separate ground floor ‘cottages’ which would serve as accessible accommodation units. This is intended to mimic a ‘Great North Road’ scenario with an Inn at a crossroads and is positioned within the 1820s Georgian North area. This would be open to visitors and non-visitors of the Museum. Non-visitors, which are anticipated to be ‘occasional’ as outlined in the Design and Access Statement, would access the Inn via the overflow car park and walking to the Inn via a new pedestrian access path. This would be lit with street lighting indicative of the period.

75.This aspect of the proposal is unusual in that it will remain open to visitors at times when the rest of the Museum is closed, and may therefore be used by customers who are not visiting the Museum. The Coaching Inn element of the proposal has to be examined as part of the overall package of development and the Coaching Inn is effectively part of a wider tourist attraction and must be considered against the three strands of sustainable development, the social, economic and environmental impacts.

76.Socially, the Coaching Inn works as a visitor attraction within an established Museum setup, and an insight into the history of North East England. As a pub / restaurant / hotel, it can also act as a community facility for the locality. Economically, the attraction will generate revenue for the Museum, a prized asset within County Durham, with associated direct and indirect job creation. Environmentally, the proposal has been carefully designed to avoid any adverse environmental impacts whilst the introduction of a biomass boiler to this part of the site and to heat the building is highly sustainable.

77.A wider concern has been raised from a member of the public with respect to noise generated from existing events at the site, and the Coaching Inn may have the potential to exacerbate this further. As mentioned in the residential amenity section, it is not for this application to resolve existing issues however it is appreciated the Coaching Inn is likely to generate additional noise, particularly outside standard Museum opening hours with visitors and vehicles entering and exiting the site. The Museum has indicated that although the operating hours of the Coaching Inn as a food and drink facility are currently unknown, it is not anticipated there would be a considerable change from the existing operational model of the Museum.

78.Were the Museum to host additional or private events at the Coaching Inn however, there is the potential for late night noise to be generated and exacerbate an ongoing problem within the vicinity of the site for local residents, given the number of attractions and late night facilities within a predominantly rural setting. It is therefore considered appropriate to restrict external events with PA systems taking place at the Coaching Inn before 6am and after 11pm Monday to Sunday.

79.Given the above, it is considered the Coaching Inn, when viewed as part of the wider package, is considered acceptable subject to the above condition. The proposal would support sustainable rural tourism and a leisure development, whilst respecting the character of the countryside and the amenity of surrounding properties, and is therefore in broad accordance with Part 3 of the NPPF and promoting the development of the Museum in accordance with Policy TM1 of the Chester-le-Street District Local Plan.

CONCLUSION

The Council seeks to support Beamish Museum in its efforts through Policy TM1 of the Chester-le-Street District Local Plan, which outlines how the Museum must evolve with the provision of new tourist and recreational facilities. The proposals are predicted to increase the visitor numbers to the Museum by 100,000 per year, whilst the social advantages of such proposal would increase the standing of the Museum both locally and nationally as a leading world-class visitor attraction, with direct and indirect economic benefits to the surrounding area and the County more widely. The proposals would expand the Museum substantially whilst respecting the nature and heritage assets of the site, as well as the Area of High Landscape Value. It is considered the planning issues have been satisfactorily resolved or can be resolved by way of condition. Therefore, the application is recommended for approval. RECOMMENDATION

That the application be APPROVED subject to the following conditions;

1. The development hereby approved must be begun no later than the expiration of three years from the date of this permission.

Reason: Required to be imposed pursuant to Section 91 of the Town and Country Planning Act 1990 as amended by the Planning and Compulsory Purchase Act 2004.

2. The development hereby approved shall be carried out in accordance with the following approved plans:

Location Plan Site Layout Proposed Development RB(D)000A 16 March 2016 Location Plan Site Layout Proposed Development 1/2 RB(D)001A 16 March 2016 Location Plan Site Layout Proposed Development 2/2 RB(D)002A 16 March 2016 Site Plan 1820s Area RB(D)006A 16 March 2016 Site Plan 1950 Town Area RB(D)007 14 January 2016 Site Plan 1950 Area Spainsfield Farm and Bus Depot RB(D)008 14 January 2016 Site Plan 1950 Town Area 1/4 RB(D)009 14 January 2016 Site Plan 1950 Town Area 2/4 RB(D)010 14 January 2016 Site Plan 1950 Town Area 3/4 RB(D)011 14 January 2016 Site Plan 1950 Town Area 4/4 RB(D)012 14 January 2016 Outline Landscape Strategy 1/4 RB(D)013A 16 March 2016 Outline Landscape Strategy 2/4 RB(D)014 14 January 2016 Outline Landscape Strategy 3/4 RB(D)015 14 January 2016 Outline Landscape Strategy 4/4 RB(D)016A 16 March 2016 Proposed Punched Tin Bollard Mounted Lantern RB(D)017 16 March 2016 Coaching Inn Site Layout Ground Floor RB(D)1.1-200 14 January 2016 Coaching Inn Site Layout First Floor RB(D)1.1-201 14 January 2016 Coaching Inn Site Layout Roof Plan RB(D)1.1-202 14 January 2016 Coaching Inn Ground Floor Plan Area 1 RB(D)1.1-203 14 January 2016 Coaching Inn Ground Floor Plan Area 2 RB(D)1.1-204 14 January 2016 Coaching Inn Ground Floor Plan Area 3 RB(D)1.1-205 14 January 2016 Coaching Inn Ground Floor Plan Area 4 RB(D)1.1-206 14 January 2016 Coaching Inn Ground Floor Plan Area 5 RB(D)1.1-207 14 January 2016 Coaching Inn First Floor Plan Area 1 RB(D)1.1-208 14 January 2016 Coaching Inn First Floor Plan Area 2 RB(D)1.1-209 14 January 2016 Coaching Inn First Floor Plan Area 3 RB(D)1.1-210 14 January 2016 Coaching Inn First Floor Plan Area 4 RB(D)1.1-211 14 January 2016 Coaching Inn First Floor Plan Area 5 RB(D)1.1-212 14 January 2016 Coaching Inn Roof Plan Area 1 RB(D)1.1-213 14 January 2016 Coaching Inn Roof Plan Area 2 RB(D)1.1-214 14 January 2016 Coaching Inn Roof Plan Area 3 RB(D)1.1-215 14 January 2016 Coaching Inn Roof Plan Area 4 RB(D)1.1-216 14 January 2016 Coaching Inn Roof Plan Area 5 RB(D)1.1-217 14 January 2016 Coaching Inn Group Elevations and Sections 1 RB(D)1.1-218 14 January 2016 Coaching Inn Group Elevations and Sections 2 RB(D)1.1-219 14 January 2016 Coaching Inn Group Elevations and Sections 3 RB(D)1.1-220 14 January 2016 Coaching Inn Group Elevations and Sections 4 RB(D)1.1-221 14 January 2016 Coaching Inn Group Elevations and Sections 5 RB(D)1.1-222 14 January 2016 Coaching Inn Group Elevations and Sections 6 RB(D)1.1-223 14 January 2016 Coaching Inn Sections Through 1 RB(D)1.1-224 14 January 2016 Coaching Inn Sections Through 2 RB(D)1.1-225 14 January 2016 Coaching Inn Barn Plans Sections and Elevations RB(D)1.1-226 14 January 2016 Coaching Inn Coach House Plans Sections and Elevations RB(D)1.1-227 14 January 2016 Coaching Inn Smoke House Plans Sections and Elevations RB(D)1.1-228 14 January 2016 Coaching Inn Brew House Bake House Wash House Plans Sections and Elevations RB(D)1.1-229 14 January 2016 Coaching Inn Farm Labourer’s Cottage (Guest Accommodation) Plans Sections and Elevations RB(D)1.1-230 14 January 2016 Coaching Inn Farm Labourer’s Cottage (Guest Accommodation) Plans Sections and Elevations 1/2 RB(D)1.1-231 14 January 2016 Coaching Inn Farm Labourer’s Cottage (Guest Accommodation) Plans Sections and Elevations 2/2 RB(D)1.1-232 14 January 2016 Coaching Inn Granary (Guest Accommodation) Elevations 1/2 RB(D)1.1-233 14 January 2016 Coaching Inn Granary (Guest Accommodation) Elevations 2/2 RB(D)1.1-234 14 January 2016 Smithy Plan and Sections RB(D)1.2-200 14 January 2016 Smithy Elevations RB(D)1.2-201 14 January 2016 Candle Makers Plan Section and Elevations 1.3-200 14 January 2016 Candle Makers Plan Section and Elevations 1.3-201 14 January 2016 Joe The Quilters Cottage Plans RB(D)1.4-200 14 January 2016 Joe The Quilters Cottage Elevations RB(D)1.4-201 14 January 2016 Joe The Quilters Cottage Sections RB(D)1.4-202 14 January 2016 Pottery Ground Floor Plan RB(D)1.5-200 14 January 2016 Pottery Roof Plan RB(D)1.5-201 14 January 2016 Pottery Elevations RB(D)1.5-202 14 January 2016 Pottery Elevations and Section RB(D)1.5-203 14 January 2016 Lime Kiln Plan Section and Elevations RB(D)1.6-200 14 January 2016 Buck’s Hill Post Mill Plans of Roundhouse and Buck RB(D)1.7-200 14 January 2016 Buck’s Hill Post Mill Plans of Buck RB(D)1.7-201 14 January 2016 Buck’s Hill Post Mill Plans of Buck RB(D)1.7-202 14 January 2016 Buck’s Hill Post Mill Elevations RB(D)1.7-203 14 January 2016 Buck’s Hill Post Mill Elevations RB(D)1.7-204 14 January 2016 Buck’s Hill Post Mill Sections RB(D)1.7-205 14 January 2016 Buck’s Hill Post Mill Sections RB(D)1.7-206 14 January 2016 1820’s Biomass Building Ground Floor Plan RB(D)1.8-200 14 January 2016 1820’s Biomass Building Upper Level Plan RB(D)1.8-201 14 January 2016 1820’s Biomass Building Roof Plan RB(D)1.8-202 14 January 2016 1820’s Biomass Building Elevations RB(D)1.8-203 14 January 2016 1820’s Biomass Building Elevations RB(D)1.8-204 14 January 2016 1820’s Biomass Building Sections RB(D)1.8-205 14 January 2016 Spainsfield Farm Ground Floor Plan RB(D)2.1-200 14 January 2016 Spainsfield Farm First Floor Plan RB(D)2.1-201 14 January 2016 Spainsfield Farm Roof Plan RB(D)2.1-202 14 January 2016 Spainsfield Farm Elevations RB(D)2.1-203 14 January 2016 Spainsfield Farm Elevations and Sections RB(D)2.1-204 14 January 2016 Spainsfield Farm Sections RB(D)2.1-205 14 January 2016 Grand Electric Cinema Ground Floor Plan (Stalls) RB(D)2.2-200 14 January 2016 Grand Electric Cinema First Floor Plan (Gallery) RB(D)2.2-201 14 January 2016 Grand Electric Cinema Roof Plan RB(D)2.2-202 14 January 2016 Grand Electric Cinema Ancillary Plans RB(D)2.2-203 14 January 2016 Grand Electric Cinema Elevations RB(D)2.2-204 14 January 2016 Grand Electric Cinema Elevations RB(D)2.2-205 14 January 2016 Grand Electric Cinema Cross Sections RB(D)2.2-206 14 January 2016 Grand Electric Cinema Long Section RB(D)2.2-207 14 January 2016 Front Street Terrace Ground Floor Plan RB(D)2.3-2.6-200 14 January 2016 Front Street Terrace First Floor Plan RB(D)2.3-2.6-201 14 January 2016 Front Street Terrace Roof Plan RB(D)2.3-2.6-202 14 January 2016 Front Street Terrace Elevations RB(D)2.3-2.6-203 14 January 2016 Front Street Terrace Elevations RB(D)2.3-2.6-204 14 January 2016 Front Street Terrace Sections RB(D)2.3-2.6-205 14 January 2016 Front Street Terrace Sections RB(D)2.3-2.6-206 14 January 2016 Community Centre Ground Floor Plan RB(D)2.7-200 14 January 2016 Community Centre Roof Plan RB(D)2.7-201 14 January 2016 Community Centre Elevations RB(D)2.7-202 14 January 2016 Community Centre Elevations RB(D)2.7-203 14 January 2016 Community Centre Sections RB(D)2.7-204 14 January 2016 Aged Miner’s Homes Ground Floor and Roof Plan RB(D)2.8-200 14 January 2016 Aged Miner’s Homes Elevations RB(D)2.8-201 14 January 2016 Aged Miner’s Homes Elevations and Sections RB(D)2.8-202 14 January 2016 Police Houses Ground Floor Plan RB(D)2.9-200 14 January 2016 Police Houses First Floor Plan and Roof Plan RB(D)2.9-201 14 January 2016 Police Houses Elevations RB(D)2.9-202 14 January 2016 Police Houses Elevations RB(D)2.9-203 14 January 2016 Police Houses Sections RB(D)2.9-204 14 January 2016 Westoe Netty Plan Section and Elevations RB(D)2.10-210 14 January 2016 Nominate Your Home Ground Floor Plan RB(D)2.11-200 14 January 2016 Nominate Your Home First Floor Plan and Roof Plan RB(D)2.11-201 14 January 2016 Nominate Your Home Elevations RB(D)2.11-202 14 January 2016 Nominate Your Home Sections RB(D)2.11-203 14 January 2016 Bowling Pavilion RB(D)2.12-200 14 January 2016 Airey Houses Ground Floor Site Plan RB(D)2.13-200 14 January 2016 Airey Houses Ground Floor Plan RB(D)2.13-201 14 January 2016 Airey Houses First Floor Plan and Roof Plan RB(D)2.13-202 14 January 2016 Darras Drive Shops Sections RB(D)2.14-203 14 January 2016 Blackhall Rocks Shop Plans Sections and Elevations RB(D)2.15-200 14 January 2016 Garage Lock-Ups Plans Sections and Elevations RB(D)2.16-200 14 January 2016 Bus Depot and Maintenance Workshop Ground Floor Plan and Roof Plan RB(D)2.20-200 14 January 2016 Bus Depot and Maintenance Workshop Elevations and Sections RB(D)2.20-201 14 January 2016 Bus Shelter Plans Sections and Elevations RB(D)2.21-200 14 January 2016 1950’s Biomass Building Ground Floor Plan RB(D)2.22-200 14 January 2016 1950’s Biomass Building Upper Level Plan RB(D)2.22-201 14 January 2016 1950’s Biomass Building Roof Plan RB(D)2.22-202 14 January 2016 1950’s Biomass Building Elevations RB(D)2.22-203 14 January 2016 1950’s Biomass Building Elevations RB(D)2.22-204 14 January 2016 External Works Car Parking and Path Lighting PB-0002-16-E-2050 16 March 2016 External Works Car Parking and Path Lighting PB-0002-16-E-2051 16 March 2016 External Works Car Parking and Path Lighting PB-0002-16-E-2052 16 March 2016

Reason: To ensure the development is carried out in accordance with the approved documents.

3. A Traffic Management Plan shall be submitted to, and approved in writing by, the Local Planning Authority. The plan shall then be carried out in accordance with the approved details. Reason: To ensure the development does not cause an adverse effect in terms of highways.

4. Prior to the installation of the sewerage treatment works, full details shall be provided regarding the two sewage treatment plants, including their design, and current and proposed flows across the site, for approval. The works shall then be carried out in accordance with the approved details.

Reason: To ensure the development is carried out in accordance with drainage matters at the site.

5. Prior to the installation of the biomass boilers, full details shall be provided regarding the two biomass boilers, including their effects in terms of air quality pollutants, for approval. The works shall then be carried out in accordance with the approved details.

Reason: To ensure the development does not cause an adverse effect in terms of amenity.

6. The proposed biodiversity mitigation measures, including the native species hay meadow proposal, as set out within Section B of the Environmental Statement (received 17 March 2016), shall be implemented and monitored in accordance with the details in the statement, in the first planting season following the commencement of works.

Reason: To ensure the development accords with nature conservation aims and Policy NE8 of the Chester-le-Street District Local Plan.

7. The proposed flooding mitigation measures, as set out within Part 7 of the Flood Risk Assessment and Drainage Strategy (received 14 January 2016), shall be implemented in accordance with the details in the strategy.

Reason: To ensure the development is carried out in accordance with flooding risks at the site.

8. External events with PA systems shall not take place at the Coaching Inn before 6am and after 11pm Monday to Sunday.

Reason: To ensure the amenity of neighbouring residents is not adversely affected as a result of the development in accordance with Policy TM1.

STATEMENT OF PROACTIVE ENGAGEMENT

The Local Planning Authority in arriving at its decision to approve the application has, without prejudice to a fair and objective assessment of the proposals, issues raised and representations received, sought to work with the applicant in a positive and proactive manner with the objective of delivering high quality sustainable development to improve the economic, social and environmental conditions of the area in accordance with the NPPF. (Statement in accordance with Article 35(2) of the Town and Country Planning (Development Management Procedure) (England) Order 2015.)

BACKGROUND PAPERS

 Submitted application forms, plans supporting documents and subsequent information provided by the applicant.  The National Planning Policy Framework (2012)  The National Planning Practice Guidance  Chester-le-Street District Local Plan (saved policies 2007)  Managing Significance in Decision-Taking in the Historic Environment (Historic England Guidance Note)  Planning (Listed Buildings and Conservation Areas) Act 1990  Town and Country Planning (Development Management Procedure) (England) Order 2015  Statutory, internal and public consultation responses SITE

Sites Properties

Beamish Museum, Beamish, Stanley, DH9 0RG

Planning Services Application Number DM/16/00142/FPA This map is based upon Ordnance Survey material with the Comments permission of Ordnance Survey on behalf of Her majesty’s Stationary Office © Crown copyright. Unauthorised reproduction infringes Crown copyright and may lead to prosecution or civil proceeding. Durham County Council Licence No. 100022202 2005 Date April 2016 Scale 1:5000