Application No. Date Determining Authority P/11/0031 7th February 2011 MTCBC
Proposed Development Location Name & Address of Applicant/Agent
Change of use of church into 20 Former St Johns Church Max Developments No. apartments including internal Upper Union Street c/o Page & Dean alterations and repairs, retention Dowlais Consulting of eastern bay, addition of Merthyr Tydfil Old St Peters rooflights, windows and 2 No. CF48 3LE Peterstone new roof ventilators Wentloog Cardiff
APPLICATION SITE
The application relates to the Grade II Listed St. John’s Church, Dowlais. The building is Listed as a historic parish church, demonstrating strong linkages with Dowlais Ironworks and the Guest Family, and a high group value with Dowlais Stables and Dowlais Public Library. The building is set on the corner of Upper Union Street and Church Row. It is located within the Dowlais Conservation Area.
St. John’s Church was built in 1873 in a Victorian Gothic style and its western porch is the burial place of Sir Josiah John Guest, who owned Dowlais Iron Works up until his death in 1852. His tomb was moved to the Church following its construction, and is located within its northern vestry.
The building is constructed of rock-faced rubble stone, containing ashlar dressings, largely of Bath stone. A large aisle of blue pennant stone makes up the majority of the building with a number of windows and porches and a Gothic style turret to the south-west. The building is signified by its steeply pitched roof, viewable from a distance.
The interior of the building, though largely deteriorated, contains an arcade of rounded columns with large pointed arches. A number of features of interest are still located within the building including a memorial plaque to Sir John Josiah Guest as well as plaques dedicated to other miner workers. A large stained glass miner’s window makes up the building’s historic interest.
Access to the building’s curtilage may be achieved from a point at the junction of Church Row and Upper Union Street. A snecked masonry wall encompasses the curtilage of the building to the south, whilst a white painted modern steel parkland fence fronts the curtilage at Church Row.
PROPOSED DEVELOPMENT
Full planning consent is sought for a number of works including in the change of use of the building to 20 apartments. The following works will be considered:
External Alterations
The external works will largely consist of the formation of a number of new apertures. A total of 36 new ‘Lumen’ rooflights will be added to the building, 22 of which will be added to the south elevation and 14 will be added to the north. Six new quatrefoil windows will be added to the vestry walls of the building, one of which will be added to the west elevation and five to the north elevation. These are to be of approximately 1480mm in height and width.
A number of current apertures will be extended and elongated by 1820mm in matching Bath Stone to produce light for internal rooms, including two arched windows on the north elevation and one on the south elevation. Two small ventilation towers will be added to the roof pitch, consisting of an oak framed structure with slate louvers and copper finials. The works will also facilitate the repair of the roof using black Welsh natural slate tiles, limestone repairs to external walls and the repairs of window glazing and frames.
Curtilage Works
A parking area will be incorporated around the eastern grounds of the building allowing for 25 parking spaces. The access driveways within the building’s curtilage will be surfaced in compact gravel, along with some parking spaces. Most car parking spaces will be surfaced in grasscrete. Grass will remain around the immediate building curtilage whilst a flagstone walkway will be constructed to the south of the site. An oak close boarded refuse compound will be located within the parking area and a number of specimen trees will be retained. The parkland railings along the eastern boundary of the site will be replaced to match existing.
Internal Alterations
Four floors will be added to the building by means of an internal mezzanine structure. This will be spaced from the original internal faces of the building. The structure will be partitioned appropriately to provide facilities for 20 separate apartments (14 flats and 6 maisonettes) each containing one bedroom, bathroom and sitting room. An 8 person lift is proposed within the floor structure, together with its associated plant room and four storage rooms.
A void is proposed to be kept in the southern end of the building, exposing the entire window to the southern elevation and will be used as a publicly accessible area displaying some exemplar remaining pews, a number of relocated commemorative plaques, the Lady Chapel screen and the font. A memorial tomb within the northern vestry of the building is also proposed to be kept, displaying the John Josiah Guest memorial mural and pulpit. The original chancel steps will run alongside this mural.
PLANNING HISTORY
The relevant planning history in determining this application is detailed below:
P/98/0482/LB The Church of St John The Baptist To remove stained glass windows for safekeeping and eventual incorporation into All Saints Church, Dowlais LBC approved subject to conditions, 1 st April 1999
P/99/0403/LB Former St John The Baptist Church Removal of items and features, extension of time period for implementation of previous consent P/98/0482 LBC approved subject to conditions, 21 st February 2000
P/09/0303/LB Former St John’s Church Internal alterations and repairs, retention of eastern bay, addition of rooflights, windows and addition of 2 No. new roof ventilators LBC approved subject to conditions, 15 th June 2010
CONSULTATION
The following statutory consultees were consulted on the above planning application. Their comments are listed below:
Internal Consultees
Assistant Director (Technical No objection, however recommends a Services) number of advisory notes
Town Planning Division’s Group No objection Leader (Planning Policy and Implementation)
Public Protection Manager No objection, subject to conditions
External Consultees
Welsh Water No objection, however recommends a number of advisory notes
South Wales Fire and Rescue No response
Wales and West Utilities No response
Western Power Distribution Should development be approved, safe working procedures should be defined and practiced.
PUBLICITY AND THIRD PARTY RESPONSES
In accordance with the Town and Country Planning (General Permitted Development) Order 1995, the application was advertised by means of sending individual consultation letters to the occupiers of 1, 2 and 14 Bodalaw on the 17 th February 2011. Two site notices were also displayed within the vicinity of the site on the 24 th February 2011. A press notice was also displayed in the local newspaper on 24 th February 2011.
No objections were received in response to this publicity.
POLICY CONTEXT
The below listed policies are relevant in the determination of this application:
National Planning Policy
Planning Policy Wales (Edition 4: 2011)
This is the Welsh Assembly Government’s principal planning policy.
Section 6.5 recognises the importance of protecting the historic environment.
Paragraph 6.5.9 states that:
“Where a development proposal affects a Listed Building or its setting, the primary material consideration is the statutory requirement to have special regard to the desirability of preserving the building, or its setting, or any features of special architectural interest which it possesses”
Paragraph 6.5.17 also recognises the importance of protecting the importance of protecting the historic environment and states that:
“Should proposed development conflict with the objective of preserving or enhancing the character or appearance of a conservation area or its setting, there will be a strong presumption against the grant of planning permission”.
This development will directly affect the fabric of a Listed Building as well as the setting of a number of Listed Buildings. The effect upon the Dowlais Conservation Area is also a material consideration in determining this application.
Para 9.3.3 warns that the cumulative effects of development, including conversion should not be allowed to damage an area’s character and amenity.
Welsh Office Circular 61/96 “Planning the Historic Environment: Listed Buildings and Conservation Areas”
Part 1 Para 11 reiterates Sections 16 and 66 of the Town and Country Planning Act 1990 in requiring Local Planning Authorities, when considering applications for works affecting listed buildings to have regard to their character and setting.
Part 1 Para 12 addresses the conversion of historic buildings. This states that new uses may be the key to the preservation of a building and reaffirms that planning matters should be exercised sympathetically where it would enable a historic building to be given a new lease of life.
Part 2 Para 30 acknowledges that Conservation Areas include buildings which make little or no contribution to its character and appearance; therefore it is important that changes to these buildings should be designed to respect the context of the Conservation Area. Development Plan Policies
Mid-Glamorgan (Merthyr Tydfil County Borough Council) Replacement Structure Plan (1991-2006)
Policy EV10 reiterates national policy in stating that:
“Development on or within major sites or features of the built and historic environment will be considered as follows:-
• Development which is likely to destroy or damage the existing character of archaeological sites or ancient monuments of national importance and single or groups of buildings designated as being of special architectural or historic interest (including listed buildings) – will not be permitted. • Development which fails to preserve, maintain or enhance where possible, the existing character, of other single or groups of buildings, conservation areas or other features recognised as being of local architectural or historic interest in Local Plans (such as other identified buildings, historic routes and historic parks, gardens and landscapes), will not normally be permitted. • Development which is likely to destroy or damage the existing character of other archaeological sites or ancient monuments – will not normally be permitted”
Therefore, development of features of the built and historic environment will not be permitted where it is likely to damage the existing character of structures designated as being of special architectural or historic interest. Therefore the proposals must have regard to the character and setting of the Conservation Area and Listed Buildings.
Additionally, Policy H3 states that residential development on sites within settlement areas will only be permitted where the development relates to the restoration and conversion of suitable buildings, providing the proposal is consistent with the scale and nature of the existing building and is compatible with transportation considerations, the conservation of the environment and the maintenance of local amenity.
Merthyr Tydfil Borough Local Plan (1991-2006)
The development site is located within a Conservation Area. Such areas are designated for containing buildings and features of architectural, historical and environmental quality which combine to produce a notably special character worth preserving. Therefore, the principles applied in Policy BH2 of the Local Plan are relevant:
“Development proposals should preserve or enhance Conservation Areas and will be permitted subject to consideration against the following criteria:
• The proposal does not have an unacceptable impact on the character, appearance and amenity of the conservation area. • The siting of the development is acceptable in relation to the design, scale, materials and setting of the proposal. • The proposal does not conflict with transportation considerations including car parking, traffic generation, access and accessibility to public transport.”
All proposals should have regard to the impact on the Historic Area while reiterating National Policy in stating that impact on the fabric which makes the Conservation Area unique should be kept to a minimum.
Policy BH4 addresses Listed Buildings and Structures of special architectural or Historical interest, and states:
“Development proposals affecting Listed Buildings and structures will be permitted where it can be shown that the proposals will not destroy or otherwise adversely affect the character, appearance and setting of the buildings and structures, or any features of architectural interest which the buildings or structures posses”
Policy H7 of the Local Plan states that the change of use of suitable buildings to residential use will be permitted where proposals do not have an unacceptable impact on the character and amenity of the neighbourhood and that proposals do not conflict with transport/access considerations. The design, scale, materials and setting of proposals must also be acceptable.
Merthyr Tydfil Local Development Plan (2006-2021) (as amended)
Though not yet formally adopted the Local Development Plan is a material planning consideration that must be taken into account.
Townscape and Built Heritage is addressed in Policy BW6. This states:
“The Council will protect and support the enhancement of the unique built heritage of the County Borough. Development proposals will only be permitted where it can be demonstrated they would preserve or enhance the architectural quality, character and setting of any of the following:
• Listed Buildings; • Scheduled Ancient Monuments; • Conservation Areas; • Registered Historic Parks and Gardens of Special Historic Interest; • Townscape character, and the local distinctiveness of settlements; • Other historic, archaeological and cultural features of acknowledged importance”.
Regard should therefore be given to the character and setting of the Conservation Area as well as Listed Buildings.
Policy TB3 further states that development proposals for the change of use of buildings within settlement boundaries will be permitted subject to satisfying a number of criteria, including the quality of proposals, impact on the amenity of the neighbourhood, and the siting, design and materials of the proposal.
PLANNING CONSIDERATIONS
Effect on External Character
Development Plan Policies relevant to the determination of the application advise that the proposed scheme must preserve, maintain or enhance the character of the building. It is considered that the proposed external changes preserve the character of this listed building.
The Design and Access Statement indicates that the stonework of the building will be re-pointed in lime mortar and that the roof will be repaired using black natural slate tiles, matching those that are existing. Glazing repairs will be done on a like for like basis. These minor alterations are considered to conserve and enhance the character of the Listed Building.
The proposals will facilitate the creation of a number of apertures, including roof lights, quatrefoil windows, elongation of existing windows and the erection of two ventilation towers on the roof ridge. These alterations are considered to be acceptable to the building’s character.
The new quatrefoil windows will incorporate a design in character with a building of this type and uses materials which are prevalent within the building’s palette – containing Bath Stone Ashlar Dressings set into yellow brick. Furthermore, these mirror designs for the ground floor vents on both the north and south elevations of the building. The elongation of existing windows will use a design and materials also in keeping with the remainder of the building. The proposed rooflights, although not considered to be a character feature will remain flush with the roof’s pitch and will not protrude outwards. The ventilation towers will incorporate materials and a design similar to the building’s turret.
The proposals will also allow for the reinstatement of the ‘Miner’s Window’ to its original condition and the building’s main eastern entrance. This will ensure that the general appearance of the building is improved.
Effect on Internal Character
It is considered that the internal alterations to provide the proposed living accommodation will have a significant effect on the internal layout and character of the building. The works to provide this will require the installation of an internal stair case, a lift, a mezzanine floor structure and the creation of a number of dividing walls.
The current building consists of the single ground floor. It is proposed to add four additional floors to this by means of a mezzanine construction, which will remain independent from the original structure. The construction will be spaced approximately 50mm from the original internal facings of the building allowing for minimal disturbance to the building’s fabric. This is considered to be the most acceptable way of providing additional floorspace and may be reversible, if considered necessary at some point.
The proposed layout allows for maximum opportunity to retain a number of original features, decorations, plaques and historic spaces which the building possesses. A void is to be kept in the southern end of the building’s interior allowing for a publicly accessible area where examples of the building’s pews, plaques and history may be displayed. The retention of the void allows for a whole cross section of the building’s southern elevation to be displayed, allowing the user to appreciate its scale and to view the largest arched window in its entirety. The retention of this void will certainly retain a key aspect of the building’s character.
An area within the northern vestry of the building will also be preserved, displaying the John Josiah Guest memorial mural and pulpit. The original chancel steps will run alongside this mural. This is considered to be the most historically important aspect of the building and its preservation will have minimal impact on the character of the Listed Building.
An 8 person lift is also proposed within the floor structure, together with its associated plant room and four storage rooms. This addition is not considered to alter the fabric of the building further.
The acceptability of these internal and external alterations has been considered acceptable by the granting of Listed Building Consent P/09/0303 in June 2010.
Effect on Setting
The main impact upon the setting of this Listed Building will be by means of the proposed parking area. This will be located in the eastern grounds of the building, providing 25 parking spaces, 5 of which shall be used for visitors. A refuse compound is also to be incorporated to the east of the building, clad in a mixture of wooden boards and stone masonry. A number of specimen trees are to be retained within the curtilage of the building.
The submitted drawings indicate that the proposed car parking area will be surfaced in a compacted gravel surface with elements of grasscrete. A flagstone walkway is proposed to the south of the building. The use of compacted gravel is considered acceptable in principle, and given its solid nature, will not spill onto the public highway. Furthermore, the addition of grasscrete will retain an element of greenery to the building’s setting. The eastern curtilage of the building is in a state of disrepair, surfaced in an ad hoc mixture of tarmacadam and grass. A more formalised surface incorporating quality materials is considered to be acceptable. However, further clarification is required on the nature and colouring of the compacted gravel and flagstones. An appropriately worded condition requiring samples to be submitted shall be added to any permission to clarify this.
Although the principle of providing parking provision within the grounds of a Church is not normally deemed to be conducive to the setting of a Listed Building, it is considered that such facilities are required in order for a feasible use to be attained for the application building. The proposed materials and detailing of the parking area and refuse compound are considered to be sympathetic to the historically important building and the materials used are not uncommon for developments within an ecclesiastical setting. Furthermore, the area to the east of the Church has remained unkempt and its use as a sympathetically laid out parking area will ensure some degree of maintenance.
The works will also contain the restoration of boundaries to the east of St John’s Church. This is to involve the installation of new parkland railings to match existing. These features appear to be a mid 20 th century addition to the Church, and are in a poor state of repair. Their replacement with similar style railings are considered acceptable.
Impact on Conservation Area
The proposals should have a minor impact on the exterior of the Church building, with the exception of a number of new apertures.
In reaching this view, regard has been had to the currently unoccupied status of the building and the use patterns of the neighbouring Dowlais Stables Building, which retains a similar use to that which is proposed for the application site.
The proposals will restore an unoccupied building which has been subject to rapid determination, continuous vandalism and use by unauthorised persons. In this respect, the proposals, once implemented, should alleviate such problems and improve the vitality of the Conservation Area.
Change of Use
The proposals lie within the settlement of Dowlais, as defined by the Local Plan and Deposit Local Development Plan. In order for residential development to be supported in such locations, they must meet criteria set out in the relevant Development Plan Policies.
The proposals provide adequate parking spaces and are unlikely to unduly impinge upon the living conditions of local residents. The proposals are acceptable in visual or design terms given that an existing building is to be utilised for the development. Additionally, the character or quality of the Conservation Area will not be negatively impacted upon.
Highways Considerations
The proposals will result in the creation of 25 parking spaces within the curtilage of the building. This will create additional traffic movements within the vicinity of the site. Consultation with the Council’s Assistant Director of Technical Services confirmed that the proposals will not be to the detriment of highway safety. Furthermore, the proposed 25 parking spaces are considered to be sufficient to meet the parking demands of the proposed residential units. The arrangements for refuse collection are also considered acceptable.
In the absence of any objection, the proposals are therefore considered to be acceptable in highway terms.
Temporary Works
The application drawings illustrate the siting of a temporary works caravan within the site. The use of such a temporary structure is ‘permitted development’ during construction works. For the avoidance of doubt, it is not considered as part of this application as it has not been included in the ‘description of development’.
CONCLUSION
St. John’s Church, Dowlais is currently unoccupied, and as a result, its condition is deteriorating. It is considered that bringing the building back into beneficial use will not only help to maintain the building’s character, but will restore a key and usable element to the Dowlais Conservation Area.
The proposals will fix and retain much of the external character of the building while making landscape improvements to its immediate setting. The proposed internal alterations were considered acceptable by the granting of Listed Building Consent P/09/0303.
The proposals accord with both national and local planning policy.
In the absence of any objection to the proposals, the following recommendation is made:
RECOMMENDATION: BE APPROVED subject to the following CONDITIONS:
1. All apetures and ventilation features shall be constructed in accordance with the submitted detail indicated in Drawing Nos: 012/08/047, 012/08/048, 012/08/049, 012/08/050, 012/08/051 and 002 Rev 7.
Reason - To ensure compliance with the approved plans and clearly define the scope of this permission.
2. BEFORE construction works commence details of all boundary treatments shall be submitted to and approved in writing by the Local Planning Authority. All works undertaken shall be implemented in full in accordance with such details prior to the beneficial occupation of any of the residential units hereby approved.
Reason - To ensure that all new enclosures are of a design sympathetic to the original character of the principal listed building.
3. BEFORE construction works commence details/samples of the proposed compacted gravel and grasscrete surfaces to the car parking area illustrated in the drawings hereby approved shall be submitted to and approved in writing by the Local Planning Authority. All works undertaken shall be completed in accordance with such approved details.
Reason - In the interest of visual amenity
4. BEFORE any of the residential units hereby approved are brought into beneficial use, the car parking area illustrated in the drawings hereby approved shall be laid out at a gradient not exceeding 1 in 8. These car parking spaces shall be made available for vehicular parking at all times thereafter.
Reason - To ensure the proposed residential units are served by sufficient parking facilities.
INFORMATIVES
1. The developer shall obtain all other necessary consents BEFORE works commence including BUILDING REGULATION approval.
2. The applicant/developer is advised to liaise with Merthyr Tydfil County Borough Council's Highways Division regarding any consents which are required in association with the provision of any vehicle cross-over of verge or footway
3. The developer is advised to contact Merthyr Tydfil County Borough Council's Highway Division regarding any retaining works or other works affecting the highway BEFORE construction works commence.
4. If a connection is required to the public sewerage system, the developer is advised to contact Dwr Cymru Welsh Water's Networks Development Consultants on 01443 331 155.