ST ANDREWS AND DOCKLAND

19/00573/LBC

Hull Maritime Museum, , , HU1 3DX

Listed Building Consent for:-, 1) Internal refurbishment involving the redesign of the 1970's exhibitions, to be replaced by a new exhibition interpretation, additional museum spaces, renewal of the historic architecture, improved education and visitor facilities, and access for all strategy., 2) Erection of a new extension within the courtyard of the museum following demolition of existing courtyard extension., 3) Repair works to external elevations and roof, and a new entrance ramp to provide access from the street into the building., Part of Hull 's Maritime City Project.

Purcell

SUMMARY

- Internal and external alterations and extensions to a Grade II* listed museum.

- No objections received.

- Recommended for conditional approval.

SITE

The application site is located at a focal point within the city centre, forming a key element in the north-eastern frontage to Queen Victoria Square, the western edge of Queens Gardens and Monument Bridge, and set within the Old Town Conservation Area.

The site is occupied by the Grade II* Iisted Hull Maritime Museum, formerly Dock Offices, built in 1868-71 of Ancaster stone on a Bramley Fall stone plinth, in the Venetian Revival style, with much nautical-themed decoration.

To the north-east and east the site overlooks the rose bowl to Queens Gardens and down the length of Alfred Gelder Street, whilst to the south-east and south across Carr Lane stands Beverley Gate and the mouth to Whitefriargate beyond, and the Grade II listed Monument Buildings, occupied by retail uses, respectively. To the north-west, across the pedestrianised and brief stretch of Cross Street faces Dock Office Chambers and the Grade II listed former Yorkshire Penny Bank. The view across Queen Victoria Square takes in, from north to south, Stonefield House, locally listed Queen’s House, the Grade II* City Hall, Grade II listed and Monument buildings, with views through to the similarly designated Princes Dock beyond.

PROPOSAL

Listed Building Consent for:-, 1) Internal refurbishment involving the redesign of the 1970's exhibitions, to be replaced by a new exhibition interpretation, additional museum spaces, renewal of the historic architecture, improved education and visitor facilities, and access for all strategy., 2) Erection of a new extension within the courtyard of the museum following

demolition of existing courtyard extension., 3) Repair works to external elevations and roof, and a new entrance ramp to provide access from the street into the building., Part of Hull Yorkshire's Maritime City Project.

PLANNING HISTORY

19/00572/FULL - 1) Erection of a new extension within the courtyard of the museum following demolition of existing courtyard extension.

2) Repair works to external elevations and roof, and a new entrance ramp to provide access from the street into the building.

Part of Hull Yorkshire's Maritime City Project.

Pending decision

REPRESENTATIONS Historic England (LBC) - No objection on heritage grounds. The submission is exemplary in approach and detail, providing a balanced approach to assessing impact on significance, with minimisation and mitigation of harm, and the delivery of considerable public benefits.

The insertion of a multi-height glazed atrium is a major intervention, but at present, the area detracts from the architectural interest of the building, and there is an opportunity to introduce a creative new use which enhances how the form of the building is appreciated and understood. Detailed matters raised by the Council’s Conservation Officer relating to an original door, balustrades and handrails, and design of ventilation and services should be addressed.

Conservation - The proposed internal adaptations are by and large thoughtful, sensitive, and intelligently managed, and will enable the building to become a cutting edge museum whilst respecting its special historic and architectural interest. Detailed drawings are required to depict the impact of converting existing windows in the domes to access doors for maintenance. Door DG08 should be retained in the absence of need or justification for its removal, and siting and design of ventilation/mechanical services should be secured by condition.

No objection to the courtyard extension. The existing extension is of no historic or architectural interest and prevents full appreciation and best use of the atrium. The replacement represents a good contemporary intervention, positively marrying old and new whilst allowing for better appreciation. A beneficial impact.

No objection to external works and roof alteration, or entrance ramp proposals, subject to agreement over details of balustrade and handrail design, as well as provision for relocation on site of the decorative iron grilles currently protecting the entrance column pedestals.

Hull Civic Society - Satisfied that care has been taken in these proposals to conserve the fabric of the building. Welcome the improved access for visitors who have impaired mobility, though important to ensure that all additions and alteration, including the new access ramp, are in keeping with the original building. Welcome the intention to enable visitors to enjoy the view from one of the cupolas, the use of the basement for exhibits and the proposed

increase in the number of exhibits that will be on display, and trust that real artefacts will be prioritised over information panels.

Conservation Area Advisory Cttee (CAAC) - No response received.

Access Officer - Supportive of all aspects of the scheme from an accessibility point of view. Improving access and facilities for disabled people is part of the design brief, using accurate legislation and providing a rationale for the works to improve access. As an existing building it is difficult to bring every aspect of design up to current standards, but this does not detract from the vast improvements made to all other aspects of the circulation on all floors, improved WC provision, and the provision of an inclusive entrance ramp at the main entrance. Advice provided on internal changes in relation to legibility of glass edges and plates.

The Ancient Monuments Society – No response received.

Council For British Archaeology – No response received.

The Georgian Group – No response received.

The Society For The Protection Of Ancient Buildings – No response received.

The Victorian Society – No response received.

One letter from an interested third party supporting the scheme but raising the following queries:

• Will there be a handrail to for the internal ramp at first floor and how will the handrail end be made safe for those with visual impairment? • If there is to be an upstand to prevent wheelchair users falling off that ramp, will it present a trip hazard? • What are the widths at the lower end of that ramp for guide dog users?

APPLICANT’S CASE

Design and Access Statement

The Hull Maritime Museum houses the city’s extensive and highly significant maritime history collections. The museum is a much-valued part of the townscape. The museum has not, however, been subject to a wholesale architectural and interpretation `refresh’ since it was established in the 1970s. The building now requires repair and the reversal of modern interventions to provide a suitable visitor experience, including access for all.

The project at the Hull Maritime Museum will aim to:

• Develop additional museum space opened to the public;

• Allow access to one of the building’s cupolas with superb rooftop views;

• Invest in renewing the building’s infrastructure to reveal original architecture; and

• Improve and extend educational and visitor facilities alongside updated displays that bring Hull’s whole maritime story up to date.

The museum has full National Museum Accreditation status with Arts Council England, and its collection has been recognised as being of national significance and awarded Designation status. Its British and European whaling collections are believed to be the most significant in the world. In addition, the extensive collection of carved and engraved ivory and bone, known as scrimshaw, is widely regarded as the most significant outside of the United States. However, improved storage and display will allow these collections to be better appreciated by a larger audience. As part of the project new items will be put in displays and conservation will be undertaken.

Circulation

Development of the proposed scheme to accommodate a wider range of visitors, to extend parts of the museum and to enhance the experience available to all visitors, new routes have been created, and existing routes emphasised through the museum.

A balance between built fabric and displays has been developed in close coordination with the wider client and consultancy teams, adapting to the constraints of re-using a building designed for a different purpose. This process has resulted in the creation of circular routes around key architectural features with regular and numerous facilities on each floor increasing the sizes and numbers of gallery spaces throughout by repurposing existing spaces and facilitating improved access to upper floors.

Entrance and circulation routes

Upon entering the Maritime Museum, via the existing primary entrance from Victoria Square, visitors will be greeted within the ground floor of the principal staircase. Whilst there is no prescribed route through the museum, visitors will be drawn through newly formed openings beneath, and either side of, the staircase into a new triple height atrium space within the former courtyard. This new space will display the former courtyard in a manner never before encountered within this building and will form the hub of the museum, an orientation and wayfinding node which draws the visitor’s eye up to the glazed roof above and walkways across at upper floor levels.

Existing and former openings into the Wharfage Office will encourage visitors into the whaling gallery, with previous fit-out removed and rationalised in order to restore the proportions of the original room. In close coordination with Exhibition Designers, HSD, new exhibition fit-out will respect the existing architecture and work in harmony with the existing fabric to produce a compelling and exciting gallery.

Currently a private space, the northern circular room at ground floor level will be opened up to the public as part of the museum route, before visitors follow an anticlockwise route through the western galleries, arriving back at the principal staircase from which the natural route flows up to first -floor level.

A processional route from the main entrance to the courtroom at first floor level was established within the original architectural vision for the building through the use of decorative tiled borders to the flooring within the entrance lobby, first floor landing and Ante

Room. This route remains accessible to visitors and will be a further encouraged, yet not enforced, route.

Interpretation offered through the exhibition design package will highlight such decoration and intricate detailing of the building which may otherwise be overlooked by the casual visitor.

At first floor level, existing galleries will be rejuvenated, the Courtroom brought back to its former grandeur and a key intervention introduced by way of a walkway through the reopened atrium offering views down to ground floor and up to the walkway above and glazed rooflight beyond, further encouraging visitors to flow up through the building to the previously inaccessible second floor.

Currently office and storage facilities, the repurposing of the second floor for visitor access will offer a major improvement to the existing museum, offering an entire additional floor to exhibition use. A temporary gallery space designed to GIS standards will be introduced at the floor, and visitors will again be able to access the atrium, this time at its highest point, with exciting views down to ground floor level. A room will also be dedicated to the history of the building and its subsequent adaptation and reuse, with access provided from this room up into one of the domes at roof level with spectacular views across the surrounding roofscape.

Vertical circulation

In conjunction with improved horizontal routes and visitor flow, a rationalisation of vertical circulation has been developed, providing enhanced access to all levels of the building and offering increased efficiency of use. The existing passenger lift is relocated into a new, larger lift shaft in close proximity to its current location. This allows for a series of new front-of- house stairs to connect the ground floor down to the basement and the first floor up to the second floor, offering the same prominence of circulation to the second floor, which contains exciting new galleries, and making the basement open and accessible.

It is proposed to remove the ‘third’ stair. This is a back of house stair added to an original lightwell, primarily to provide secondary means of escape from the second floor. We have provided another secondary means of escape at second floor, making this stair redundant. Removal of the ‘third’ stair, allows for re-use of this space for storage, risers, a secondary service lift/dumb waiter and an extended and more viable café space. Further exhibition space is also provided on the second floor as a result.

The omission of this stair, the moving of the lift and adjacent new front-of-house stairs create new usable publicly accessible floor area. The total exhibition space, education space and service space such as café and WCs are all increased in these proposals, with back-of- house staff and static storage areas transferred to Dock Office Chambers. The proportion of front-of-house space will increase by approximately 50% from the existing provision, substantially increasing the offer of the museum to the public.

Equality of access and egress

The current museum layout and the manner in which it is presented to a visitor is a result of numerous adaptations to the fabric and layout of spaces over the building’s life to fulfil the requirements of building’s various functions. This process has left the building in a somewhat convoluted state with ad-hoc interventions, requiring a holistic review and rejuvenation, of which equality of access is a key component.

At present, the primary entrance to the museum is via the original, stepped access, with level access provided, by request, via an alternative entrance into the former Wharfage Office. Due to the designed prominence of the Wharfage Office and Courtroom above, variations in floor level are present to accommodate the taller ceilings of the rooms, leading to steps being present down into the Wharfage Office, and steps up into the Courtroom. The current museum layout addresses these level changes via steep ramps, however, a more cohesive, designed approach is required.

A priority within the current design development is to rationalise the plans and remove unnecessary obstructions, achieving parallel objectives of re-opening spaces to their original proportions whilst offering improved circulation and access for all.

Internal circulation

Once within the building, internal circulation at each floor level is improved by the introduction of the atrium which provides the opportunity to overcome level changes within this area of new structure. The walkway at first floor level is ramped to offer level access into the Courtroom, removing the requirement for the current steep, temporary ramp. This new ramped arrangement also doubles as a key aspect of the visitor’s experience of the building, offering views into the atrium, thus allowing for such functional circulation to be engrained within the experience for all visitors.

At ground floor level, the floor level to the former Wharfage Office will be unified, providing full level access throughout the ground floor, removing the need for the current, steeply ramped exhibition fit out.

The new second floor visitor spaces will be level throughout, with access provided via the new lift which serves all floors of the building, or via the new staircase from first floor level. The atrium walkway at second floor is level, offering a casual circular route around this floor. An existing doorway into the atrium will be reordered into a full height window offering further opportunity for views into the atrium.

WC provision

WC facilities throughout will be improved, with facilities provided at each floor level including basement and second floor level where gallery spaces are to be introduced. Accessible WCs will be integrated as part of these provisions and a dedicated Changing Places facility will also be introduced.

This will offer the highest standard of WC and includes all equipment required for many people to safely and comfortably use, allowing for greater access for all to visit and enjoy the museum. Further WCs will be provided for staff use and for use solely by the Learning Suite to offer suitable provision for all user groups.

Entrance approach

A new stepped and ramped approach is proposed to the main entrance from Victoria Square, removing the requirement for requested level access into an alternative entrance, and offering the same experience for all visitors. New steps will be of a shallower design to the existing with appropriate handrails for those who require stepped access rather than ramped. This new ramp and steps are integrated as a designed solution to the building in a sympathetic, yet appropriately grand manner suitable for the status of the Maritime Museum building.

The ramp will utilise the existing sloping levels around the museum to minimise the required rise, and therefore gradient, of the ramp and will be unified with the stepped arrangement and existing building through a complimentary materials pallet including stonework to match the existing steps and wrought iron railings, reflecting the railings to the existing building’s perimeter. Subtle tactile studs and ‘corduroy’ strips will offer the required compliance.

Internal fit out

In close coordination with Exhibition Designers, HSD, internal fit-out will be reworked to offer improved equality of access. New displays and interpretation will respect the existing building and offer clear and spacious routes throughout the galleries. Breakout spaces will be incorporated into the exhibition design and visitor route allowing for frequent rest areas. Bespoke artist commissioned furniture such as seating areas, display panels and reception desk will compliment these equality of access measures not only via physical access, but also via provision of intellectual access for all. The unifying nature of the commissioned furniture will also harmonise the language of the fit-out.

Evacuation lift

A new lift is proposed in the location of the existing lift which will serve all floors. The new lift is larger and of an evacuation specification, with dual power supplies, central to a fully inclusive access and escape strategy. This will allow any visitor to self-escape, or easily be assisted out of the building by a member of staff in the event of an emergency. This eliminates the requirement for refuge areas or stair climbing devices which are not good practice where avoidable.

Emergency egress

Emergency egress proposals have been developed with Fire Engineers, FSEC, with safe egress for all considered throughout. Fire sterile escape routes have been designed in where possible, separate from gallery spaces, and the provision of multiple escape routes has been improved with the introduction of a new staircase between first and second floor levels. Fire separation areas have been reviewed and rationalised, with links across the atrium offering further directions to points of egress.

Vertical escape routes will be complimented by the provision of the evacuation lift serving all floors including basement.

Catering provision

A café is proposed as a key new functional addition to the museum. Cafes are a commonly expected feature of museums and offer the potential to draw in greater visitor numbers and increase revenue and dwell time both within the museum itself and also the wider cityscape.

Located close to the entrance whilst not interrupting visitor flow through the exhibition route, the location for the café benefits from plentiful natural light along the south-eastern aspect of the building and the addition of a new WCs.

The servery area is first encountered as people enter the café, with seating beyond including one of the circular rooms. Within this circular room, curved window reveals will be utilised for seating, whilst the existing fireplace will be retained as a feature of the room. Existing walls adjacent to the servery will be removed to improve spatial provision and visitor experience. Cornices will be retained, demarking the line of removed walls.

A small lift or dumb waiter to the rear of the serving area enables the bringing of supplies from the basement and for the passage of food and beverage up to the Courtroom to service a function or other such event. This arrangement allows for improved usage of basement storage and for the requirement for duplicate catering provision at first floor level to be avoided.

Retail provision

Currently located either side of the main staircase, it is proposed that the retail area be relocated in order to provide a clearer entrance experience for visitors. With the removal of retail fit out from the main entrance, visitors will be able to better engage with the existing building and flow through towards the atrium without distraction. The removal of fit out from this area will also offer improved evacuation routes.

It is proposed that the retail area be relocated to the west of the ground floor in order that it remains in close proximity to the entrance whilst also being located at the end of the route around the ground floor of the museum. A retail area in this location utilises an area which would otherwise become circulation space and improves the suggestion of a visitor route throughout this area without breaking the flow of exhibitions. Proximity to the lift also improves access to retail storage areas within the basement.

Learning facilities

The repurposing of the second floor of the museum to visitor accessible galleries provides further benefits such as the expansion of the learning suite from the basement to the northern circular room at second floor level, increasing the quality and area for dedicated learning substantially from the existing museum.

These additional spaces at second floor level will benefit from the walkway through the atrium, allowing for learning groups to engage with the museum and also from the back-of- house staircase to the north-west of the building which will offer a direct link from basement

to second floor, the full extent of which can be segregated from other visitors if required. Learning groups will also be free to explore the full extent of the museum during visits.

The existing basement learning suite will be retained and reconfigured to create a separate, secure zone whilst retaining the central room beneath the atrium as a key hub of learning activities. Dedicated storage, WCs and classrooms are provided throughout these spaces.

Staff facilities

It is proposed that the majority of staff offices and much storage migrate to the adjacent Dock Office Chambers (refer to separate application). The staff areas provided within the museum are therefore focused on the primary museum functions for staff members who require a constant presence within the museum.

These office spaces are located across the floors of the museum rather than in a segregated office area in order to help staff fulfil the effective running of the museum and to achieve all the functional requirements of the spaces they support. Dedicated staff rooms and facilities are, however, provided in a single location, allowing for staff and volunteers alike to join each other during breaks.

Materiality

Existing materials throughout the museum will be retained where appropriate and conserved or repaired as detailed elsewhere within this report. New materials will complement existing and reflect the maritime history of the building. Flooring will comprise timber or stone to principal spaces, accentuated with brass fittings. To the atrium, a contemporary feel will be introduced with steel fittings, maintaining the link with maritime heritage whilst distinguishing the atrium as a new addition to the museum.

Daylight control

Working in close coordination with client team and design team, daylight control principles have been established in order to maintain the required balance between daylight, views, protection of collections and effectiveness of architectural lighting.

Windows throughout will be provided with UV protection film and light reducing/blackout blinds. Artist commissions throughout the museum will provide the opportunity for graphics to be designed and printed onto the blinds as an integrated aspect of the exhibitions.

Within the central atrium, the large glazed rooflight will be fitted with UV protection and adaptive daylight controls, allowing for light levels within the atrium to be carefully managed in order that the designed exhibition fit out be supported by appropriate background lighting.

Heritage Statement

The proposals for development at Hull Maritime Museum have been designed to meet the needs of the museum and meet the vision objectives of the NLHF project: to allow for an enhanced visitor experience (enabling better access, events, new exhibition spaces, and an enhanced learning option) whilst enhancing the historic building design and fabric, and to engage with the significance of the building in relation to its maritime museum collection. The works proposed will have an impact on the building fabric, and upon the established significance of the Grade II* listed museum.

The proposals are not without some harm in heritage terms, and the tests of paragraphs 194 and 196 of the NPPF apply.

The area of the highest impact will be:

• New floor level and finish to the Wharfage Office and Superintendent’s Office tower room.

• Access ramp to main entrance door.

Though considered to be of medium adverse impact, the development of the design through the project process has made some mitigation. The new floor level in the Wharfage Room does not impact on the building fabric, and features of significance are screened rather than removed. This alteration can be reversed in the future, therefore mitigating any adverse impact.

The external access ramp is considered to have some impact on the highly significant external appearance. However, it is clearly designed as a modern addition, but reflecting the character of the building, but remaining subservient to its dominating appearance.

The ramp improves public access and is considered to be a well-designed structural addition, justifying any impact caused. As a result, these proposals lead to less than substantial harm.

Other proposals that amount to low impact are:

• Interior alterations to the historic window openings in the Wharfage Room and Court Room.

• New lift and staircase with openings in historic fabric for access.

• Stairs and doorways in the towers to access walkway, and lift shaft.

• Removal of historic walls to create several open spaces for exhibition and learning zone.

• Retaining blocked courtyard in south-east corner for cafe and storage facilities.

These proposals have impact on the building fabric but are designed to enhance the museum experience.

New additions are intended to be modern alterations; to be a clear part of the story in the ongoing museum development. Other elements to the Wharfage Office and Court Room

seek to reinstate some features of significance, whilst using this as part of the museum experience. The developments maintain the viable use of the building, which has already proven to be an appropriate use for many years. These proposals are appropriate change and maintain and enhance the viable use of the building, justifying any impact on the building fabric.

Having been acknowledged that the above result in less than substantial, it has also been proven that the development will lead to public benefit (NPPF paragraph 196). These proposals will create a sustainable new development that will enhance the contribution the museum use makes to the building as a significant heritage asset (NPPF paragraph 185).

The development of the museum within the historic dock offices is a significant feature in the historical and communal value of the building, and the continued use and development of the exhibitions enhances the visitor offer and engages with the communal value of the space.

The proposed works are considered to be a notable contributor to the long term conservation of the building and enhances the contribution the museum makes to the distinct identity of Hull, in line with Policy 16 of the Hull Local Plan.

PLANNING FRAMEWORK

Hull Local Plan 2016 to 2032

Strategic Priority 6 - Protect and enhance the city’s historic assets.

Policy 14 – Design

Policy 15 - Local distinctiveness

Policy 16 - Heritage considerations

Policy 40 - Addressing Flood Risk in Planning Applications

Other Material Considerations:-

SPD 2 - Heritage and Archaeology

National Planning Policy Framework

NPPF10 Require good design (paras 56 to 68).

NPPF12 Climate change, flooding and coastal change (paras 93 to 108).

NPPF14 Conserve and enhance the historic environment (paras 126 to 141).

PLANNING APPRAISAL

This listed building consent application addresses all internal and external alterations and additions described in the submission which have the potential to impact upon the building’s architectural and historic significance.

Design and Conservation

Section 16(2) of the Planning (Listed Buildings and Conservation Areas) Act 1990 states that ‘In considering whether to grant listed building consent for any works the local planning authority .shall have special regard to the desirability of preserving the building or its setting or any features of special architectural or historic interest which it possesses.’

The NPPF, at paragraph 192, states that ‘In determining applications, local planning authorities should take account of: a) The desirability of sustaining and enhancing the significance of heritage assets and putting them to viable uses consistent with their conservation; b) the positive contribution that conservation of heritage assets can make to sustainable communities including their economic vitality; and c) the desirability of new development making a positive contribution to local character and distinctiveness.

At paragraph 193 the NPPF directs that ‘When considering the impact of proposed development on the significance of a designated heritage asset, great weight should be given to the asset’s conservation’ , and the succeeding paragraph requires that any harm to, or loss of significance should require clear and convincing justification, and that substantial harm to a grade II* listed building should be wholly exceptional.

Paragraph 195 to the NPPF then sets out that ‘ When a proposed development will lead to substantial harm to (or total loss of significance of) a designated heritage asset, local planning authorities should refuse consent, unless it can be demonstrated that the substantial harm or total loss is necessary to achieve substantial public benefits that outweigh that harm or loss, or all of the following apply: a) the nature of the heritage asset prevents all reasonable uses of the site; and b) no viable use of the heritage asset itself can be found in the medium term through appropriate marketing that will enable its conservation; and c) conservation by grant-funding or some form of not for profit, charitable or public ownership is demonstrably not possible; and d) the harm or loss is outweighed by the benefit of bring the site back into use.’

In considering less than substantial harm, the NPPF guides local planning authorities to weigh that harm against the public benefits of the proposal, including where appropriate, securing optimal viable use.

Local Plan policy 16 (1) states that ‘Development that would cause harm to the significance of a designated heritage asset will only be approved where it has been convincingly demonstrated that the harm cannot be avoided and there would be public benefits sufficient to outweigh the harm or loss caused.’

The application proposes a number of external alterations to the building, namely:

• the erection of a new extension within an internal courtyard following demolition of an existing one

• alterations to the roof and the inward facing elevations of its three domes; and

• the installation of a new entrance ramp,

The existing extension within the internal courtyard is of no architectural or historic merit in its own right, and relates poorly to the original building, detracting from its architectural significance, and impeding the appreciation and understating of the atrium space and its contribution to the significance of the building. The introduction of the high level glazing to create the replacement atrium will create a contemporary, high quality space within the building which will enable the latter’s form, design, and architectural detailing to be more readily appreciated and understood, including from elevated positions, whilst enhancing legibility and orientation, previously prevented by a labyrinthine character to the experience of negotiating the museum. It is considered that these works would not harm, but rather enhance the significance of the building.

The proposed alterations to the roof would result in limited variation in its form, including the introduction of the new atrium, none of which would be discernible from the public domain, given that they would be screened by existing ornamented parapets to the building, double- pitched forms behind, and its three feature cupolas. It is proposed to alter one window in each of the three domes, specifically those which face directly inwards on to the triangular central roof covering, to an access door to allow for maintenance access. The alterations will enable much-needed on–going maintenance works to the domes, essential to ensuring the longevity of the building and the retention of historic fabric. The openings will not be readily discernible bar from the internal roof covering, given the scale and location, and roof design of the building, and it is considered that the limited scale of that impact, and the discreet location of the same, subject to appropriate details of the door design and materials to be secured by condition, will ensure that any resultant harm to the significance of the building, and how it can be appreciated will be of less than substantial magnitude only.

In considering less than substantial harm, the NPPF guides local planning authorities to weigh that harm against the public benefits of the proposal, including where appropriate, securing optimal viable use, whilst local plan policy requires convincing justification, and public benefit to outweigh that harm. In this instance, taking into account the rational and comprehensive approach taken to enhancing the visitor experience of the museum alongside its on-going management and maintenance, it is considered that the maintenance access approach described in the submission is acceptable, and given that those alterations form a desirable part of proposals which offer to enhance the overall significance of the building, its appreciation, and safeguarding of its future condition, it is considered that associated benefits outweigh the less than substantial harm identified.

Access to the museum is currently less than equitable, given that the main entrance features a series of steps, with level threshold provision currently afforded by request only, via a secondary access door. The proposals would involve the introduction of an access ramp to the main entrance of the museum, which would obscure the entrance steps and necessitate the removal of decorative wrought iron grilles from around the pedestals of the entrance columns. This intervention represents harm to the significance of the building, by preventing full appreciation of the primary building entrance and the loss of historic fabric from its

original position. However, the relocation of the decorative grilles elsewhere on or within the building is recommended to be secured by condition, which will mitigate the harm caused, and their return to their original position at some future point will not be rendered unfeasible by the proposed works. Further mitigation of harm to significance would be delivered by the sensitivity of the ramp design proposed.

The structure would be stone-faced, with curved corners reminiscent of those of the three- cornered building itself. The simple, low lateral banding of the steps would appear deferential to the building, would echo, to a degree, the strong horizontal banding features evident in the ornate façade of the building, and will appear to form a grand plinth to the entrance columns from distance, closer inspection on entry revealing the original design of the entrance and the sensitivity of the intervention. The ramp element of the new entrance feature will run south-east from the entrance, occupying a less heavily–trafficked and less constrained area of public realm relative to alternative alignments, and following the natural incline of the local topography adjacent to the building frontage. Details of design and materials for handrails can be secured by condition. The number and positioning of handrails shown have been selected taking into account both their impact upon the significance of the building and the needs of all users, and detailed design and materials options should strike the same appropriate balance.

The proposals also include a wide range of internal alterations which can be summarised as follows:

• Introduction of a new, larger, evacuation standard lift

• Removal of existing display fit-outs

• Installation of plant to basement

• Installation of new and upgraded WC provision

• Partial removal of historic walls to create and improve exhibition and educational spaces and enhanced café area.

• Partial removal of modern partition walling

• Alterations to a limited number of internal windows

• Frist floor gallery walkway to the proposed atrium

• Removal and introduction of stairwells

• Removal of non-compliant added steps and ramps

• Introduction of fire safety doors

• Partial raising of floor and corridor to create internal level access

The extensive range of internal works is considered to represent a rational, coordinated, and generally sensitive refurbishment of the building. Interventions into historic fabric are considered to be minimised given the stated objectives of the proposals, their potential to contribute to the continued and enhanced viable use of the building, and the fact that the majority of the works would serve to enhance understanding and better reveal the appreciation of this heritage asset’s significance.

Internal alterations which would result in some harm to the significance of the building include the loss of historic fabric associated with the insertion of the new lift and staircase, and the introduction of a spiral staircase to the south-west tower. Similarly, the knocking– through of two rooms at second floor level to create a new exhibition space would result in the loss of historic fabric, as would the removal of walling to north-west tower room to create a flexible learning space with an adjacent ante-room. The introduction of a raised floor to provide level access, in so doing masking lower sections of columns, skirting boards, historic grates, radiators, and a fireplace, would also represent harm, although all features would remain in situ, intact. Further limited harm would result from the beneficial impact of the opening up of a row of five internal historic windows, but subsequently requiring two to be blocked from behind, although this would be significantly mitigated by retaining apertures, and introducing glazing and feature lighting to approximate uniformity.

It is considered that, individually and cumulatively, the proposed alterations represent less than substantial harm to the Grade II* listed building, and that that harm would be significantly outweighed by the positive public benefits offered to the city’s cultural and tourism offer, educational opportunities, the long term sustainable and viable use of the heritage asset, and substantial improvements in equitable access to the same.

Information on ventilation, mechanical and electrical services and distribution strategies has been submitted in support of the application. Whilst the majority of ducting is to remain concealed, other than fittings and grilles, further intrusive investigative works have not yet been undertaken in advance of the determination of this application. An appropriate condition is recommended to ensure that the final positioning and design of ducting, fittings, and grilles are subject to further consideration.

As submitted, the plans describe the removal of historic door DG08, currently serving a staff room and located in the proposed café area. Sufficient justification for the removal of this original feature has not been provided, and in the absence of the same, there is no readily apparent reason as to why the door and its surround cannot be retained in situ, even if fixed in a permanently open position. A suitably worded condition is recommended to secure the door’s retention.

Equalities

Under the Equality Act 2010 S149, the Council has a duty to consider equality issues. A Public Authority must, in the exercise of its functions have due regard to (a) eliminate discrimination, harassment, victimisation and any other conduct that is prohibited under the Act: (b) advance equality of opportunity between persons who share a relevant protected characteristic and persons who do not share it; and (c) foster good relations between people who share a relevant characteristic and persons who do not.

This proposal has been considered against the duty of the Council to consider equality issues. This development is considered to comply with these requirements because deliver substantial improvements in terms of equitable access to one of the city’s most significant public buildings.

A query has been raised by an interested third party with regard to the safe usability of the proposed internal ramp at first floor level for the visually impaired and guide dog users. Although this a matter to be more properly addressed through Building Regulations, feedback from the Council’s Access Officer has been sought on the issue. That feedback advised that, whilst the ramp in question will not be fully compliant, given the constraints of the existing building and the objective of maximising equitable access throughout all rooms and circulation spaces, it represents the most appropriate design response in the circumstances.

Persons of protected characteristics should not be disadvantaged by any of the proposals.

Biodiversity

Given the details of the proposal and the characteristics of the site it is considered that there would be no adverse impact on areas or species of ecological significance due to the absence of known species or habitats of significance on or adjacent to the site.

Crime and Disorder

Designing out crime and designing in community safety should be central to the planning and delivery of new development. Section 17 of the Crime and Disorder Act 1998 requires all local authorities to exercise their functions with due regard to their likely effect on crime and disorder, and to do all they reasonably can to prevent crime and disorder.

Given the nature of the proposal it is considered that there would not be, or likely to be, an increase in crime or disorder or the potential for such an increase.

Conclusion

It is considered that the proposals accord with relevant development plan policy, and in the absence of overriding material considerations to the contrary, the application is recommended for conditional approval.

DMPO Article 35 Statement

The local planning authority have worked with the applicant in a positive and proactive manner based on seeking solutions to problems arising in relation to dealing with the planning application in the following way(s):

Engaging in pre-application discussions with the applicants;

RECOMMENDATION

That the application be approved subject to the following conditions: -

1) Det 1D (Development to accord with approved plans)

[insert approved plan numbers here]

2) Det 2B (Time limit – Full application)

3) DES 1B (Samples of materials) a c e

4) Before commencement of any works to the domed cupolas hereby approved, elevations and sections at a scale of 1:50, describing full details of the reveals, design, materials, and ironmongery for the access doors to be inserted therein shall be submitted to and approved in writing by the local planning authority. Development shall then take place only in accordance with the approved details, in the interests of the architectural and historic significance of the listed building, the character and appearance of the conservation area, and the settings of adjacent listed buildings, and in order to comply with policies 14, 15, and 16 of the Local Plan.

5) Before commencement of any works to the ground floor exterior of the building, a method statement for the removal, relocation, and installation of the decorative iron grilles currently protecting the pedestals to the columns flanking the building's main entrance shall be submitted to and approved in writing by the local planning authority. Development shall then take place only in accordance with the approved details, in the interests of the architectural and historic significance of the listed building, and the character and appearance of the conservation area, and in order to comply with policies 14, 15, and 16 of the Local Plan.

6) Before commencement of any works to install the entrance ramp and steps hereby approved full details of the positioning, design, and materials of all handrails and balustrades shall be submitted to and approved in writing by the local planning authority. Development shall then take place only in accordance with the approved details, in the interests of the architectural and historic significance of the listed building, the character and appearance of the conservation area, the settings of adjacent listed buildings, and equitable access, and in order to comply with policies 14, 15, and 16 of the Local Plan.

7) Before development commences, detailed drawings including plans, internal elevations, and sections of the proposed ventilation, heating, mechanical, and electrical grilles, fittings and ducting shall be submitted to and approved in writing by the local planning authority. Development shall then take place only in accordance with the approved details in order to protect the special historic and architectural interest of the listed building, and to comply with policies 14, 15, and 16 of the Local Plan.

8) Before interior works to the ground floor of the building commence, details of the retention of door DG08 shall be submitted to and approved in writing by the local planning authority. Development shall then take place only in accordance with the approved details in order to protect the special historic and architectural interest of the listed building, and to comply with policies 14, 15, and 16 of the Local Plan.

9) Before the development hereby permitted is brought into use, transfers or other devices shall be affixed to the balustrade and gallery glazing overlooking the

central atrium at first and second floor level, in accordance with details to be submitted and approved in writing by the local planning authority, and shall thereafter be retained. A pre-commencement condition is required to enable partially sighted persons to be aware of the areas of glass for safety reasons, and to comply with policy 14 of the Local Plan.