Central South and West Area Committee 13 July 2010

Application Number: 10/01108/FUL & 10/01109/LBC

Decision Due by: 6 July 2010

Proposal: Planning permission – regrading and repairing Old Schools Quad to provide level access

Listed building consent – a) internal alterations to Old involving removal of lift and lift grilles, modern partitions, book conveyor, installation of new lift, WCs and kitchenette. b) Internal alterations to Radcliffe Camera involving removal of modern stairs, inserting of new lift and stairs. Temporary removal of window and grille to allow contractors access. c) Internal alterations to underground book store involving removal of static shelving, installation of rolling stacks, carrels, lifts and provision of reading/study areas.

Site Address: Old Bodleian Library, Radcliffe Camera, Radcliffe Square,

Ward: Carfax Ward

Agent: Mr Terry Gash – DPDS Ltd Applicant:

Applications 10/01108/FUL & 10/01109/LBC called in by councillors on the grounds that the changes proposed are of such significance and importance that the applications would benefit from public scrutiny at the area committee

Recommendation: Approve For the following reasons:

1. The Council considers that the proposal accords with the policies of the development plan and Government advice on the management of the historic environment as summarised below. It has taken into consideration all other material matters, including matters raised in response to consultation and publicity. Any harm to the heritage assets that the works would otherwise give rise to can be justified and mitigated by detailed design, which the conditions imposed would control.

2. Comments received in response to public comments relate to particular elements of the scheme rather than the overall objectives sought, in particularly the loss the fittings, impact on historic fabric, impact on architectural quality. The proposals have evolved through informed analysis of the architectural and historic interest of the buildings and through pre-application discussions with officers and English Heritage and in consultation with local groups. Whilst there will be some impacts on the heritage assets it is considered that these impacts have been minimised by design and mitigated by proposals for recording and salvage. Overall the benefits that will be delivered, ensuring the buildings remain suitable for continued storage of these important collections allowed improved access for the whole community and encouraging the public’s understanding and enjoyment of the heritage assets, justify granting listed building consent and planning permission.

Subject to the following conditions, which have been imposed for the reasons stated:-

(i) 10/01108/FUL

1. Time limit – full permission 3 years 2. Approved Plans 3. Materials in CA 4. External Services to be approved 5. Construction travel plan 6. Archaeological recording and watching brief 7. Construction details

(ii) 10/01109/LBC

1. Time limit 3 years 2. Approved Plans 3. Amended plans 4. 7 days notice of start of LPA 5. Written notice of likely completion to LPA 6. Samples of external materials on-site 7. Internal features to be protected during works 8. Further works for fire regulations 9. Repair of damage after work 10. Further details to show: • Fire doors • Floor and wall finishes in UBS and Old Bodleian Library • New rolling bookshelves in lower UBS • temporary ramp required to access Radcliffe Camera • methodology and details for window and railing removal, storage and reinstatement (Radcliffe Camera) • design and finish of ventilation grills in Schools Quad • services and service runs • lighting • lift access and stairs to Radcliffe Camera • construction details for new external paving • junction of new work with historic fabric 11. Recording, removal and storage/reuse of ‘Gladstone shelving’. 12. Construction travel plan 13. Archaeological building recording and watching brief.

Main Local Plan Policies: Oxford Local Plan 2001-2016 CP1 - Development Proposals CP8 - Design Development to Relate to its Context HE3 - Listed Buildings and Their Setting HE7 - Conservation Areas CP13 - Accessibility

Core Strategy 2026 CS20 – Urban design, townscape, character and the historic environment

Other Material Considerations: This application is in the Central and City Conservation Area. The development is affecting Grade I Listed Buildings.

Relevant Site History: 72/26141/L_H Repaving Schools Quad APPROVED 97/1681/L & 97/1682/NFH raising of existing paving to provide access for people with disabilities, outside door to Chancellor’s Court in Sheldonian Quad & outside 5 entrance doors in Old Schools Quad, apps. WITHDRAWN

Representations Received: English Heritage – have commented about the Access Statement provided and question the need to provide access to Lower Reading Room of Camera, the suitability and desirability of the access proposed and query if other less intrusive means of access solutions have been fully explored. No objection to the means of access through the window in Bay 2. They welcome the removal of the existing lift shaft and metal grills from the main staircase and accept the loss of the conveyor and associated elements and Gladstone shelving in the upper level of the underground bookstacks (UBS).

The Georgian Group – have two concerns. The first is the design for the new balustrade to the staircase and lift connecting the Lower Reading Room to the underground bookstacks. The other is the temporary removal of sections of railings surrounding the Radcliffe Camera and the installation of a ramp to the window of bay 1.

Oxford Civic Society – consider that the provision of ramps in the Old Schools Quad is unsightly and a hazard to pedestrians.

Oxfordshire Architectural and Historical Society (OAHS) – object to the proposed changes of level of paving in the Old Schools Quad

The Victorian Group of OAHS – support the views expressed by the Georgian Group regarding the glass balustrading to new the staircase and lift in the Radcliffe Camera. They also object to the removal of most of the original shelving on the upper floor of the UBS. Recommend full investigation and recording before any work carried out.

CABE –do not wish to comment

SPAB – Concerned about the impact of the new paving on moisture movement in the walls and floor structures of surrounding buildings.. They also suggest that a change in levels in the Old Schools Quad might have some adverse effect on the proportions and character of elevations.

Oxford Preservation Trust – Is supportive of the works in the NW School’s Tower, changes to the UBS and the installation of new lift and stairs in the Radcliffe Camera. The Trust are concerned however about repaving in old Schools Quad, particularly the loss of the plinth around the building.

County Highways – raises no objection to works subject to details of access to Holywell Street in construction travel management plan.

Internal Consultees: Access Officer – supports proposals.

Officers Assessment:

History of development

1. The Bodleian Library complex includes the Clarendon Building, the Schools Quadrangle with the attached Divinity School and Convocation House, Duke Humfrey Library, Arts and Selden Ends. To the south is the Radcliffe Camera and underneath part of Radcliffe Square is the Underground Bookstore (UBS). To the north is the new Bodleian. A tunnel links the Camera, UBS, Old Bodleian and New Bodleian.

2. The first university library was located above Congregation House adjoining St Mary’s Church and it was in the 1420’s that construction started on the Divinity School building, finishing in 1488. Building works, of extension alteration or conservation have continued almost every decade since. (there was a short interlude in the building programme during the latter part of the C17th). Below is a time line of key dates

c.1320 1st University library over the Congregation House adjoining St. Mary’s church 1420s- Divinity School constructed 1480s 1435-1447 Duke Humfrey Duke builds a room over the Divinity School to house a new library 1489 New Library above the Divinity School finished 1550 Duke Humfrey’s library closes. The University is without a library for around 50 years. Room taken over by the faculty of medicine 1598 Sir Thomas Bodley began to restock and refurbish the library 1602 Bodley’s library opened 1610 Bodley entered into agreement with the Stationers’ Company of London so that a copy of every published book in which was registered at Stationers’ Hall would be given to the Bodleian 1610-12 Arts End with Proscholium below added to the library 1613 Bodley dies 1613-18 The University builds the Schools Quadrangle to the east of the Arts End for lecture and examination rooms. Includes a third storey funded by money left in Bodley’s will. Work includes the painted frieze in the Upper Reading Room. 1640 Selden End built with Convocation House beneath and named in honour of John Selden, one of the library’s benefactors 1737-49 Radcliffe Camera built by James Gibbs 1751 Stone obelisks put into Radcliffe Square 1789-1884 Bodleian Library gradually takes over all the rooms in the Schools Quadrangle 1824 Radcliffe Square lawns put in and iron railings erected 1860-61 Radcliffe Camera given to the Bodleian Library as a new Reading Room 1861 Acland proposes a covered walkway between the Camera and Old Bodleian, which is not carried out 1863 The open ground floor of the Radcliffe Camera enclosed and refurbished to become a bookstore. Windows glazed and external steps added. 1884-91 Transfer of some stock to basement 1888 Trial of movable shelving in the Radcliffe Camera which were draw forward by handles and run in grooves cut into the floor 1895-97 Transfer of some stock to basement of Ashmolean Museum. Intermediate open iron-work floor inserted and moveable shelving installed 1894 Exploratory Committee set up to investigate storage problems 1899 Committee again appointed to consider ideas for library expansion and Woodthorpe appointed to design the scheme 1901 Additional, smaller room in the Ashmolean basement fitted with endways sliding cases on Woodthorpe’s design 1904 Basement of Examinations School used for book storage, employing sliding cases as in the Ashmolean 1909-12 UBS constructed, designed by Woodthorpe and including hanging shelving on the upper floor, supposedly designed from an idea put forward by Gladstone, the former PM. Funding partly from Oxford University Endowment Fund who gave £12000. At the time the largest such store in the world 1923 Lower floor of UBS furnished with fixed stacks with gangways between 1936 Railings around Radcliffe Square removed 1937-40 New Bodleian constructed, including underground tunnel connecting to the Old Bodleian and book conveyor and shaft within the Old Bodleian north-west tower 1940 Lower Reading Room in Radcliffe Camera created when books stored there were moved into the New Bodleian bookstack. Opened to readers May 1941 1940s Fit out of the rest of the library following the opening of the New Bodleian after the War. Joinery and partitions of WCs in North-West Tower could be from this date 1959 Seven steel windows in the lower arches of the Radcliffe Camera replaced by Godfrey Allen with new frames in aluminium. Wrought iron grilles in lower arches repainted and tips gilded 1960s Conservation work to reface Duke Humfrey’s Library, Arts End, Selden End (1960-63) and Schools Quadrangle (1964-68) 1971 Schools Quadrangle paved with stone slabs on the current arrangement 1993 Railings put in again around Radcliffe Camera and additional paving installed

Heritage Significance

3. All the buildings in Radcliffe Square form a group of the highest significance core to the University of Oxford and one of the most visited sites in Oxford. The Bodleian library is considered to be the first major public library in Britain founded to serve the University of Oxford and “the republic of the learned” (Sir Thomas Bodley). It has national and international as a library of legal deposit and has a collection accumulated over four centuries placing it in the first rank of international libraries. Its buildings are by architects of national significance and it is highly valued by the academic community, resident community, visitor and business community.

4. Radcliffe Camera is grade I listed and has high architectural, aesthetic and historical significance. The fabric directly affected by proposals, including the floor in bay 1 of the Camera, the steep stairs down to the UBS and librarian desk, mainly consist of 20th century work. Alterations to the window in bay 2 and construction of a temporary ramp into the Camera also affect 20th fabric. The railings are C20th.

5. The Old Bodleian Library NW Tower and NE Range is also grade I listed and contains early 17th century fabric including the timber staircase and the painted frieze on the second floor which was commissioned by the library’s first librarian, Thomas James. Alterations have taken place to the staircase including the insertion of a lift in the 1930s and a C20th handrail. The 1930s joinery housing the lift mechanism and the lift doors have moderate aesthetic and architectural value stemming from the quality of the timberwork but intrude upon the aesthetic appreciation of the earlier staircase.

6. Other 1930s alterations to the building including the toilets and conveyor rooms, which are utilitarian in design and are of little historic or architectural importance.

7. The Underground Bookstacks (UBS) The Gladstone shelving is an early example of rolling rack shelving, first used at the British Museum and trialled in the basement of the Ashmolean and the Examination School. Although the shelving did not prove entirely successful, it possesses both historic and technological interest. Other elements of aesthetic interest include the iron grill flooring of the upper level, the design of detailing of the shelving, the terrazzo flooring on the lower level, the heavy steel doors and the iron grill stairs with decorative balustrading and newel posts.

8. The Schools Quad was resurfaced in 1972 based upon an original 17th etching showing perimeter and crossing pathways in the centre of the quad.

Policy Framework

9. In revised guidance issued on the 23rd March 2010 – PPS5 Planning for the Historic Environment, the government has re-affirmed its commitment that the historic environment and its heritage assets should be conserved and enjoyed for the quality of life they bring to this and future generations. It defines the Historic Environment as meaning all aspects of the environment resulting from the interaction between people and places and a Heritage Asset as: “a building, site, place, area or landscape positively identified as having a degree of significance meriting consideration in planning decisions. Heritage assets are the valued components of the historic environment”.

10. The guidance asks that applicants and the local planning authority have sufficient information to understand the significance of a heritage asset and to understand the impacts that any proposal would have. It advises that harmful impacts need to be justified and the greater the harm then the greater the justification needed. When making planning decisions Policy HE7.4 of PPS5 explains that local planning authorities should take into account the desirability of sustaining and enhancing the significance of heritage assets and the positive role that their conservation can make to the establishment and maintenance of sustainable communities and economic viability.

11. The Government recognises that intelligently managed change may sometimes be necessary if heritage assets are to be maintained for the long term, but it does highlight in Policy HE7.5 that it is desirable for development to make a positive contribution. Policy HE9.1 of PPS5 explains that there should be a presumption in favour of the conservation of designated heritage assets (conservation area, listed building) and the more significant the asset the greater the presumption in favour of conservation should be. It adds that where a proposal has a harmful impact, which is less than substantial harm then planning authorities should weigh the public benefit of the proposal against the harm and recognise that the greater the harm the greater the justification will have to be.

12. The Government’s objectives for the management of the historic environment are given effect locally in the Council’s Adopted Local Plan and in particular policies CP1, HE3 and HE7.

Brief description of proposals:

13. Radcliffe Camera: Removal of existing modern stairs in Bay 1 of the Lower Reading room of the Radcliffe Camera, and the enlargement of the hole in the floor to allow replacement stairs and a lift down to the underground bookstacks Alterations to window in bay 2 of Radcliffe Camera to form doorway and ramp for temporary access, the alterations to the window are permanent to allow a secondary means of access for occasional use.

14. UBS Removal of Gladstone shelving in upper UBS, retaining a small area of the shelving in situ as an architectural and historic record. Insertion of lifts between the upper and lower levels of the UBS. Internal works to the tunnel, including surface treatment, lighting Insertion of fire lobbies around the stairs between the upper lower levels of the UBS on both levels. Formation of new WCs facilities on the upper level of the UBS adjacent to the access to the Radcliffe Camera

15. Old Bodleian Library – NW Tower Removal of the lift section of the book conveyor in the NW tower and its replacement with personnel lift from the tunnel level to the upper reading rooms of the Library, including alterations to floors, walls and partitions. Internal works to NW tower stairs including the removal of metal grills, panelling, an existing lift, partitions, machinery, and equipment.

16. Old Bodleian Library – NE Range Internal works to the NE range of the Old Bodleian Library to adapt room to reader common room, including removal of partitions and the installation of a small kitchen space.

17. Old Schools Quad Replacement of modern paving to create level and inclusive access

Justification for the works

18. To maintain its status as a legal deposit library the Bodleian is required to make improvements in storage, access and conservation of its collection. To achieve this it has prepared and is implementing a library strategy. This strategy has already delivered improvements to the collection at the Radcliffe Science Library and Hook Library and consent has been secured for improvements at the Bodleian library, which when implemented will also help deliver improvements to the public realm at the top end of Broad Street. These works are part of this Library strategy to improve visitor and reader access and facilities and improve safety and storage of the collections.

The works will contribute to maintaining the Bodleian library’s status as legal deposit library.

19. The refurbishment of the UBS and Old Bodleian Access Project will give open access to around 250,000 items of library stock (currently held in closed stacks) in the UBS, thereby greatly increasing open-access provision in the Bodleian Library (Old Library and Radcliffe Camera) from c.200,000 items at present to c.450,000.

20. Improvement in the method of book retrieval – safe handling and less delay the increase in the number of items available to “open-access” by providing access to the Underground Bookstore for high demand items is designed to increase user satisfaction and reduce vehicle trips to remote storage locations.

• To reduce throughput from the Book Storage Facility near Swindon (completion date September 2010) by concentrating high-demand items in Oxford and putting generally low use material in the Book Storage Facility.

• There is currently no DDA-compliant access to reading rooms in the Old Bodleian Library or Radcliffe Camera and readers with impaired mobility are thus denied access to the library buildings. The internal works and repaving int the schools quadrangle will improve access to the space for all users (readers, staff and visitors) and, in particular, to provide DDA-compliant access between the upper level of the UBS and the Lower Camera Reading Room by the installation of the proposed platform lift. The works will also provide DDA-compliant access to the Lower Reading Room and Upper Reading Room of the Old Bodleian Library by the installation of the proposed lift and, via the UBS, to the Lower Camera Reading Room.

• The works are designed to ensure that all the library buildings can continue to be used for the purposes for which they were designed, and to ensure that their contribution as heritage assets is maintained and enhanced.

• The changes overall will be beneficial enabling removal of some modern insertions that are harmful to the significance of the heritage assets for example, lift, and modern partitions.

Assessment of Impact

21. Radcliffe Camera – The proposal to insert a lift and new staircase into the Radcliffe Camera will have an impact on a heritage asset and has raised concerns from consultees. It is accepted however that both a lift and staircase are required to accommodate the number of expected users and comply with current fire safety requirements. The provision of the lift will enable people with disabilities to gain access to the lower reading room of the Radcliffe Camera for the first time. The lift will also be used for transporting book trolleys by staff. The lift and new staircase are also required to provide a secondary means of escape from the building. The new lift and stairs are therefore a vital element of the new scheme. Without both lift and stairs the provision of open access and reader space in the basement cannot be achieved and would compromise the implementation of the library strategy and potentially other projects for the other library buildings.

22. The location of the new lift and stairs will utilise and enlarge the existing staircase opening keeping intervention to historic fabric to a minimum. Concern has been expressed about the appearance of the proposed glazed balustrading and its impact on the appearance and historic interest of the lower reading room. The design intent is to allow the space to appear as uncluttered as possible to reflect the original form of this space. Whilst this may be a legitimate approach the key interest of the space currently is as an enclosed library space with baroque and wood detailing and furnishing. Introducing the contemporary touch in such a strong architectural composition may be inappropriate. This is a matter of detail which could be tested by constructing sample sections of balustrading and testing the result (as was done in the Castle A Wing) Officers are satisfied that the need for the access arrangements is justified and so propose condition to allow reconsideration of and test the design and construction details.

23. The removal of the window in bay 1 and sections of railings to access the site are temporary impacts on the character and appearance of the listed building. Both windows and railings are C20th and have limited historic interest. The alterations to the window allow flexibility to use this bay as a means of access in the future should special circumstances demand. The alterations to the window will be discreet and will not affect the architectural composition.. The railings will be reinstated.

24. The Old Bodleian Library NW Tower and NE Range – The proposed works within the NW tower of the Old Bodleian involve, almost exclusively, 20th Century equipment such as the book conveyor and alterations and additions to the 17th century staircase and reading rooms such as the metal lift grills and partitions. The enlargement of the lift shaft will be carried out through 20th century concrete floors and there will be no impact on historic fabric. Internally the housing for the lift will obscure (as at present) part of the windows and will be visible from outside. This impact can be mitigated by painting out the partitions and lighting within the window recess. The details of this will be controlled by condition.

25. The UBS – For the most part the works to the UBS and tunnel have very little impact on significant features. Some key features will be retained integrated as part of the redesign (existing cast iron stairs, floor grilles and cast iron doors to the tunnel and plant room are to be restored and the decorative terrazzo flooring is to be repaired) . The removal of some of the ‘Gladstone shelving’ on the upper UBS is required to accommodate new circulation routes, meeting areas and breakout spaces. Where the shelving is to be retained it will be fixed in place as the heavy rolling shelves are unsuitable for open access use. Although the Gladstone’ shelving was designed specially for the UBS, this technology was used elsewhere. A condition will be used to ensure that the shelving to be removed is recorded, dismantled, labelled and either stored or reused elsewhere. Consultee responses highlight concern about the loss of this C20th shelving. The removal of the shelving is necessary to deliver the library strategy and improve access and facilities. The impact of the proposals has been minimised by design to allow the retention of as much as possible of the original internal fittings and is mitigated by the retention, in situ of a sample section of Gladstone shelving and recording and reuse of the remainder.

26. The Schools Quad –The works involve lifting the levels of the existing modern paving without altering the designed layout of pathways. It will facilitate level access to adjoining buildings and allow the removal of the temporary modern ramps that are currently used. Concern has been expressed about the adverse impact of these proposals on C17th historic fabric, the loss of ventilation grilles, adverse impact on drainage and moisture movement and on the overall architectural proportions and detailing of the surrounding buildings. .

27. The raised level of paving will obscure some of the existing plinth, but not to the extent that it covers the stop chamfer detailing at the bottom of the doorways. The paving is raised in order to provide level thresholds, the heights of which vary over the quadrangle. Officers conclude that the raised height will not harm the proportions of the architecture – the plinth will not be entirely obscured and it will still provide the ‘visual base’ to the building, the paving will not interfere with the fabric – only butting up to it and the works are reversible. The ventilation grilles will be retained with new grilles included in the paving to provide ventilation (a little like the footway grilles in St John Street).

28. The library has a responsibility under the Disability Discrimination Act to provide access for the disabled and the Local Planning Authority too, through its planning powers has a responsibility to ensure reasonable provision for access to all members of the community. The existing temporary ramps are functional, but unsightly and the Library is seeking a more permanent solution that secures inclusive access without undermining the heritage significance of the site or people’s enjoyment of it. Doing nothing is not an option. Raising the whole level of the quadrangle avoids the need for the discordant introduction of individual ramps yet maintains the overall integrity of the C17th design of paths and is more subtle than alternatives. Officers accept that there are details that have yet to be fully designed, but these matters can be controlled by condition.

Conclusion

To maintain its status as a legal deposit library the Bodleian Library has developed and is implementing its library strategy. This allows for improved storage capacity and conservation of collections, improved access, more open access and improved facilities for readers and improved access for visitors and the general public. The proposals for all the library ’hubs’ are linked and interdependent and one may not happen without the other. Overall the projects will provide significant benefits for readers and visitors and create the opportunity for the public to understand and enjoy these internationally important heritage assets. These benefits cannot be delivered without change and in some cases the change may affect important fabric and fittings. For this project the interventions involve the removal of modern fabric, which is beneficial, and the removal of fittings associated with the early C20th extension of the Library. The impacts have been minimised and mitigation proposed to ensure that the significance of those elements to be removed is not lost entirely. Officers conclusion is that the benefits outweigh any harm and that subject to conditions the proposals comply with national and local heritage advice and policy,

Human Rights Act 1998

Officers have considered the Human Rights Act 1998 in reaching a recommendation to grant listed building consent and planning permission, subject to conditions. Officers have considered the potential interference with the rights of the owners/occupiers of surrounding properties under Article 8 and/or Article 1 of the First Protocol of the Act and consider that it is proportionate.

Officers have also considered the interference with the human rights of the applicant under Article 8 and/or Article 1 of the First Protocol caused by imposing conditions. Officers consider that the conditions are necessary to protect the rights and freedoms of others and to control the use of property in accordance with the general interest. The interference is therefore justifiable and proportionate.

Section 17 of the Crime and Disorder Act 1998

Officers have considered, with due regard, the likely effect of the proposal on the need to reduce crime and disorder as part of the determination of this application, in accordance with section 17 of the Crime and Disorder Act 1998. In reaching a recommendation to approve, officers consider that the proposal will not undermine crime prevention or the promotion of community safety.

Background Papers: Case files Bodleian Conservation Plan December 2000

Contact Officer: Sarah Billam/Nick Worlledge Extension: 2640/2147 Date: 29 June 2010