PLANNING AND HERITAGE STATEMENT

CONVIENCE STORE SALTAIRE

C49 Architecture Ltd Heritage Mill, Huddersfield, HD4 7HG www.C49Architecture.co.uk Tel: 01535 281432 Email: [email protected]

1. Introduction

C49 Architecture is a fast-moving Architecture Firm who believe in creating inspirational projects. Through our 2. designs, we strive to find the perfect balance between costs, comfort, practicality, and beauty. 3. 4. Our goal is not only to create stunning buildings, but also ensure cost effective design, always seeking to undertake 5. projects in the most ecological way possible. When working with listed buildings or in conservation areas we 6. design solutions to preserve the heritage assets

7. Having experience working throughout the UK we strive 8. to bring the best cost-effective design to each project to suit the briefs given. 9. Working throughout the commercial and domestic sector 10. we have experience in all projects. This Planning Statement has been prepared by C49 Architecture Ltd on behalf of Eco developments in support of a full planning application for the erection of a new Local convenience store at Qasim’s Hand Car Wash, Bingley Road, Saltaire.

The proposals comprise the demolition of the existing hand car wash buildings and structures (currently a sui generis use) and the erection of a new Local convenience store (Use Class A1) with a gross floor area of 390sq m, along with associated access, 15 car parking spaces and landscaping.

This planning application constitutes a resubmission of planning application 15/04044/FUL which was approved

The proposals will serve a localised catchment area and provide top-up shopping facilities for the resident population, providing an important retail use within the designated Local Centre of Saltaire. The proposed development will provide up to 20 jobs for local people and will offer a significant visual improvement of a site adjacent to the World Heritage Site.

The planning application is supported by the relevant application forms and certificates, drawings, this Planning Statement and the following documents:

• Design and Access Statement • Heritage Statement • Phase I and II Geo-Environmental Assessment Report, prepared by EPS; • Transport Statement, prepared by Vectos.

Site and Surroundings

As shown on the site location plan that accompanies this submission the application site is located on the southern side of Bingley Road (the A650). The main body of Saltaire is to the north and west. Shipley town centre lies approximately 1 km to the east.

Figure 1: Google Earth view of the site and context (2014)

The site is rectangular in plan and is located on the corner of Bingley Road and Grosvenor Road. The site includes the kiosk, canopy and forecourt relating to its current use as a car hand wash (formerly a petrol-filling station), along with associated areas of concrete hardstanding. Vehicular access to the site is taken directly from Bingley Road by way of an ingress in the east and egress in the west.

The site is within the designated Local Centre of Saltaire, as identified in the ‘Proposals for the Shipley Constituency’ section of the adopted Bradford Replacement Unitary Development Plan.

The site’s location is within the commercial area of Bingley Road, with retail and other commercial uses along Bingley Road to the west. The Saltaire Medical Centre and its associated car park are adjacent to the site to the west and south. Residential properties exist along Grosvenor Road and Grosvenor Avenue to the south and east, and across Bingley Road to the north.

The nearest residential dwellings to the application site are the properties along the northern side of Grosvenor Avenue (nos. 1, 3, 5 and 7), which are separated from the site by the existing overflow car park for the Saltaire Medical Practice, and the properties on the east side of Grosvenor Road at nos. 2 and 4. On the opposite side of Bingley Road, the residential properties at 49, 50 and 51 Victoria Road look southwards to the application site.

In the wider context, the site is on the south side of the River Aire valley. The land to the north falls steeply down to the River Aire, which is located approximately 500m from the site. Immediately south of the site is a car park and mid-20th century housing on higher ground, along Grosvenor Road and Grosvenor Avenue. The site marks the change along Bingley Road from residential to commercial use, with residential land uses to the north, east and south and the medical centre and local high street to the west.

The site is in a highly-accessible location via sustainable modes of transport, with the site being well-served by existing footpaths and bus services.

Figure 2: The site from Bingley Road, looking south

Planning policy designations

The site itself is within the defined local centre of Saltaire, as identified in the adopted Bradford Replacement UDP proposals maps.

The boundary of the Saltaire World Heritage Site (WHS) runs along Bingley Road, with the WHS on the north side of the road, and the site sitting just outside the WHS on the south side of Bingley Road. The site is, however, within the buffer zone of the WHS (as defined on the UDP Proposals Maps). The Saltaire Conservation Area follows a similar boundary of the WHS, with the site sitting just outside it.

The following listed buildings (all Grade II Listed) have been identified as being within the context of the application site:

Numbers 50-64 Victoria Road (20m north of the site), including railings and piers to Bingley Road;

Numbers 24-49 Victoria Road (20m north west of the site), including wall, piers and railing to south, and wall and piers to north;

2-18 George Street and 49 Bingley Road (60m north west of the site);

51-97 Bingley Road (80m west of the site); and,

Sir Titus Salt’s Hospital including wall and piers to Saltaire Road (115m north of the site).

Relevant Planning History

A full planning application (LPA reference 15/00819/FUL) was submitted to the Council on 3 March 2015 for the erection of a new Sainsbury’s Local convenience store at Qasim’s Hand Car Wash, Bingley Road, Saltaire. The application proposed the demolition of the existing hand car wash buildings and structures (currently a sui generis use) and the erection of a new Sainsbury’s Local convenience store (Use Class A1) with a gross floor area of 357sq m, along with associated access, 14 car parking spaces and landscaping.

Planning application 15/00819/FUL was withdrawn on 23 July 2015 following comments and advice from the Planning Officer relating to the design of the proposed building, the impact of the proposals upon the adjacent World Heritage Site and site access/delivery arrangements. Following the withdrawal of the previous application, the applicant revised the scheme to address the feedback received whilst reflecting the operational requirement of a convenience store. These matters were addressed and approval was granted under application 15/04044/FUL

Prior to the previous application, the following planning applications relating to the site have been identified from the Council’s online planning application database (Public Access):

Application Ref Description of Development Decision Date Decision 99/00350/ADV Illuminated free standing pole sign 12 04 1999 Refused 98/02201/COU Change of use from petrol filling station to car care centre 17 09 1998 Approved 90/03580/OUT Business use class B1 28 09 1990 Approved 90/03581/OUT Residential use class C3 16 07 1990 Approved 90/03579/OUT Food and drink use class A3 09 08 1990 Refused 90/03578/OUT Financial and professional services class A2 28 09 1990 Approved 90/03577/OUT Retail use class A1 28 09 1990 Approved

Although the site has some planning history, which includes separate simultaneous outline planning applications in 1990 seeking permission for the change of use from the former petrol filling station to A1 use (granted), A2 use (granted), A3 use (refused), B1 use (granted) and C3 use (granted), there is no record of any subsequent reserved matters applications having been submitted. As such, these planning permissions are lapsed. However, this demonstrates that the LPA have previously accepted the principle of A1 uses on the site.

From the other two planning applications, the most relevant is the approval of the change of use from petrol filling station to a ‘car care centre,’ which was granted planning permission in 1998. More so the grant of the planning application for Sainsburys was nearly identical in form to that of this application submitted.

The planning history above demonstrates that the site has been in commercial uses for a number of years which is commensurate with the proposed use.

The Proposals

Full details of the proposed development, including design, layout and materials, can be found in the application drawings and the Design and Access Statement which accompany this application. This section of the Statement provides an overview of the proposed scheme.

The proposals comprise the demolition of the existing hand car wash buildings and structures (currently a sui generis use) and the erection of a new Local convenience store (Use Class A1) with a gross floor area of 390sq m, along with associated access, 14 car parking spaces and landscaping. The development will create up to 20 jobs, expected to be for local people.

As shown on the accompanying drawings, the building will have a mixture of gables and pitched roof elements, with twin gables on the front (northern) elevation facing Bingley Road. The overall height of the building (measured from the finished floor level to the top of the ridge line) will be 8.2m from ground level.

Gable features are also proposed to the east and west elevations, addressing key approaches to the site. Behind the main frontage, the building will have a flat roof area adjacent to the southern boundary.

The scheme proposes 14 car parking spaces, including one disabled parking space, to the west of the store. A new two-way access is proposed to provide access directly from Bingley Road. Bicycle parking will be located at the north-eastern corner of the building.

Delivery access will also be taken from Bingley Road to the front (north) of the store by way of a new designated servicing bay. This area will be for service vehicles only and allows delivery vehicles to avoid the need for reversing manoeuvres at the site, thus reducing potential conflict between pedestrians and car parking manoeuvres.

The design of the building has been through very thorough consideration, given the sensitive location of the site opposite the World Heritage Site and Conservation Area and following extensive liaison with offers at the Council in previous applications this concept has been adopted. The accompanying Heritage Statement identifies the important heritage considerations in relation to the site and has informed the overall scheme design, which is explained in detail in the separate Design and Access Statement.

Glazing to the shop floor will provide an active frontage to the site. The proposed materials have been chosen to respond to the local vernacular, with stone as the predominant material and smaller areas of a more timber cladding material.

The proposed landscaping plan shows that both hard and soft landscape features are also proposed within the scheme.

Planning Policy

This chapter identifies the planning policy considered to be of relevance to the application. An overview of the National Planning Policy Framework is given, followed by a review of relevant saved and emerging planning policy contained within the Development Plan for Bradford.

An assessment of the proposals against relevant policy is set out in the following chapter.

The Framework sets out the Government’s planning policies for England, with the presumption in favour of sustainable development (paragraph 14).

Paragraph 7 confirms the three dimensions to sustainable development: economic, social and environmental. These are balanced as a whole to contribute towards achieving sustainable development.

The Framework sets out 12 core planning principles at paragraph 17. The following are of relevance to this application:

• Proactively drive and support sustainable economic development; • Seek to secure high quality design; • Support energy efficient buildings; • Encourage the use of previously developed land; • Conserve heritage assets in a manner appropriate to their significance; • Manage patterns of growth to make the fullest possible use of public transport, walking and cycling.

Section 1 of the Framework places significant weight on the need to support sustainable economic growth. Paragraph 18 confirms that the Government’s commitment to securing economic growth in order to create jobs and prosperity.

Section 2 of the Framework seeks to ensure the vitality of town centres and directs main town centre uses to in-centre locations.

Section 4 of the Framework seeks to create a transport system balanced in favour of sustainable modes. The Framework advises that developments should only be refused on highway grounds where the residual cumulative impacts of development are severe (paragraph 32). Priority is given to pedestrian and cycle movements and development should be located so that it has access to high quality public transport facilities (paragraph 35). The Framework advises that policies should aim for a balance of uses to encourage people to minimise journeys for employment, shopping and other activities.

Paragraph 39 deals with parking standards.

Section 7 stresses the importance of high-quality design, confirming that good design is a key aspect of sustainable development and should contribute positively to making places better for people (paragraph 56). Paragraph 58 sets out the six key aspects of design, ensuring developments should:

• Function well and add to the overall quality of the area for the lifetime of the development; • Establish a strong sense of place, creating comfortable places to live; • Optimise the potential of the site to accommodate development; • Respond to local character and history; • Create safe and accessible environments where crime and the fear of crime do not undermine quality of life or community cohesion; and • Be visually attractive.

Promoting and reinforcing local distinctiveness is important and focus should be placed on the overall scale, density, massing, height, landscape, layout, materials and access in relation to neighbouring buildings and the local area more generally (paragraph 59). Paragraph 60 advises that planning policies and decisions should not attempt to impose architectural styles or particular tastes and they should not stifle innovation, originality or initiative through unsubstantiated requirements to conform to certain development forms or styles, although it is proper to seek to promote or reinforce local distinctiveness.

Development should take opportunities to improve the character and quality of an area and how it functions (paragraph 63).

Paragraph 66 expects applicants to work closely with those directly affected by their proposals to evolve designs that take account of the views of the community, with proposals that can demonstrate this being looked on more favourably.

Section 8 seeks to promote healthy communities, looking to achieve (amongst others) safe and accessible developments, containing clear and legible pedestrian routes (paragraph 69).

Section 11 places importance on conserving and enhancing the natural environment. Paragraph 109, amongst other things, seeks to prevent development from contributing to, being put at unacceptable risk from, or being adversely affected by unacceptable levels of noise pollution.

Paragraph 111 encourages the re-use of previously-developed land, while paragraph 123 states that decisions should aim to avoid noise from giving rise to significant adverse impacts on health and quality of life as a result of new development.

Section 12 provides guidance on the approach to be taken towards conserving and enhancing the historic environment. Paragraph 126 sets out the key matters to be taken into account in developing a positive strategy for the conservation and enjoyment of the historic environment, which are:

• the desirability of sustaining and enhancing the significance of heritage assets and putting them to viable uses consistent with their conservation; • the wider social, cultural, economic and environmental benefits that conservation of the historic environment can bring; • the desirability of new development making a positive contribution to local character and distinctiveness; and • opportunities to draw on the contribution made by the historic environment to the character of a place.

Paragraph 128 sets out the requirements of Heritage Statements, with paragraph 131 requiring local authorities to take account of the desirability of new development making a positive contribution to local character and distinctiveness.

Paragraph 132 gives great weight to the conservation of designated heritage assets. The more important the asset, the greater the weight should be. It goes on to explain that significance can be harmed or lost through alteration or destruction of the heritage asset or development within its setting.

Paragraph 137 states that local planning authorities should look for opportunities for new development within Conservation Areas and World Heritage Sites and within the setting of heritage assets to enhance or better reveal their significance. Proposals that preserve those elements of the setting that make a positive contribution to or better reveal the significance of the asset should be treated favourably.

Paragraph 187 states that local planning authorities should look for solutions rather than problems, and decision-takers at every level should seek to approve applications for sustainable development where possible. Local planning authorities should work proactively with applicants to secure developments that improve the economic, social and environmental conditions of the area.

Paragraph 190 states that the more issues that can be resolved at pre-application stage, the greater the benefits. For their role in the planning system to be effective and positive, statutory planning consultees will need to take the same early, pro active approach, and provide advice in a timely manner throughout the development process. This assists local planning authorities in issuing timely decisions, helping to ensure that applicants do not experience unnecessary delays and costs.

Paragraph 215 states that due weight should be given to relevant policies in existing plans according to their degree of consistency with the Framework (the closer the policies in the plan to the policies in the Framework, the greater the weight that may be given).

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The Development Plan

The Development Plan for Bradford currently comprises the ‘saved’ policies of the Replacement Unitary Development Plan (RUDP), which was adopted in October 2005. It is important to note that the RUDP was prepared prior to the introduction of the LDF system introduced by the Planning and Compulsory Purchase Act 2004, so the weight attributed to the relevant policies must be considered in the context of their consistency with the Framework.

The Council is also in the process of preparing a new Local Plan. The Core Strategy development plan document (DPD) is currently at the Examination stage and, as such, can be attributed considerable weight in the decision-making process. The site-specific Land Allocations DPD and Proposals Maps have not yet been advanced.

The saved and emerging policies considered to be of relevance to this application are set out below. The Conservation Area Assessment and Appraisal and Saltaire World Heritage Site Management Plan are also referenced.

Replacement UDP for Bradford District (adopted October 2005)

Saved policy UDP3 requires new development to ensure that the quality of the built and natural environment is maintained and, where practical, improved. In particular, development should:

• Promote sustainable design and enshrine the principles of good urban design; • Maintain or enhance heritage assets, environmental resources and biodiversity; • Maintain or enhance the character or quality of the environment.

Saved policy UDP6 seeks to sustain and enhance the vitality and viability of centres through promoting their role and giving sequential preference to meeting retail, leisure and office development needs.

Saved policy UR2 is permissive of development provided that it contributes to the social, economic and environmental aspects of sustainable development, makes efficient use of existing physical and social infrastructure, minimises adverse impacts from the development, provides appropriate mitigation where negative impacts are identified and does not constitute piecemeal development that would prejudice the proper planning of the area. Saved policy UR3 is permissive of development provided that it does not have an adverse effect on the surrounding environment or the occupants of adjoining land.

Saved policy CT6 states that proposals which would have a significant adverse effect on the amenity of people who use the city or the town centres will not be permitted.

Saved policy CR1A is permissive of retail development within the retail areas of district centres, and within local centres, provided it is of a scale which is compatible with the role of the centre and the catchment it serves, and, together with recent and potential development arising from unimplemented current planning permissions, would be unlikely to have an adverse effect on the vitality and viability of any equivalent or higher order centre.

Saved policy CR3A is permissive of small shops, provided that the development would not lead to the creation of a shop or group of shops which collectively would have an adverse effect on the vitality or viability of the city centre or any named town, district or local centre.

Saved policy TM1 requires Transport Assessments to be submitted as part of planning applications for developments likely to be significant generators of travel. Saved policy TM2 seeks to ensure developments do not adversely affect transport infrastructure.

In respect of non-residential developments, saved policy TM11 states that the Council will:

• Seek a lower level of parking in locations with good accessibility (such as city and town centres and public transport nodes) than that set in the council’s adopted standards (set out in appendix c of this plan); except for retail and leisure developments in town centres and edge of centre sites where additional parking above maximum will be permitted provided that this will be made available for general short stay public parking; • Only consider allowing provision up to the full standard where the developer can demonstrate a need for parking to that level; and • Only consider allowing provision above the standard where the developer can demonstrate that a higher level of parking is needed and has taken other measures to minimise the need for parking.

Saved policy TM18 seeks new developments to provide appropriate parking provision for people with disabilities and others with special needs such as parents with young children and the elderly.

Saved policy TM19 seeks provision of parking space for cycles in development schemes to the minimum levels.

Saved policy D1 deals with design, and seeks all development proposals to make a positive contribution to the environment and quality of life through high quality design, layout and landscaping. In particular they should:

• Be well related to the existing character of the locality in terms of design, scale, massing, height and materials; • Provide a quality setting for the development; • Retain, and where appropriate enhance, important ecological and landscape features; • Not intrude on to prominent skylines;

• Relate to existing natural and built features, landmarks or views that contribute to the area; • Incorporate adequate design arrangements for servicing, waste handling, recycling and storage; • Allow for flexibility to adapt to meet changing needs and circumstances and provide for access for those with physical disabilities; • Not harm the amenity of prospective or existing users and residents. Of note, saved policy D1 states that good contemporary design which is sympathetic or complementary to its setting will be welcomed.

Saved policy D3 seeks development proposals to ensure adequate means of access for people with physical disabilities to buildings and their curtilages.

Saved policy D4 seeks development proposals to be designed to ensure a safe and secure environment and reduce opportunities for crime.

Saved policy D5 seeks development proposals to be designed so that important existing and new landscape features are incorporated as an integral part of the proposal. In particular proposals should:

• Conserve and integrate existing natural features; • Use new landscape features such as planting, shelter belts, green wedges and

green corridors to integrate development with the wider landscape;

• Integrate new and existing development at the boundaries through the continuity of landscape; • Create areas of habitat value from additional planting rather than purely decorative planting; • Where appropriate developers will be required to make arrangements for adequate maintenance of any new provision.

Saved policy D13 deals with the development of new shop front units, which will only be permitted if their design is consistent with the character and scale of the existing building, in terms of quality and its use of materials, and that the shop fascia is designed in scale, in its depth and width, with the façade and street scene of which it forms part.

Saved policy D14 seeks new external lighting to minimise light pollution from glare and spillage.

Saved policy BH4A states that proposals for development will not be permitted if they would harm the setting of a listed building.

Saved policy BH7 states that development within or which would affect the setting of conservation areas will be expected to be of the highest standards of design and to preserve or enhance the character or appearance of the conservation area.

Saved policy S/BH14 is a policy specific to the Saltaire World Heritage Site, setting out the presumption in favour of the preservation of the World Heritage Site and its setting. Development which would adversely affect the character, appearance, setting or views into or out of the World Heritage Site will not be permitted. Within the buffer zone (as defined by the Proposals Maps), development which would be likely to adversely affect views into or out of the World Heritage Site will only be permitted where a suitable programme of mitigation is proposed as part of the application.

Emerging Policy

At the time of writing, the Bradford Core Strategy development plan document (DPD) is currently at the Examination stage and, as such, can be attributed considerable weight in the decision-making process. The site-specific Land Allocations DPD and Proposals Maps have not yet been advanced.

Draft Strategic Core Policy 1 (SC1) seeks to (amongst other things) enhance the role of Bradford District within the wider Leeds City Region as an important business location with a good supply of labour, housing, services including retail and associated community provision. Draft policy EC5 seeks to sustain and enhance the vitality and viability of a network and hierarchy of centres in the Bradford District by ensuring that new, appropriate scale of retail, leisure and office development is encouraged in sequentially preferable locations. It goes on to say that the Local Centres within urban areas and villages should be the focus for appropriately-sized local supermarkets and a variety of small shops of a local nature to meet people’s day to day needs and minimise their need to travel.

Draft policy P1 stresses a presumption in favour of sustainable development, and states that the Council will always work proactively with applicants jointly to find solutions which mean that proposals can be approved wherever possible, and to secure development that improves the economic, social and environmental conditions in the Bradford District and wider Leeds City Region.

Draft policy TR1 aims to reduce the demand for travel, encourage and facilitate the use of sustainable travel modes, limit traffic growth, reduce congestion and improve journey time reliability.

Draft policy TR2 seeks to manage car parking to help manage travel demand, support the use of sustainable travel modes, meet the needs of disabled and other groups whilst improving quality of place. It also requires new developments to take a design-led approach to parking which is well integrated within the overall layout so that it supports the street scene and local character, and creates a safe and pleasant environment even in parking areas.

Draft policy EN3 relates to heritage, and seeks to preserve, protect and enhance the character, appearance, archaeological and historic value and significance of the

District’s designated and undesignated heritage assets and their settings. This will be achieved through (amongst other things):

• Ensuring the protection, management and enhancement of the Outstanding Universal Value (OUV) of the Saltaire World Heritage Site through the implementation of the Saltaire World Heritage Site Management Plan and associated documents; • Requiring development proposals within the boundary of Saltaire World Heritage Site Saltaire or within its Buffer Zone to demonstrate that they will conserve those elements which contribute towards its OUV, including its setting and key views; • Requiring that all proposals for development conserve and where appropriate, enhance the heritage significance and setting of Bradford’s heritage assets, especially those elements which contribute to the distinctive character of the District, including requiring proposals to respect and reinforce the distinctive character of the part of the District within which they are located. Account must be taken of guidance adopted by the Council, particularly Conservation Area Appraisals and Reviews, the Shopfront Design and Security Guides and other guidance documents.

Draft policy DS1 seeks proposals to achieve good design, setting out a number of design principles including taking opportunities to improve places, including transforming areas which have the potential for change and supporting the regeneration aspirations of the district.

Draft policy DS3 seeks development proposals to create a strong sense of place and be appropriate to their context in terms of layout, scale, density, details and materials. In particular designs should:

• A. Respond to the existing positive patterns of development which contribute to the character of the area, or be based on otherwise strong ideas. Innovative and contemporary approaches to design which respond to and complement the local context will be supported; • B. Retain and integrate existing built features which could contribute to creating a distinctive identity; • C. Take opportunities to create new public spaces, landmark buildings, landscape features (including street trees), views and public art as an integral part of the design; • D. Provide variety on larger developments with different character areas and a hierarchy of street types; • E. Create attractive streetscapes and spaces which are defined and animated by the layout, scale and appearance of the buildings; • F. Display architectural quality and create original architecture or tailor standard solutions to the site;

• G. Contribute positively to skylines through the roofscape of new development; • H. Ensure that tall buildings are appropriate to their location, are of high quality design and that they do not detract from key views or heritage assets or create unacceptable local environmental conditions; • I. Design shop front units which are consistent with the character, scale, quality and materials of the existing façade, building and street scene of which they form part.

Draft policy DS5 seeks development proposals to make a positive contribution to people’s lives through high quality, inclusive design. In particular they should:

• A. Be designed to ensure a safe and secure environment and reduce the opportunities for crime; • B. Allow flexibility to adapt to changing needs and circumstances; • C. Be designed to ensure buildings and places provide easy access for all,

including those with physical disabilities;

• D. Encourage social interaction and where appropriate provide opportunities for members of the community to meet and come into contact with each other; • E. Include appropriate design arrangements for servicing, waste handling, recycling and storage; • F. Not harm the amenity of existing or prospective users and residents.

Other relevant guidance

Saltaire World Heritage Site Management Plan (December 2014)

The Management Plan of the Saltaire World Heritage Site (WHS) was published in December 2014 as a partnership document to set out a strategic framework for the co- ordination of management and monitoring of the WHS. The Plan is not a statutory document but informs and responds to other policies relating to the area. Appendix 7 of the Management Plan is an evaluation survey of the WHS setting and includes a key view analysis, identifies key detractor buildings/structures, important approaches/gateways and the site’s immediate setting split into zones.

Saltaire Conservation Area Assessment (Bradford Council, March 2004)

The Saltaire Conservation Area Assessment contains a detailed analysis of the character of the conservation area and describes its special character and interest.

Saltaire Conservation Area Appraisal (Bradford Council, July 2006)

The Saltaire Conservation Area Appraisal was published in 2006 and forms part of the Evidence Base for the Local Plan. It describes the character of the conservation area, the changes that have taken place in the conservation area over recent years and provides management proposals to conserve and enhance the area's special character and improve future decision making.

Policy summary

The key policy issues for the proposals are considered to be the principle of development (including retail issues), heritage, highways impact, residential amenity and design. These issues, along with other material considerations, will be considered in the supporting documents and the following chapters of this Statement.

The Planning Case

As set out in Section 38 of the Town and Country Planning Act 1990, the starting point for the consideration of any planning application is the development plan, which shall take precedence in decision making unless other material considerations dictate otherwise.

The following issues have been identified as being key to the consideration of this resubmitted planning application and are considered in detail below:

• Principle of Development • Heritage issues • Design • Highways and Transport • Residential amenity • Other material considerations

Principle of Development

The proposal is for a small-scale convenience store to serve the resident population at Saltaire. This would form part of a network of stores within the Shipley area, meeting top-up shopping requirements.

Saltaire Local Centre

The site lies within the defined Local Centre of Saltaire, as identified in the ‘Proposals for the Shipley Constituency’ section of the adopted RUDP and as shown on the extract of the Local Centre map of Saltaire as below:

The relevant saved retail policy contained within the RUDP is CR1A. Saved policy CR1A is permissive of retail development within local centres, provided it is of a scale which is compatible with the role of the centre and the catchment it serves, and would be unlikely to have an adverse effect on the vitality and viability of any equivalent or higher order centre.

Draft policy EC5 of the emerging Core Strategy is relevant in that it seeks to ensure that new retail development is encouraged in sequentially preferable locations, with Local Centres being the focus for appropriately-sized local supermarkets.

In assessing applications for main town centre uses (including retail), the Framework requires applicants to apply the sequential approach for proposals that are not in an existing centre and are not in accordance with an up-to-date Local Plan. A sequential assessment is therefore not required in this instance, as the proposals are within an existing Local Centre and the principle of retail development is acceptable in this location.

Previously-developed land

The site relates to an existing hand car wash facility, which is wholly previously- developed in nature. Indeed, the planning history shows that the site has been in commercial use for a number of years, and that the LPA have previously accepted the principle of A1 uses at this location. Paragraphs 17 and 111 of the Framework identify previously-developed land as the first priority for redevelopment and it is thus considered that the proposed development is in accordance with this requirement.

Sustainable location

The accompanying Transport Statement, prepared by Vectos, demonstrates that the site is accessible by foot, with the site being well-served by existing footpaths, and by bicycle. Its location on Bingley Road also means it is accessible by bus, with services 622, 623, 662 and 760 operating in the vicinity of the site.

The site is in a highly-accessible location via sustainable modes of transport, which is encouraged by Section 4 of the Framework.

Summary

In this instance, it is clear that the site lies within an existing Local Centre within an urban area, which provides a mix of community, social and commercial facilities for the surrounding resident population.

The site is also considered to be in a sustainable location, accessible by non-car modes and on previously-developed land, which is the under paragraphs 17 and 111 of the Framework.

In this regard, therefore, the principle of retail development within this location can be found to be acceptable in terms of relevant national and local retail planning policy.

Heritage Issues

The accompanying Heritage Statement, prepared by Turley Heritage, identifies that the boundary of the Saltaire World Heritage Site (WHS) runs along Bingley Road. The WHS is on the north side of the road, and the site sits just outside the WHS on the south side of Bingley Road. The site is, however, within the buffer zone of the WHS.

The Saltaire Conservation Area follows a similar boundary of the WHS, with the site sitting just outside it.

The Heritage Statement identifies the following listed buildings (all Grade II Listed) as being within the context of the application site:

• Numbers 50-64 Victoria Road (20m north of the site), including railings and piers to Bingley Road; • Numbers 24-49 Victoria Road (20m north west of the site), including wall, piers and railing to south, and wall and piers to north; • 2-18 George Street and 49 Bingley Road (60m north west of the site); • 51-97 Bingley Road (80m west of the site); and, • Sir Titus Salt’s Hospital including wall and piers to Saltaire Road (115m north of the site).

It is clear from the above that the settings of these heritage assets are a key consideration in the assessment of the proposed development.

The Heritage Statement:

• identifies any heritage assets proximate to the application site that may be affected by the proposed development; • provides an overview of the historic development of the site and the surrounding area; • provides assessments of significance for the identified designated heritage assets that may be affected by the proposed development; and • makes an assessment of the impact of the proposed development on the significance of the identified designated heritage assets.

The Heritage Statement considers that the current appearance of the application site is poor and negatively contrasts with the architectural quality and harmonious composition of the Saltaire model village. During the consideration of the previous application, officers agreed that the site in its current form has a negative impact upon the WHS and Conservation Area.

The Heritage Statement considers the following:

• the position of the proposed new building makes for an appropriate transition between the building line of the high street to the west and residential properties to the east, which are set further back within their plots; • the proposal responds to the surrounding architectural and historic context and includes elements of the prevailing architectural style whilst providing a contemporary addition to the streetscape; • this careful consideration of the historic context responds to the architectural character of the World Heritage Site, whilst clearly distinguishing the proposal as part of the development along the south side of Bingley Road; • the simple, contemporary design of the proposed development distinguishes it from the 19th century buildings, thereby having no adverse impact upon the Outstanding Universal Value of the World Heritage Site; • no adverse impact is predicted on the key views identified in the World Heritage Site Management Plan and other views, including the approach from the east along Bingley Road and from the south section of Victoria Road, are enhanced through the removal of a ‘key detractor’ (ie the existing hand car wash); • the proposed development would have a positive impact on the significance of listed buildings through the removal of a ‘key detractor’ from their setting; the proposed development will sustain the significance of the Saltaire World Heritage Site, the Saltaire Conservation Area, and the listed buildings within the vicinity of the site.

Section 12 of the Framework provides guidance on the approach to be taken towards conserving and enhancing the historic environment, with particular importance placed on the desirability of new development making a positive contribution to local character and distinctiveness.

RUDP saved policies UDP3, BH4A and BH7 deal with heritage issues, with policy S/BH14 specific to the Saltaire World Heritage Site, setting out the presumption in favour of the preservation of the World Heritage Site and its setting. Emerging Core Strategy policy EN3 and the supplementary planning guidance contained in the Saltaire World Heritage Site Management Plan, the Saltaire Conservation Area Assessment and the Saltaire Conservation Area Appraisal also deal with heritage in detail.

Given the above, it is considered that the proposed development is in accordance with relevant national and local heritage policy.

Design

The design of the proposed scheme is strongly linked to the heritage considerations, as set out above. The accompanying Design and Access Statement, assesses the design principles of the proposed scheme in greater detail.

The current site is used as a hand car wash, with a previous use as a petrol filling station. The site includes a one-storey small office and a double height garage, forecourt with canopy roof and metal hoarding surrounding most of the site. The site is considered to impact negatively upon the attractive high street, thus offering a poor first impression to visitors.

The development proposed in this application is similar to that previously approved.

Section 7 of the Framework sets out the approach to design in development proposals, emphasising that good design is a key aspect of sustainable development and should contribute positively to making places better for people.

RUDP saved policies UDP3, D1 and D13 and emerging Core Strategy policies DS1, DS3 and DS5 all also promote a high quality design.

In summary, the proposed layout, scale, form and appearance of the proposals have been informed by relevant national and local planning policy and design guidance, detailed analysis of the site and its context and consultation with stakeholders.

In light of the site’s current use and the approval of the previous application, it is considered that the proposed building is considered to be of a scale, form and architectural design which is appropriate for its location. It will significantly improve the overall appearance of the area in accordance with relevant national and local planning policy.

Highways and Transportation

The accompanying Transport Statement, prepared by Vectos, makes an assessment of the accessibility of the application site and considers the potential traffic impact of the development proposals.

The Transport Statement considers the following:

• There are no existing safety concerns that would be exacerbated by the development proposals; • The site is well-served by existing footpath networks and bus services in particular; • A significant proportion of vehicular trips are already on the network, and the development would generate in the region of 31 new two‐way vehicle trips during the weekday peak period and 25 during the weekend peak period. This is not considered to result in a material impact upon the operation of the local highway network.

The development proposed in this resubmitted application seeks to respond to the comment raised by the Planning Officer during the determination period of the previous application in that there is a ‘need to reconcile parking, store servicing and safe pedestrian access.’ Our response to this comment is made as follows:

• The proposed car parking provision (14 spaces) is considered more than sufficient to serve the store. • Servicing/deliveries are now proposed to be taken from a lay-by to the front of the store. The Transport Statement details that delivery vehicles will enter the site from the east and then leave the store to the west. • The Transport Statement demonstrates that a delivery vehicle can be adequately accommodated within the delivery bay with no detriment to passing traffic along Bingley Road. • The delivery bay will be asphalt surfaced and feature a continuation of the existing kerb arrangement facing Bingley Road to clearly delineate the footway from the loading bay. ‘Loading Only’ markings will be present along with double yellow lines to prevent parking within the delivery area.

Section 4 of the Framework seeks to maximise opportunities for using sustainable modes of transport, noting that developments should only be refused on highway grounds where the residual cumulative impacts of development are severe. RUDP saved policies TM1, TM2, TM11, TM18 and TM19 and emerging Core Strategy policies TR1 and TR2 seek developments to have appropriate access and vehicle parking.

In light of the above, the Transport Statement concludes that there are no significant traffic or transportation effects envisaged. Taking into account the site’s existing use and highly sustainable location, it is considered that the proposed development is in accordance with relevant national and local transport policy.

Residential Amenity

The nearest residential dwellings to the application site are the properties along the northern side of Grosvenor Avenue (nos. 1, 3, 5 and 7), which are separated from the site by the existing overflow car park for the Saltaire Medical Practice, and the properties on the east side of Grosvenor Road at nos. 2 and 4.

On the opposite side of Bingley Road, the residential properties at 49, 50 and 51 Victoria Road look southwards to the application site.

The key considerations relating to residential amenity are the potential impact of the proposals on local residents, principally from external plant noise, deliveries and car movements.

A Noise Impact Assessment (prepared by ENS) accompanies the planning application, and identifies the following:

• The control of noise associated with any fixed external refrigeration and air conditioning plant can be achieved with the judicious selection of refrigeration plant and/or standard noise mitigation techniques;

• In terms of noise resulting from the expected traffic visiting the application site, it is considered that the additional traffic generated by the proposed Sainsbury’s convenience store will be negligible in comparison and, as a consequence, have no significant noise impact; • In respect of noise associated with the proposed customer car park, the associated noise is negligible and will have no significant noise impact. • It is concluded that the proposed servicing regime, development-led traffic and the customer car park will have no significant noise impact on the surrounding residential dwellings.

The Framework, at paragraph 66, expects applicants to work closely with those directly affected by their proposals to evolve designs that take account of the views of the community, with proposals that can demonstrate this being looked on more favourably.

RUDP saved policies UR3 and CT6 seek developments to protect amenity, with D14 requiring new development to minimise light pollution. Emerging Core Strategy policy DS5 seek development proposals to make a positive contribution to people’s lives through high quality, inclusive design, in particular to not harm the amenity of existing or prospective users and residents.

It is, therefore, considered that the proposed scheme is in compliance with national and local planning policy relating to safeguarding residential amenity and the proposed development will not adversely impact upon the nearest receptors.

Other material considerations

Sustainability

As set out in the Design and Access Statement, the proposed new build store will utilise modern building design, techniques and materials to ensure a high quality of design and minimise use of resources and reduce energy requirements.

Importantly, the scheme will see a brownfield site within an existing Local Centre redeveloped to meet the top up shopping requirements of the local resident population in a highly accessible location.

The application is considered compliant with the sustainability objectives of the Framework.

Ground conditions

A Phase I & II Geo-Environmental Assessment Report has been prepared by EPS and accompanies this planning application, given the site’s historic use as a petrol filling station.

The report presents the findings of a Phase I & II Geo-Environmental Investigation undertaken to identify the presence, nature and extent of contaminants arising from potential sources of contamination at the site as well as providing an initial geotechnical appraisal of the ground conditions encountered.

The investigation did not encounter any physical evidence of ground contamination with regard to the old fuel infrastructure, no petrol vapours were detected during monitoring of standpipes installed within the boreholes and there is no evidence that any fuel leaks have occurred.

The report recommends that the redundant fuel tanks are removed or, if left in place, it should be ensured that they are all appropriately decommissioned.

In light of the findings of the report, it is considered that there are no ground contamination issues relating to the application site.

Trees and landscaping

It is acknowledged that some low-quality trees and shrubs exist within the rear (south) of the application site, adjacent to the boundary wall. These are proposed to be removed as part of the application to enable proposed development to go ahead.

Replacement planting has been considered, although there is limited space for the planting of trees within the site. As such, it is considered that low-level shrubs along the boundary, or simply high-quality boundary treatment, would be most meaningful in terms of visual amenity.

The Proposed Landscape Plan, which accompanies this resubmitted application, shows the hard and soft landscaping which is proposed to complement the scheme. This includes:

• concrete paving flags; • a tarmac finish to the car park; • pitched-face random coursed stone walls to the east and west of the site (with hedging above the eastern wall); and • contrasting permeable block paving.

It is considered that this will add visual variety to the site while retaining legibility and integrating the proposals into the existing environment. Summary and Conclusions

This Planning Statement has been prepared in support of a planning application for the demolition of the existing hand car wash buildings and structures (currently a sui generis use) and the erection of a new Local convenience store (Use Class A1) with a gross floor area of 390 sq m, along with associated access, 14 car parking spaces and landscaping at Qasim’s Hand Car Wash, Bingley Road, Saltaire.

The planning application is a resubmission of application similar to that which was previously approved for Sainsburys in 2016.

It has been ensured that the planning application as follows:

• The visual appearance of the building has been revised to respond to its surroundings; • More details have been provided on the materials palette; • The building has been re-positioned to enclose the view up from Victoria Road; • Hard and soft landscaping details have been provided to demonstrate an enhancement of the existing application site; • The roof has been designed to incorporate gables and reflect the local vernacular; • Vehicle parking, store servicing and safe pedestrian access have been considered in detail.

The proposals will serve a localised catchment area and provide top-up shopping facilities for the resident population, providing an important retail use within the designated Local Centre of Saltaire.

The proposed development will provide up to 20 jobs for local people and will offer a significant visual improvement of a site adjacent to the World Heritage Site.

The principle of the proposed development is considered to be acceptable, as the site constitutes previously- developed land within an existing Local Centre and is in a sustainable location with good connectivity to non-car modes. A convenience retail use is therefore considered to be an appropriate use at this location and a sequential test is not necessary to be applied in this instance.

The proposed scheme has taken into account the important heritage context of the site and has been designed to respond positively to the site’s prominent location and to enhance its overall appearance. It is considered that the design of the proposed development will sustain the significance of the Saltaire World Heritage Site, the Saltaire Conservation Area and the nearby listed buildings.

In respect of highways and transportation, there are no highway safety concerns relating to the proposed development, the proposals are not expected to result in a material impact upon the operation of the local highway network and the proposed car parking provision is considered more than sufficient to serve the store.

The proposals are not considered to give rise to any adverse impacts upon residential amenity through noise.

Other material considerations, such as trees and landscaping and ground conditions, have also been deemed to be acceptable for the proposed development.

In summary, the proposals for a new Local convenience store in this location will provide top-up shopping facilities for the resident population, additional local jobs and constitute sustainable development. It is thus considered that the proposals are in accordance with relevant national and local planning policy and guidance.

The fact that the proposal is similar to that previously approved also gives grounds for this application to be acceptable.

Heritage Statement Introduction

This Heritage Statement has been prepared by C49 Architecture Ltd on behalf of Eco Developments in support of a full planning application for the erection of a new Local convenience store (the “Proposed Development”) at Qasim’s Hand Car Wash, Bingley Road, Saltaire (‘the Application Site’) similar to that previously approved.

The Application Site is located immediately south of the Saltaire World Heritage Site (WHS) within the buffer zone. The south boundary of the WHS runs along Bingley Road. WHSs are places of Outstanding Universal Value (OUV) to humanity and are inscribed by the United Nations Educational, Scientific and Cultural Organisation (UNESCO). The Saltaire Conservation Area has a similar boundary to the Saltaire WHS and contains a high number of listed buildings, some of which are within the vicinity of the Site. The significance of these designated heritage assets is described in Appendix 1.

The National Planning Policy Framework (NPPF) 2012 provides the Government’s national planning policy on the conservation of the historic environment. In respect of information requirements for applications, it sets out that:

“In determining applications, local planning authorities should require an applicant to describe the significance of any heritage assets affected, including any contribution made by their setting. The level of detail should be proportionate to the assets’ importance and no more than is sufficient to understand the potential impact of the proposal on their significance.1”

To comply with these requirements, Section 2 of this statement firstly identifies the relevant heritage assets proximate to the Application Site that may be affected by the Proposed Development.

This is followed by Section 3 which provides an overview of the historic development of the Application Site and the surrounding area. Section 4 provides assessments of significance for the identified designated heritage assets that may be affected by the Proposed Development; proportionate to both the importance of the asset and the likely impacts. This assessment is undertaken on the basis of published information, archival research and on-site visual survey.

Section 5 provides an assessment of the impact of the Proposed Development on the significance of the identified designated heritage assets, in light of the statutory duties of the Planning (Listed Buildings and Conservation Areas) Act 1990, national policy set out in the NPPF, and local planning policy for the historic environment (set out in detail at Appendix 2).

Heritage Assets

The NPPF (2012) defines a heritage asset as:

“A building, monument, site, place, area or landscape identified as having a degree of significance meriting consideration in planning decisions, because of its heritage interest.2”

There are no heritage assets within the boundary of the Application Site. Any effects arising from the Proposed Development on built heritage will therefore be indirect in nature, having potential to affect the significance of the identified assets through change within their setting, rather any direct physical effects on fabric.

Designated Heritage Assets

Designated heritage assets are those which possess a level of heritage interest that justifies designation and are then subject to particular procedures in planning decisions that involve them. There is a high concentration of designated heritage assets within the WHS itself and many are protected by more than one designation; for example listed buildings within the Saltaire Conservation Area and WHS. Those which are considered to be potentially affected by the proposed development are listed in this section.

World Heritage Site

WHSs are places of Outstanding Universal Value (OUV) to humanity, as set out in the 1972 UNESCO Convention Concerning the Protection of the World Cultural and Natural Heritage (the World Heritage Convention).

Listed Buildings

The nature of the Proposed Development and the intervening townscape and topography, when considered together with the individual significance of approximate listed buildings, ensures that any potential effects of the Proposed Development will be limited to the effect on the significance of the following listed buildings through development within their setting. All are within the WHS.

Name/Address Date of Inscription Grade Saltaire 2001 N/A Location/Approximate distance Date of Name/Address Grade from the Site Designation Numbers 50-64 [Victoria Road] including railings 22 November 20m north of the Site. II and piers to Bingley Road 1966 22 November Numbers 24-49 [Victoria 20m north west of the II 1966

Location/Approximate distance from Name/Address Date of Designation Grade the Site Road] including wall, piers and railing to Site. south, and wall and piers to north 7 March 1985 2-18 George Street 49, Bingley Road 60m north west of the Site. (amended 12 May II 1998) 80m west of the Site, along Bingley 51-97 Bingley Road 7 March 1985 II Road. Sir Titus Salt’s Hospital including wall 115m north of the Site, beyond 7 March 1985 II and piers to Saltaire Road Numbers 50-64 Victorian Road.

Conservation Area

The Saltaire Conservation Area has a similar boundary to the Saltaire WHS with some minor variations. Similarly to the WHS, the conservation area’s southern boundary is also along Bingley Street, with the Site falling outside the Conservation Area. A plan of the Conservation Area, including the WHS boundary, is contained within Appendix 3.

Name/Address Date of Designation Grade Saltaire 1971 N/A

The Application Site and Surrounding Area

The following section provides an overview of the history and development of the Application Site and the surrounding area.

The Application Site is a hand-car wash with a canopy, kiosk and forecourt located on a corner plot at the junction of Bingley Road and Grosvenor Road, on the boundary of the Saltaire WHS.

Figure 3.1: Google Earth view of the Site and context (2014)

Directly north of the Application Site is the Saltaire WHS and Saltaire Conservation Area, the southern boundaries of which run along Bingley Road. Saltaire was developed with a consistent palette of materials and design philosophy within a short period of time. As a result there are buildings of a similar date (late 19th century) and of a harmonious architectural style on the north of Bingley Road. Outside of the WHS the buildings are more varied in their date and style; from the Victorian to late 20th century. The Application Site marks the change along Bingley Road from residential to commercial use, with residential land use to the north, east and south and a medical centre and local high street to the west.

The Application Site is on the south side of the River Aire valley. The land to the north falls steeply down to the River Aire. Immediately south of the Application Site, mid-20th century residential development sits prominently above Bingley Road due to the area’s topography. The rears of the buildings face the WHS. Their form, materials and siting indicate a different character area to the character of the model village, but are of low significance being typical of mid-20th century semi-detached properties seen elsewhere in West Yorkshire.

Figure 3.2: The Site from Bingley Road, looking south

Historic Development

Historic Map Regression shows that the Application Site remained undeveloped until the 1960s. The 1968 Ordnance Survey Map (Appendix 4) shows that by this date, a structure with a similar footprint and location to the existing canopy was extant.

The surrounding area developed from the late-19th century. The 1852 Ordnance Survey Map shows the area to have been rural in the mid-19th century, although the transport infrastructure was in place. The model village of Saltaire developed from the 1850s to 1870s and by the 1890 Ordnance Survey Map survey, the full extent of the model village was present. Whilst the area surrounding the model village developed over the next century, its rigid grid-pattern remained distinct from later phases of development surrounding the village.

Significance of the Heritage Assets

Significance and Special Interest

The NPPF defines the significance of a heritage asset as:

“The value of a heritage asset to this and future generations because of its heritage interest. That interest may be archaeological, architectural, artistic or historic. Significance derives not only from a heritage asset’s physical presence, but also from its setting.3”

WHS are inscribed by the United Nations Educational, Scientific and Cultural Organisation (UNESCO) as a place of special cultural or physical significance. Nominated sites must be of "Outstanding Universal Value" and meet at least one of the ten associated criteria. Each WHS has a Statement of Outstanding Universal Value, approved by the World Heritage Committee, which sets out the significance of the WHS and the criteria against which it was inscribed.

Listed buildings are defined as designated heritage assets that hold architectural or historic interest. The principles of selection for listed buildings are published by the Department of Culture, Media and Sport and supported by Historic England’s Listing Selection Guides for each building type.

Conservation areas are designated on the basis of their special architectural or historic interest, the character and appearance of which it is desirable to preserve or enhance. Historic England has revised and republished its guidance in respect of conservation areas which provides a framework for the appraisal and assessment of the special interest and significance of a conservation area.

Setting

The setting of a heritage asset is defined by the NPPF to comprise:

“The surroundings in which a heritage asset is experienced. Its extent is not fixed and may change as the asset and its surroundings evolve. Elements of setting may make a positive or negative contribution to the significance of an asset, may affect the ability to appreciate that significance or may be neutral.4”

Historic England has published guidance on ‘The Setting of Heritage Assets,’ providing detail on understanding setting and the associated assessment of the impact of any changes. The guidance confirms that setting is not a heritage asset, nor a heritage designation, rather its importance lies in what it contributes to the significance of the relevant heritage asset itself.

The assessment of significance includes each asset’s setting in reference to Historic England’s guidance and comprises:

• The asset’s physical surroundings; • Experience of the asset; and • An asset’s associative attributes.

These attributes have informed the following assessments of the contribution of setting to the significance of the WHS, conservation area and listed buildings.

Assessment

The following assessments of significance are proportionate to both the significance of the relevant heritage asset, the nature of the proposed development and the likely magnitude and form of effect. As previously stated, any effect arising from the proposed development will be indirect in nature, arising from impact on elements of setting that may or may not contribute to the significance of the heritage assets.

World Heritage Site

Table 4.1: Google Earth View of the WHS from the south

Significance

The Statement of Outstanding Universal Value for the Saltaire WHS was revised and approved by the World Heritage Committee, UNESCO in 2010.6 The WHS contains the listed buildings and conservation area identified in Section 2 and the following statement is therefore also relevant to understanding the significance of those designated assets. The full Statement of Outstanding Universal Value is included in Appendix 1:

“Saltaire is an exceptionally complete and well preserved industrial village of the second half of the 19th century, located on the river Aire. Its textile mills, public buildings, and workers’ housing are built in a harmonious style of high architectural quality and the urban plan survives intact, giving a vivid impression of the philanthropic approach to industrial management.

The industrial village of Saltaire is an outstanding example of mid-19th century philanthropic paternalism, which had a profound influence on developments in industrial social welfare and urban planning in the United Kingdom and beyond. The architectural and engineering quality of the complete ensemble, comprising the exceptionally large and unified Salt’s Mill buildings and the New Mill; the hierarchical employees’ housing, the Dining Room, Congregational Church, Almshouses, Hospital, School, Institute, and Roberts Park, make it outstanding by comparison with other complexes of this type. Saltaire provided the model for similar developments, both in the United Kingdom and elsewhere including in the USA and at Crespi d’Adda in Italy. The town planning and social welfare ideas manifested in Saltaire were influential in the 19th century garden city movement in the United Kingdom and ultimately internationally. Saltaire testifies to the pride and power of basic industries such as textiles for the economy of Great Britain and the world in the 19th and early 20th centuries.”

The Saltaire WHS was inscribed against the following two cultural criteria and was found to meet the necessary tests of Integrity and Authenticity:

Saltaire is an outstanding and well preserved example of a mid-19th century industrial town, the concept of which was to exert a major influence on the development of the “garden city” movement.

The layout and architecture of Saltaire admirably reflect mid-19th century philanthropic paternalism, as well as the important role played by the textile industry in economic and social development. The UNESCO inscription text sets out five attributes of the WHS’s Outstanding Universal Value. The full text is included in Appendix 1 but in summary they are:

Model Village Ensemble

Saltaire is an exceptionally complete and well-preserved model village, in terms of its scale and the range of the public buildings and social welfare facilities that Salt provided. The complete range of housing types and sizes Salt supplied to meet the varying needs of his workers can still be seen...

Owing to the remoteness of his village’s situation and his concern for the welfare of his workforce, Salt provided numerous facilities to meet the practical needs of his workforce including the almshouses and hospital.

Urban and Industrial Plan

The form and design of Saltaire’s industrial and urban plan is exceptionally well preserved and is an outstanding demonstration of mid-19th century town planning with distinct zoning of land uses...

Victoria Road, on a north-south axis, forms the spine of the village’s layout connecting its principal buildings and open spaces. At its southern terminus are the Almshouses and Hospital, grouped around Alexandra Square.

Design Quality

Saltaire comprises of a harmonious ensemble of buildings of high architectural quality executed in a range of Italianate styles, designed by Lockwood and Mawson The workers’ housing is mostly in the form of symmetrical two-storey terraced rows with larger gable-fronted or three-storey end and mid-terrace properties providing relief. A hierarchy of housing types is expressed through the size and level of architectural detailing of each group of dwellings, reflecting the social status of their intended occupants. The harmonious designs are underpinned by a limited palette of materials commonly used in the locality including local stone for walling and paving, natural Welsh slate for roofing, timber for windows and doors and iron for rainwater goods and railings.

Valley location, topography and setting

The Aire Valley presented many advantages to Sir Titus Salt when he was seeking a location for his new model village.

Saltaire is testament to the architects’ skill in overcoming and exploiting the site’s topography. The village’s grid layout allows for uninterrupted views out of the village to which the valley sides form the backdrop. Most significant amongst these designed views are those north along Victoria Road and George Street.

Although later development has encroached upon Saltaire, significant remnants of the rural Aire valley landscape remain, most notably to the north.

Communal Function

Saltaire’s continued use and function as a thriving community supports its conservation and understanding of its Outstanding Universal Value.

Setting

(a) The WHS has an extensive setting, as demonstrated by its buffer zone of 1,078 hectares. The way it is experienced therefore varies across a wide area. This report focuses on the immediate setting of the WHS which it is considered would be affected by the proposals. (b) Saltaire WHS is located in the River Aire valley. The rural valley location, its topography and transport connections were key economic and social factors in Titus Salt selecting the location for Saltaire. There is therefore a functional relationship between the WHS and the surrounding landscape. Some of the rural setting remains to the north, the area south and east of the WHS are dominated by built development. (c) Bingley Road is an important approach from both the east and west. There are mixed land uses along the road with a local high street in the centre of Saltaire. There is a visual contrast between the consistently high architectural quality of the WHS and development on the south side of Bingley Road.

(d) A full key view analysis is included within Appendix 7 of the Management Plan; “Setting Survey Evaluation”. There is an axial key view north and south along Victoria Road (View 11).

Listed Buildings All of the listed buildings identified in this Assessment form part of the Saltaire model village, designed by Lockwood and Mawson and have group value as elements of that ensemble.

The Almshouses and Hospital

The following listed buildings comprise the Saltaire almshouses and hospital; an important group within the Saltaire model village:

(a) Numbers 50-64 [Victoria Road] including railings and piers to Bingley Road,

(b) Numbers 24-49 [Victoria Road] including wall, piers and railings to south, and wall and piers to north, and

(c) Sir Titus Salt’s Hospital including wall and piers to Saltaire Road, Victoria Road.

The buildings were completed c1868 and are well conserved. The hospital and almshouses are unified in their Italianate style. Their facades have been skilfully composed to be balanced, without being severely symmetrical, and to be ordered whilst being well-articulated to avoid monotony. The provision of a hospital, dispensary and almshouses to support the aged, sick and infirm and the quality of their architecture illustrates Sir Titus Salt’s social philanthropy. The former use of the hospital and association with the almshouses remains legible.

The buildings are aligned north-south along Victoria Road, stepping down the valley side, with the terraces of Almshouses wrapping onto Bingley Road to have a presence onto both streets. The western terrace forms a U- shape around a garden.

As previously mentioned, there are key views experienced looking north along Victoria Road, taking in the architecture of the almshouses and hospital, and the surrounding landscape. Whilst, the almshouses can be experienced from Bingley Road, the full extent and architectural character of the ensemble is best appreciated from Victoria Road itself.

2-18 George Street 49 Bingley Road

The terrace is a good example of a late Victorian terrace which has primarily been listed for its group value as part of the Saltaire model village, designed by Lockwood and Mawson. It has particular historic interest for the inclusion of over-lookers housing, which formed taller and larger housing within the terrace and were an important part of the urban planning for Saltaire.

The terrace is aligned north-south, stepping down the valley side, with a shop front and accommodation over, fronting onto Bingley Road. Similarly to the almshouses, the architectural character of the asset can only be fully appreciated by looking along the street. There is a designed view northwards down George Street which terminates in the Saltaire United Reformed Church bell tower.

51-97 Bingley Road

The terrace is a good example of a late Victorian commercial terrace in an Italianate style which has similarly primarily been listed for its group value as part of the Saltaire model village, designed by Lockwood and Mawson. It is notable for its long length, articulation and the high level of architectural features such as shopfronts and timber sash windows which have either been conserved or reinstated.

The terrace is aligned east-west and fronts onto Bingley Road. The asset is primarily experienced from this busy environment. The straight road allows the long length and rhythm of the terrace to be appreciated.

Conservation Area

The Saltaire Conservation Area encapsulates the entire model village settlement and, as previously mentioned, it has a similar boundary to the Saltaire WHS. As explained in paragraphs 4.2 and 4.4 both designations have different frameworks within which significance is considered; Outstanding Universal Value for WHSs and architectural and historic interest for Conservation Areas. The architectural and historic interest of the Saltaire Conservation Area is described in paragraphs 4.9 to 4.16 as part of the WHS’s Statement of Outstanding Universal Value and therefore to avoid repetition, it is not revisited here.

Contribution of the Site to the Significance of the Designated Heritage Assets (as part of their setting)

World Heritage Site/Conservation Area

The setting of the WHS was divided into zones by a 2006 Environmental Capacity Study7. The Application Site is within Zone K which is described as encompassing:

“...a large area of mixed historic and modern development (primarily residential) to the south of the site. It includes a number of key approaches to the site and borders the Site along Bingley Road. Parts of the zone feature as a backdrop to views north from the Site and in distant views to the Site from the north. As such the area is an important element of its visual setting. Along Bingley Road there are particular issues with the quality of shop frontages and the public realm. Zone K also includes two detractors [sic] the hand car wash and Saltaire Roundabout.”

The Application Site forms part of this mixed development. However, whilst the age, design and quality of development in this part of the setting vary, the Site is particularly poor in the way it relates to the WHS and conservation area and is identified as a key detractor in the Management Plan.

The Application Site is prominent on the approach to the WHS from the east along Bingley Road, but does not currently contribute to a sense of arrival. Instead, its advertisements and poor architectural quality detract from the listed buildings within this part of the WHS.

The Application Site features as a backdrop to views from Victoria Road, looking south. The view is unplanned; there is no building or structure to terminate the view and the Atkins (2006) Saltaire World Heritage Site Environmental Capacity Study.

Application Site and the residential development behind detracts from the quality and consistency of the architecture along Victoria Road within the view. Due to the rising topography and the canopies of street trees, the Application Site, which sits at the top of Victoria Road is presently only visible in views from the top section of the street. When the site visit to inform this Heritage Statement took place, trees along Victoria Road were being felled. Once complete the Application Site will be more visible from the WHS. This view is not one the ‘key views’ along Victoria Road identified in the Management Plan; although the kinetic nature of the views along Victoria Road is acknowledged. The key view looking south down Victoria Road is experienced in proximity to the Application Site.

Figure 4.1: The view south from Victoria Road to the Site, showing the felling of street trees

In summary, the Application Site is experienced as part of the immediate visual setting of the WHS. Its poor appearance is a stark contrast to the architectural quality and harmonious composition of the WHS which form an important aspect of its Outstanding Universal Value and of the historic and architectural interest of the conservation area. The Application Site therefore detracts from the significance of the Saltaire WHS and Saltaire Conservation Area.

Listed Buildings

The form, poor quality and materiality of the existing buildings/structures on the Application Site contrast negatively with the high design quality and harmony of the listed buildings identified in Section 2. There is no known functional relationship between the Application Site and these heritage assets.

The Application Site therefore has a negative impact on the architectural and historic interest of the listed buildings.

Assessment of Impact

Introduction

As set out at paragraph 2.2, there are no designated heritage assets located within the Application Site. Any effects arising from the Proposed Development on built heritage will therefore be indirect in nature; having potential to affect the significance of the identified assets through the alteration of their setting. An assessment of the significance of the heritage assets is set out in Section 4 as an appropriate baseline for assessment.

The relevant heritage legislation, policy and guidance context for consideration of the Proposed Development is also set out in full in Appendix 2. This includes the statutory duties of the Planning (Listed Buildings & Conservation Areas) Act 1990, national policy set out in the NPPF and local policy for the historic environment, as well as other national guidance and relevant material considerations.

Proposed Development

The Proposed Development comprises the demolition of the existing hand car wash buildings and structures and the erection of a new Local convenience store, along with associated access, car parking spaces and landscaping. Full details of the proposed development, including design, layout and materials, can be found in the application drawings, visuals and the Design and Access Statement.

Key points raised by the previous planning application were:

• A Heritage Statement would need to accompany the application for planning permission which explains how scale, siting and detailing of the scheme have taken the heritage assets into account; • The Local Planning Authority is keen to enable and support an appropriate and sympathetic redevelopment of this site which is presently of poor visual appearance and spoils a key approach to the WHS. • Planning Officers support the approach for a contemporary design that will mark the building as a contemporary addition to Saltaire and avoids a pastiche of the listed buildings across the road. • The articulation of the façades was highlighted as an important consideration and there are many examples of this within Saltaire to which reference could be made. • Planning Officers understood that the retail unit must, for practical reasons, take the form of a rectangular ‘box’. • Stone (a mixture of pitched face and ashlar) must form the predominant material, but there is also scope to consider smaller elements of a more contemporary cladding material if this does not complicate the elevation. • A high quality boundary to Grosvenor Road and replacement of the unsightly boundary to the medical centre was requested. • The planning application submission needs to include details of materials for the forecourt areas and include consideration of boundary treatment as an integral part of the scheme.

Impact on Significance

As previously mentioned in the assessment of significance at Section 4, the Application Site currently has a negative impact on the significance of the identified heritage assets as an element of their setting due to its design, material and colour.

Location and Siting of the Proposed Development

The views south up Victoria Road to the Application Site, although not identified as key views in the WHS Management Plan, are considered to have some value and have been treated accordingly in the design development. The new building would be sited in the west portion of the Application Site and has been designed in consideration of its role in terminating views up Victoria Road.

The siting of the building at this point, together with the height created by the gable, encloses the view up Victoria Road from the WHS with a building that is more consistent with the character of the model village than the mid-20th century residential development to the south of the Application Site, the rear of which is currently in view from Victoria Road.

The location of the store at the front of the Application Site continues the back-of- pavement siting of buildings, which is characteristic of Bingley Road high street. The building line is set back from the existing building line which runs along the high street to the west of the Application Site. The different building line allows the 3m wide pavement to be retained and meets the store’s servicing requirements for a loading bay. It is considered to be an appropriate transition between the building line of the high street to the west and residential properties to the east which are set further back within their plots.

Form and Appearance of the Proposed Development

The use of gables not only reflects the dominant roof form within the WHS and Bingley Road, but also overcomes the challenge of responding to both the considerable height and scale of 20-30 Bingley Road and modest scale of properties at the south end of Victoria Road. The twin gables give the illusion of two storeys to Bingley Road and focus the height towards 20-30 Bingley Road, whilst the scale of the store remains subservient to 50 Victoria Road.

The use of gables on the side elevations, as well as the front, avoids an overly dominating east elevation on the approach to the WHS along Bingley Road, responds to the corner plot and references 50 Victoria Road opposite. Although a number of terraces along Bingley Road have taller bays (book- ends) at each end, it was not felt appropriate for this site due to the building proportions and the need to address both Bingley Road and Grosvenor Road.

The absence of coping stones on the gables subtly differentiates them from the gables of the buildings on the opposite side of Bingley Road within the WHS. The slate coping details create clean lines to the roof form in contrast to the more ornate and heavily detailed façades to the north of the site. It also emphasises the visual relationship with 20-30 Bingley Road, which also does not have coping stones on its gables.

The area is characterised by clearly defined plots. The Application Site presently deviates from this; however the Proposed Development would add definition through erecting retaining walls along the south, east (Grosvenor Road) and west (Saltaire Medical Practice) boundaries of the Site and a boundary wall at the north end of the car park. The walls are to be faced with random coursed stone, which is similarly used for existing walls along Grosvenor Road and Bingley Road (opposite and to the east of the Application Site). A hedge, in addition to the wall, is proposed for the boundary along Grosvenor Road which softens the visual impact of the car park and reflects residential boundary treatments along Grosvenor Road and within the WHS. The dressed stone panel to the end of the car park provides a focal point to the end of the car park circulation aisle.

The Proposed Development will primarily be clad in sandstone; the dominant building material of the locality, to complement and harmonise with the surrounding historic environment. Blue slate will be used for the roof and timber high level cladding to the rear of the building. In this way the building provides a contemporary response. The Proposed Development responds to the surrounding architectural and historic context and includes elements of the prevailing architectural style whilst providing a contemporary addition to the streetscape. This careful consideration of the historic context responds to the architectural character of the WHS, whilst clearly distinguishing the Proposed Development as part of the development along the south side of Bingley Road which exhibits a variety of architectural responses to the character of the model village.

Impact: World Heritage Site and Conservation area

The current appearance of the Application Site is poor and negatively contrasts with the architectural quality and harmonious composition of the Saltaire model village.

Whilst complementing the high quality design characteristic of the WHS, the simple, contemporary design distinguishes it from the 19th century buildings. The Proposed

Development will form part of the development on the south side of Bingley Road which constitute architectural responses to the character of the model village from the late 19th to 21st centuries.

The Proposed Development will remove a ‘key detractor’ within the setting of the WHS and will enhance views up Victoria Road from the WHS and on approach to the WHS from the east along Bingley Road.

Therefore the impact on the OUV of the WHS and the character and appearance of the conservation area, as a result of development within their setting, will be positive.

Impact: Listed Buildings

As previously identified, the significance of the listed buildings assessed within this Heritage Statement relates to their architectural quality and their group value as part of the Saltaire model village. The Proposed Development would have a positive impact on the significance of the listed buildings through the removal of a ‘key detractor’ from their setting which will be replaced with a high-quality contemporary addition.

Operation of the World Heritage Convention

The Operational Guidelines for the Implementation of the World Heritage Convention8 (the Operational Guidelines) set the procedure for the protection and conservation of World Heritage properties. It gives a responsibility for the UK Government to “ensure the identification, nomination, protection, conservation, presentation, and transmission to future generations of the cultural and natural heritage found within their territory”

Paragraph 98 requires that State Parties should assure the full and effective implication of legislative and regulatory measures at national and local levels to protect the property from social, economic and other pressures or changes that might negatively impact the OUV, including the integrity and/or authenticity of the property.

As previously identified the impact of the proposed development on the OUV of the WHS will be positive and therefore the proposals accord with the objectives of the World Heritage Convention.

Statutory Duty and NPPF Policy

Under the Planning (Listed Building and Conservation Areas) Act 1990 Bradford Council, in determining the application for planning permission, has statutory duties to have special regard to the desirability of preserving the special interest and setting of a listed building (s66(1)) and to pay special attention to the desirability of preserving or enhancing the character or appearance of conservation areas (s72(1)).

Recent case law has confirmed that Parliament’s intention in enacting section 66(1) was that decision- makers should give “considerable importance and weight” to the desirability of preserving the special interest and setting of listed buildings, where “preserve” means to “to do no harm”. The presumption is therefore that development proposals should not give rise to harm to the special interest of a listed building. This duty must be borne in mind strongly when considering cases where harm may be considered to accrue, and then the balancing of such harm against public benefits as required by national planning policy. The same principles apply to conservation areas and the statutory duty under s72(1). As set out above, the Proposed Development would not harm the significance of the aforementioned listed buildings and will preserve the character and appearance of the conservation area.

The NPPF requires that great weight is given to the conservation of designated heritage assets and this reflects the statutory duties of the 1990 Act with respect to listed buildings. Conservation is defined by the NPPF as the process of maintaining and managing change to heritage assets in ways that sustain, and where appropriate, enhance their significance.

Paragraph 131 states that in determining planning applications, local planning authorities should take account of the desirability of sustaining and enhancing the significance of heritage assets, as well as the desirability of new development making a positive contribution to local character and distinctiveness. This objective is relevant in this case where a ‘key detractor’ will be removed as a result of the Proposed Development and be replaced with a high quality contemporary addition which will enhance the setting of the designated heritage assets.

Paragraph 132 of the NPPF also highlights that when considering the impact of proposals on the significance of designated heritage assets great weight should be given to their conservation, and the more important the asset the greater the weight should be.

Paragraph 137 relates to opportunities for new development within Conservation Areas and WHSs and within the setting of heritage assets to enhance or better reveal their significance. Proposals that preserve those elements of the setting that make a positive contribution to or better reveal the significance of the asset should be treated favourably.

The Proposed Development will sustain the significance of the Saltaire WHS, the Saltaire Conservation Area and the listed buildings identified in this Statement through the removal a negative element of their setting that detracts from their significance and its replacement with a high quality contemporary building which responds to the historic context.

The Proposed Development therefore accords with the statutory duties and paragraphs 131 and 137 of the NPPF. The proposals will also meet the key policy objective of conserving the designated heritage assets, set out in paragraph 132 of the NPPF.

Local Planning Policy Considerations

The Proposed Development does not adversely affect the character, appearance, setting or views into or out of the WHS and therefore accords with Policy S/BH14 of the Bradford District Replacement Unitary Development Plan. There is no harm to the setting of listed buildings as a result of the Proposed Development, thereby complying with Policy BH4A. The Proposed Development preserves the character and appearance of the conservation area and reflects the standards set out by Bradford Council Planning Officers during pre-application consultation in accordance with Policy BH7. The Proposed Development will conserve the heritage significance and setting of the aforementioned heritage assets and respect the distinctive character of Saltaire, thereby complying with Policy EN3 Historic Environment of The Bradford District Local Plan.

Conclusions

Having assessed the significance of the relevant designated heritage assets and the contribution that elements of the setting, including the Application Site make to that significance, it is concluded that the Proposed Development will sustain the significance of the Saltaire WHS, the Saltaire Conservation Area, and the following listed buildings;

• Numbers 50-64 [Victoria Road] including railings and piers to Bingley Road; • Numbers 24-49 [Victoria Road] including wall, piers and railing to south, and wall

and piers to north;

• 2-18 George Street 49, Bingley Road; • 51-97 Bingley Road; and, • Sir Titus Salt’s Hospital including wall and piers to Saltaire Road.

In relation to these heritage assets, the Proposed Development accords with the objectives of the World Heritage Convention, the statutory duties of the 1990 Act and NPPF paragraphs 131, 132 and 137. The proposals comply with policies BH4A, BH7 and S/BH14 of the Bradford District Replacement Unitary Development Plan and policy EN3 Historic Environment of The Bradford District Local Plan.

Appendix 1: Designated Heritage Asset Proformas

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Statement of Outstanding Universal Value

Saltaire is an exceptionally complete and well preserved industrial village of the second half of the 19th century, located on the River Aire. Its textile mills, public buildings, and workers’ housing are built in a harmonious style of high architectural quality and the urban plan survives intact, giving a vivid impression of the philanthropic approach to industrial management.

The industrial village of Saltaire is an outstanding example of mid-19th century philanthropic paternalism, which had a profound influence on developments in industrial social welfare and urban planning in the United Kingdom and beyond. The architectural and engineering quality of the complete ensemble, comprising the exceptionally large and unified Salt’s Mill buildings and the New Mill; the hierarchical employees’ housing, the Dining Room, Congregational Church, Almshouses, Hospital, School, Institute, and Roberts Park, make it outstanding by comparison with other complexes of this type. Saltaire provided the model for similar developments, both in the United Kingdom and elsewhere including in the USA and at Crespi d’Adda in Italy. The town planning and social welfare ideas manifested in Saltaire were influential in the 19th century garden city movement in the United Kingdom and ultimately internationally. Saltaire testifies to

Google Earth, 2014. As revised and approved by the World Heritage Committee, UNESCO in 2010.

Site Address Saltaire, UK Heritage Asset World Heritage Site Cultural Inscribed 2001

the pride and power of basic industries such as textiles for the economy of Great Britain and the world in the 19th and early 20th centuries.

Criteria

Criterion (ii): Exhibit an important interchange of human values, over a span of time or within a cultural area of the world, on developments in architecture or technology, monumental arts, town planning or landscape design.

Saltaire is an outstanding and well preserved example of a mid-19th century industrial town, the concept of which was to exert a major influence on the development of the “garden city” movement.

Criterion (iv): The layout and architecture of Saltaire admirably reflect mid-19th century philanthropic paternalism, as well as the important role played by the textile industry in economic and social development.

The layout and architecture of Saltaire admirably reflect mid-19th century philanthropic paternalism, as well as the important role played by the textile industry in economic and social development.

Integrity

The integrity of Saltaire as a model industrial village is almost total. The boundary of the property coincides with the extent of Titus Salt’s original development: the model village and its associated buildings, the majority of the mill complex and the Park. Some buildings (representing only 1% of the original buildings) were demolished in the past but those existing at the time of inscription and the layout of the complex are still intact. Mill machinery was removed after industrial activities ceased in the mid-1980s. There are limited opportunities for new development within the site. Beyond the site’s boundaries, development has surrounded the property to the east, south and west for the last century, with the remnant Aire river landscape to the north.

Authenticity

An intensive programme of sensitive rehabilitation and conservation of the entire complex has meant that its attributes - form and design, materials and substance, and function (in terms of a living community) - continue to thrive and express its Outstanding Universal Value. The original rural river valley setting has gradually disappeared over the last one hundred years but significant views remain. Given that part of Salt’s original intention was to locate Saltaire in a healthy environment, the buffer zone is important in this respect.

Protection and management requirements

The entire property is protected by the UK planning system with World Heritage status being a key material consideration that planning authorities must take into account when considering applications. In addition planning authorities are encouraged to include policies for the protection of World Heritage in their statutory plans and frameworks. The City of Bradford Metropolitan District Council’s Revised Unitary Development Plan includes specific policies to protect the property and its buffer zone. The whole property is a Conservation Area under the provisions of the Planning (Listed Buildings and Conservation Areas) Act 1990 Nearly every building and structure within the area is listed under the provisions of the Planning (Listed Buildings and Conservation Areas) Act (1900), and Roberts Park is designated Grade II in the Register of Parks and Gardens of Special Historic Interest. All these complementary forms of statutory protection require authorisation by the local planning authority for any form of development. There is an appeal procedure against refusal of consent operating at central government level.

Attributes of Outstanding Universal Value

Model Village Ensemble

Saltaire is an exceptionally complete and well-preserved model village, which allows the philanthropic and paternalistic approach to industrial management of its founder, Sir Titus Salt, to be easily understood. The ensemble is outstanding in comparison with earlier model villages in terms of its scale and the range of the public buildings and social welfare facilities that Salt provided.

The complete range of housing types and sizes Salt supplied to meet the varying needs of his workers can still be seen. This includes small two and three bedroom workers’ cottages, large three-storey homes and substantial semi-detached villas. The large end-terraced properties on Albert Terrace and Caroline Street, originally constructed as boarding houses for single workers, can still be seen, although they have undergone significant alterations to convert them to single dwellings.

Owing to the remoteness of his village’s situation, Salt provided numerous facilities to meet the practical needs of his workforce. There were a large number of shops to allow for choice and competition, a consideration rarely in evidence at other model villages. Almost all of these buildings retain their characteristic shop fronts and remain in retail or commercial use. The Dining Room supplied meals for both resident and commuting workers. The building still remains and now forms part of Shipley College. The Baths & Wash House, which provided both bathing and laundry facilities, was demolished in the 1930s.

Salt’s concern for the moral, social and physical welfare of his workforce is demonstrated by the range of public buildings and facilities he provided. The Congregational Church was by the far the grandest of the three places of worship that he helped establish and the only one that he financed in full. It remains as a testimony to Salt’s lifelong dedication to the Congregational denomination. The associated Congregational Sunday School and the Primitive and Wesleyan Methodist Chapel buildings were demolished in the mid twentieth century.

The factory school and Saltaire Institute provided exceptional opportunities for educational and social advancement and are well-preserved. The park and the allotments provided opportunities for healthy outdoor recreation. The park has been recently restored, with particular attention to maintaining its authenticity and reinstating its original layout.

Salt provided his village with its own hospital, dispensary and almshouses to support the aged, sick and infirm. The hospital was sympathetically extended twice in the early twentieth century and has since been converted to residential use. The almshouses have mostly remained in single ownership since their construction and so have retained the uniformity of their architectural details more than any other group of houses in the village.

Urban and Industrial Plan

The form and design of Saltaire’s industrial and urban plan is exceptionally well preserved and gives a vivid impression of the philanthropic approach to industrial management. The industrial and town planning ideas manifested in its layout had a profound influence in the United Kingdom and beyond.

Salts Mill and New Mill are located in the optimal location within the village between the railway line, canal and River Aire reflecting the mills’ prime economic importance in the historic function of the village. At Salts Mill the layout of the spinning mill, combing and weaving sheds and warehouses in relation to each other attest to the efficient flow of production that was achieved within the industrial complex.

The arrangement of industrial, residential, commercial, educational and recreational land uses in relation to each other are an outstanding demonstration of mid-19th century town planning with distinct zoning of land uses. The mill complex is at the north-east corner of the village and is separated from the residential areas by open space and other buildings. The mills’ location appears to take account of prevailing westerly winds, thus minimising air pollution in the village from its operations. Victoria Road, on a north-south axis, forms the spine of the village’s layout connecting its principal buildings and open spaces. At its southern terminus are the Almshouses and Hospital, grouped around Alexandra Square. Moving north, the School and Institute face each other and are set back from the building line creating the impression of a formal square at the heart of the village.

North of Caroline Street, the village’s principal row of shops on Victoria Road is located opposite the allotments and the site of the former Congregational Sunday School. The Dining Room and workers entrance to Salts Mill are conveniently located immediately to the north of the railway line.

Next in sequence are the Salts Mill office block and the Congregational Church. The two seemingly paired together to symbolically reflect the dependence of Salt’s business success upon the support of God.

As a result of the demolition of the original footbridge across the River Aire, the present-day Victoria Road terminates abruptly at New Mill. The park is now accessed by a modern bridge, which does not respect the integrity of Lockwood and Mawson’s urban plan.

The residential area is concentrated to the west of Victoria Road, with a secondary grouping to the east around the Institute. They are accessed via Caroline Street and Titus Street, which intersect with Victoria Road at right- angles and also Saltaire Road, a former turnpike, whose route interrupts the regularity of the village’s grid plan.

The residential area is laid out in parallel terraced rows to make efficient use of the available land yet sufficiently spaced to provide each house with ample light and ventilation. To the rear of each terrace is found a back street, provided for the sanitary and efficient removal of human waste. A limited number of outdoor privy buildings still remain in their original form.

Most houses retain their original internal plans, including separate rooms for living and cooking on the ground floor and a varying number of bedrooms on the upper floors. These divisions of internal space in the interests of health, cleanliness and decency represent model standards in accommodation for the working classes in the mid nineteenth century. The survival of original interior fittings such as fire surrounds and stone sinks is rare.

Saltaire’s open spaces have several roles within the urban plan. On a functional level they provide recreational open space within what is otherwise a densely developed settlement. The park is the most significant of these spaces and occupies approximately a fifth of the area of the village. William Gay’s original layout is well preserved and makes efficient use of the available space. A series of lawns and fields for various sporting activities are incorporated in a compact layout and connected together by a broad promenade and narrow winding paths through areas of ornamental planting. The open spaces provide a setting for the village’s most important buildings including New Mill and Salts Mill, whose setting is borrowed from the park and the Caroline Street allotments respectively. Small front gardens also distinguish the upper tiers within the housing hierarchy.

Design Quality

Saltaire comprises of a harmonious ensemble of buildings of high architectural quality executed in a range of Italianate styles. The village’s design was the work of the local architectural practice of Henry Francis Lockwood and William Mawson. They were assisted by the eminent Victorian engineer Sir William Fairbairn, who was responsible for the structural and mechanical engineering aspects of Salts Mill and for the design of the River Aire footbridge, which was demolished in 1967. Roberts Park is to the design of the regionally significant landscape architect William Gay.

The exceptional scale of Sir Titus Salt’s mill and his paternalistic motivations demanded high quality and innovative engineering solutions from Fairbairn with respect to heating, ventilation, lightweight fireproof construction and power transmission. Lockwood and Mawson’s skilful styling of the mill as a Renaissance palace, including its 166 metre south façade, relieved the vast structure of any monotony. The workers’ housing is mostly in the form of symmetrical two-storey terraced rows with larger gable-fronted or three-storey end and midterrace properties providing relief. A hierarchy of housing types is expressed through the size and level of architectural detailing of each group of dwellings, reflecting the social status of their intended occupants from workmen and over lookers, to company officials, teachers and other professionals. Where architectural details have been lost, their reinstatement based on authentic examples has been carefully managed. The Almshouses are a distinct composition of 41 richly-detailed single and two-storey dwellings in two near-symmetrical groups enclosing a landscaped garden.

Lockwood and Mawson’s finest architectural works in Saltaire are undoubtedly the beautiful Italianate Congregational Church with its ornate interior and the elaborately detailed School and Institute buildings. Along with the monumental scale of Salts Mill, these buildings testify to the importance of the Great British textile industry and the wealth that it generated.

The architects’ attention to detail is evident throughout the village, even on more functional buildings such as the Dining Room, Hospital shops and the decorative shelters and pavilions of the park. Surviving examples of boundary railings and street paving illustrate that these features of the village were also carefully selected and designed.

The harmonious nature of Lockwood and Mawson’s designs are underpinned by a limited palette of materials commonly used in the locality including local stone for walling and paving, natural Welsh slate for roofing, timber for windows and doors and iron for rainwater goods and railings.

Valley location, topography and setting

The Aire Valley presented many advantages to Sir Titus Salt when he was seeking a location for his new model village. The river provided a plentiful supply of fresh clean water and the largely undeveloped valley offered beautiful surroundings and an absence of pollution. Salt’s decision to relocate his entire business to a greenfield site on the outskirts of Bradford, rather than re-develop within the existing urban centre, exerted a profound influence on the development of town planning. Later model villages and the garden city movement in the United Kingdom and beyond followed Salt’s example in planning separate idealised urban settlements within a rural setting.

The location of New Mill and Salts Mill immediately to the south of the river is a reminder of its importance as a supply of water for the industrial processes of the factories and their steam engines. The river is also an integral design element within the layout of the Park and was widened at Saltaire to make it more suitable for boating, bathing and swimming.

Saltaire is testament to Lockwood and Mawson’s skill as architects both in overcoming and exploiting the site’s topography. For example on William Henry Street, George Street and Albert Street the considered use of three- storey mid and end terrace properties allowed the two-storey terrace blocks to step elegantly down the valley side. The village’s grid layout allows for uninterrupted views out of the village to which the valley sides form the backdrop. Most significant amongst these designed views are those north along Victoria Road and George Street, the latter including the bell tower of the Congregational Church as a focal point set against the backdrop of Baildon Hill.

Although later development has encroached upon Saltaire, significant remnants of the rural Aire valley landscape remain, most notably to the north. These remaining rural aspects of the site’s setting convey evidence of the profound influence that the site had upon later model villages and the garden city movement in the United Kingdom and beyond.

Communal Function

Saltaire’s continued use and function as a thriving community supports its conservation and understanding of its Outstanding Universal Value. Although the textile machinery was removed from Salts Mill and New Mill in the mid-1980s, the buildings still provide the focus for employment and commercial activity within the village. Most other elements of the model village ensemble remain in broadly similar uses. The houses are now privately owned but remain attractive places to live. The Congregational Church continues in regular use for Christian worship and the factory school and Institute remain in educational and social use as part of Shipley College and Victoria Hall respectively. The park is a popular amenity for communities north and south of the River Aire. Saltaire’s appeal as a visitor destination contributes to the local economy and represents a continuity of interest amongst both casual and academic visitors that is as old as the model village itself.

Setting Physical Surroundings

The Saltaire World Heritage Site is located at the bottom of the River Aire valley, surrounded by higher ground on all sides, which terminate views out of the WHS and provide vantage points for views into it; including Baildon Hill to the north. The valley location, topography and setting were key economic and social factors in Titus Salt selecting the location for Saltaire and together form an attribute of the World Heritage Site’s Outstanding Universal Value. The rural setting was seen as an expression of Titus Salt’s socially informed approach. The good transport infrastructure including the Bingley Road turnpike which converged in the River Aire valley was also an important locational factor and included Bingley Road.

Whilst parts of the rural setting remains to the north, the area south and east of the World Heritage Site are dominated by built development including industrial and commercial development along the River Aire valley bottom and residential development.

The World Heritage Site is a large site and has a large setting, as demonstrated by its buffer zone of 1078 hectares. The way it is experienced therefore varies across a wide area. The setting of the World Heritage Site was divided into zones by a 2006 Environmental Capacity Study11; a method which has since been adopted for the ongoing evaluation and monitoring of the World Heritage Site and its setting. The Site is within Zone K which is described as encompassing

“...a large area of mixed historic and modern development (primarily residential) to the south of the site. It includes a number of key approaches to the site and borders the Site along Bingley Road. Parts of the zone feature as a backdrop to views north from the Site and in distant views to the Site from the north. As such the area is an important element of its visual setting. Along Bingley Road there are particular issues with the quality of shop frontages and the public realm. Zone K also includes two detractors [sic] the hand car wash and Saltaire Roundabout.”

Experience of the Asset

The A650 approach along Bingley Road from both east and west are identified as being important in Appendix 7 of the World Heritage Site Management Plan; “Setting Survey Evaluation”. It is the historic line of the Keighley and Bradford Turnpike. There are mixed land uses and quality, and a local high street as the road passes through the World Heritage Site.

There is a visual contrast between the consistently high architectural quality of the World Heritage Site and development on the south of Bingley Road; however the predominant use of local stone tempers the distinction. An exception is the hand-car wash on the Site, which is identified as a key detractor in the Management Plan which in particular highlights the advertisements as presenting a strong contrast to Saltaire’s historic character. There is also an environmental contrast between the relative quiet of the World Heritage Site beyond Bingley Road and the busy, heavily trafficked high street.

A full key view analysis is included within Appendix 7 of the Management Plan; “Setting Survey Evaluation”. There is a key axial view north and south along Victoria Road (View 11), however the plan indicates that the important views southwards up the street are in the north section of the street and due to the topography, the Application Site is not be included within that view. It is identified as a designed view of critical significance, but in a poor condition. Victoria Road is Atkins (2006) Saltaire World Heritage Site Environmental Capacity Study.

Saltaire’s broadest street and connects together a series of views between the World Heritage Site’s key buildings and out into its landscape setting. The views along the street are likely to have been designed and are featured extensively in historic depictions of the village. The Management Plan emphasises the kinetic nature of the view and the connection between the viewing places along the street which allow the architecture of the World Heritage Site to be appreciated. The most dramatic views along the street look north against the backdrop of Baildon Hill. Mature street trees impact significantly on these views, especially from Bingley Road, but are currently being removed. Views southwards along the street are largely contained within the World Heritage Site due to the canopies of the street trees, but still provide impressive views of the architecture.

Associative Relationships with Other Assets

The Statement of OUV indicates that Saltaire provided the model for similar developments, both in the United Kingdom and elsewhere including in the USA and at Crespi d’Adda in Italy.

Site Address Numbers 50-64 [Victoria Road] including railings and piers to Bingley Road Heritage Asset Grade II Listed Building 22 November 1966

List Description

Almshouses. Dated 1868. By Lockwood and Mawson for Titus Salt. Pitch-faced stone. Welsh slate roof. One and two storeys. An ordered and near-symmetrical Italianate-style facade of 14 houses, consisting of alternate gabled bays and entrance bays. The central 3-bay block has gabled left and right bays with enriched tympana, each with a roundel with 'T.S.' to left and ' C. S.' to right. Central square bell-turret with enriched pedimented top is inscribed ' OPENED / SEPTEMBER / 1868 '. Paired entrances, with 4-panel doors, in open porches with central colonnettes. Paired round-arched sash windows with central colonnettes, some with decorative friezes. Bracketed eaves and gables. Tall stacks with cornices. Right return (Nos 50 and 51) is similar, and of 3 bays with a projecting gabled wing to right.

Attached to right is dwarf wall with 2 square ashlar piers with decorative caps, and cast-iron square-section railings.

Part of Saltaire model village.

Significance:

Architectural Interest

The asset forms a group with the almshouses at 24-49 Victoria Road and also has group value as part of the Saltaire model village. It was designed by the local Victorian architects Henry Francis Lockwood and William Mawson; who Sir Titus Salt employed to design the other buildings in Saltaire. The almshouses and hospital have a unifying Italianate style. Their facades have been skilfully composed to be balanced, without severely symmetrical, and to be ordered whilst being well-articulated to avoid monotony. There were originally 45 almshouses, each with an oven, boiler, pantry and single bedroom. 41 remain and four were absorbed into the expansion of the Infirmary and Dispensary.

The almshouses have mostly remained in single ownership since their construction and so have retained the uniformity of their architectural details more than any other group of houses in the village.

Historic Interest

The provision of almshouses and the quality of the architecture illustrates the philanthropic paternalism of Sir Titus Salt and they therefore form an important element of the Saltaire model village.

Setting

Physical Surroundings

The almshouses are aligned north-south along the east side of Victoria Road; a street rising steeply out of the valley bottom from Salts Mill and Roberts Park. The terrace wraps onto Bingley Road to provide a presence onto the former turnpike road. Opposite, on the west of the street a second terrace of almshouses creates a U-shape around a garden. Experience of the Asset

The asset is experienced from Bingley Road; however its extent and architectural character cannot be fully appreciated until viewed from the top of, and along, Victoria Road. Despite the busy Bingley Road to the south, the relative tranquillity of the almshouses has been retained. As previously mentioned, there are key views experienced along Victoria Road, taking in the architecture of the almshouses and hospital and the surrounding landscape.

Associative Relationships with Other Assets

The asset has an associative relationship with the other buildings of the Saltaire model village, in particular there is a strong relationship with the almshouses on west side and the adjacent hospital and dispensary.

Numbers 24-49 [Victoria Road] including wall, piers and railings to south, and wall and piers to Site Address north Heritage Asset Listed Grade II Building 22 November 1966

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List Description

Almshouses. Dated 1868. By Lockwood and Mawson for Titus Salt. Pitch-faced stone. Welsh slate roof. A symmetrical U-shaped composition around Alexandra Square in Italianate style. One and 2 storeys with alternate gabled and entrance bays. The end blocks and 4 intermediate blocks are 2-storeyed and gabled. The 3- bay, 2-storey central block has gabled outer bays with enriched tympana each with roundel with initials: 'T. S. ' to left and ' C. S. ' to right. Also the motto 'QUID NON DEO JUVANTE' with palm and oak leaf support and a small alpaca as crest. Central, square, bell-turret with pedimented top, inscribed 'OPENED / SEPTEMBER /1868'. Paired entrances, with 4-panel doors, in open porches with central colonnettes. Paired round- arched sash window with central colonnettes, some with decorative friezes. Bracketed eaves and modillioned gables. Tall stacks with cornices. Left and right returns and end blocks treated similarly.

In the porches of Nos 38 and 35 are 2 upright stone slabs with the names of residents, the lst, 1868-75, inscribed 'HERE THE WICKED CEASE FROM TROUBLING AND THE WEARY BE AT REST', the 2nd 1875-78, inscribed 'BLESSED ARE THE DEAD WHICH DIE IN THE LORD'.

On the south side, to Bingley Road, is attached wall with ashlar coping, 6 square ashlar piers with decorated caps, and 2 lengths of square-section arcaded cast-iron railings with square cast-iron piers.

On the north side, to Saltaire Road, is attached garden wall with one pair of square ashlar gate piers and 3 single piers with decorated caps.

Part of Saltaire model village.

Significance

Architectural Interest

The asset forms a group with the almshouses at 50-64 Victoria Road and also has group value as part of the Saltaire model village. It was designed by the local Victorian architects Henry Francis Lockwood and William Mawson; who Sir Titus Salt employed to design the other buildings in Saltaire. The terrace forms a U-shape around Alexander Square, on the west side of Victoria Road, which were designed for the enjoyment of the almshouses’ residents.

The almshouses and hospital have a unifying Italianate style. Their facades have been skilfully composed to be balanced, without severely symmetrical, and to be ordered whilst being well- articulated to avoid monotony. The almshouses and hospital have a unifying Italianate style. Their facades have been skilfully composed to be balanced, without severely symmetrical, and to be ordered whilst being well-articulated to avoid monotony. There were originally 45 almshouses, each with an oven, boiler, pantry and single bedroom. 41 remain and four were absorbed into the expansion of the Infirmary and Dispensary.

The almshouses have mostly remained in single ownership since their construction and so have retained the uniformity of their architectural details more than any other group of houses in the village.

Historic Interest

The provision of almshouses and the quality of the architecture illustrates the philanthropic paternalism of Sir Titus Salt and they therefore form an important element of the Saltaire model village.

Setting

Physical Surroundings

The almshouses are aligned north-south along the east side of Victoria Road; a street rising steeply out of the valley bottom from Salts Mill and Roberts Park. The terrace wraps onto Bingley Road to provide a presence onto the former turnpike road.

Experience of the Asset

The asset is experienced from Bingley Road; however its extent and architectural character cannot be fully appreciated until viewed from the top of, and along, Victoria Road. Despite the busy Bingley Road to the south, the relative tranquillity of the almshouses has been retained. As previously mentioned, there are key views experienced along Victoria Road, taking in the architecture of the almshouses and hospital and the surrounding landscape.

Associative Relationships with Other Assets

The asset has an associative relationship with the other buildings of the Saltaire model village, in particular there is a strong relationship with the almshouses on east side and the adjacent hospital and dispensary.

Site Address 2-18 George Street 49, Bingley Road Heritage Asset Grade II Listed Building 07 March 1985 (amended 12 May 1998)

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List Description

Includes: Nos 2-18 GEORGE STREET, SALTAIRE Terrace of overlookers' houses. Completed by 1868. By Lockwood and Mawson for Titus Salt. Hammer-dressed stone. Welsh slate roof. Nos 7-12 and 18 are 3-storey, the rest 2- storey. Each dwelling, is of 2 bays. Nos 7, 12, 18 and 49 break forward and are gabled. Entrances, with fanlights, in stepped reveals, and ground-floor windows, with sunk panels below sills, are all round-arched with keystone and archivolted. Square-headed lst-floor windows. First floor of No.49 has a 2-light round-arched window with central colonnette. Blind oculus in tympanum and alternately coloured voussoirs with hood in Venetian Gothic style. No.49 has doorway part blocked. Shaped brackets to gutter. Long brackets to gable. Broad stone stacks with cornices, some rendered. Right return elevation (No 49) has recent Building Society frontage. Part of Saltaire model village. (The Great Paternalist (J Reynolds), 1983).

Significance

Architectural Interest

The terrace is a good example of a late Victorian terrace which has primarily been listed for its group value as part of the Saltaire model village. It was designed by the local Victorian architects Henry Francis Lockwood and William Mawson; who Sir Titus Salt employed as architects for Saltaire.

Historic Interest

The terrace has particular historic interest for the inclusion of onlookers’ houses, which formed taller and larger housing within the terrace and were an important element of the urban planning for Saltaire.

Setting

Physical Surroundings

The terrace is aligned north-south, stepping down the valley side with the end terrace, comprised of a shop front and accommodation at first floor, fronting Bingley Road.

Experience of the Asset The asset is experienced from Bingley Road; however its extent and architectural character cannot be fully appreciated until viewed from the top of, and along, George Street. There is a designed view north, down George Street which terminates in the bell tower of the Saltaire United Reformed Church with the hillside as a backdrop.

Associative Relationships with Other Assets

The asset has an associative relationship with the other buildings of the Saltaire model village.

Site Address 51-97 Bingley Road Heritage Asset Grade II Listed Building 7 March 1985

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List Description

Formerly overlookers' houses and shops, now all shop premises. Completed by 1868. By Lockwood and Mawson for Titus Salt. Hammer- dressed stone. Welsh slate roof. 2 and 3 storeys, each of 2 bays. End and 2 intermediate blocks break forward and are gabled. Shop fronts to ground floor, mainly recent but some in original stone surround with cornice. lst-floor windows all round-arched, some with keystones, all archivolted. Windows are paired in the gabled blocks. Nos 61 and 63 have segment-headed windows to 2nd floor. Some original upper- floor windows. Bracketed eaves, large brackets to gables. Hipped roofs to Nos 61 and 63. Broad stacks with cornices.

Part of Saltaire model village.

Significance

Architectural Interest

The terrace is a good example of a late Victorian commercial terrace in an Italianate style which has primarily been listed for its group value as part of the Saltaire model village. It is notable for its long length, articulation and the high level of architectural features such as shopfronts and timber sash windows have either been conserved or reinstated. The terrace was designed by the local Victorian architects Henry Francis Lockwood and William Mawson; who Sir Titus Salt employed as architects for Saltaire.

Historic Interest

The asset has special historic interest as part of the Saltaire model village. The terrace has particular historic interest for the inclusion of onlookers’ houses, although these have since been converted to shops, which formed taller and larger housing within the terrace and were an important element of the urban planning for Saltaire.

Setting

Physical Surroundings

The terrace of shops is aligned east-west and fronts onto Bingley Road, a busy local high street and transport route. It is located at the boundary of the World Heritage Site, which extends behind the terrace to the north. Development on the north side of Bingley Road which is of varying style and quality.

Experience of the Asset

The asset is primarily experienced from Bingley Road, a busy local high street. The terrace’s long length and rhythm of bays and chimneys can be appreciated from along Bingley Road.

Associative Relationships with Other Assets

The asset has an associative relationship with the other buildings of the Saltaire model village.

Site Address Sir Titus Salt’s Hospital including wall and piers to Saltaire Road, Victoria Road Heritage Asset Grade II Listed Building 7 March 1985

List Description

Hospital, now old people's home. Dated 1868. By Lockwood and Mawson for Titus Salt. Pitch- faced stone with ashlar dressings. Welsh slate roof. 3 storeys. Italianate-style ordered but asymmetrical facade of 11 bays. Several bays break forward and are gabled. Windows are round-arched and single light, or paired with central colonnette and some have decorative friezes. Larger windows have cambered heads. All have pointed hoodmould. The doorway to left, with C20 door, has fanlight with glazed words ' SIR TITUS SALT's HOSPITAL /1868 ' and carved above ' OPENED SEPT /1868 '. To the right is an open porch with central colonnette infilled with C20 glazing, with inner glazing reading ' PRIVATE ENTRANCE ' and ' SIR TITUS SALT'S HOSPITAL '. Band between floors. Bracketed eaves. Modillioned gables, the tympanum of one being richly carved with foliage with central roundel. Tall stacks with modillioned cornices.

The left facade, on Saltaire Road, is symmetrical with the gabled centre bay breaking forward, its tympanum enriched with foliage and the Salt coat of arms. Central 3-light canted bay window to ground floor; central 2nd- floor triple group window with a panel below with raised letters ' SIR

TITUS SALT's HOSPITAL '. Flanking windows are paired with round-arched lights and central colonnettes. Bracketed eaves and modillioned gable. The rear elevation is plainer, but the right end, nearest Saltaire Road is treated as the main facades.

Attached to the left facade is a dwarf wall with square ashlar piers with decorative pyramidal caps.

Part of Saltaire model village.

Significance

Architectural Interest

The original hospital and dispensary was two storeys high and completed in 1868. It was designed by the local Victorian architects Henry Francis Lockwood and William Mawson; who Sir Titus Salt employed as architects for Saltaire. A third floor was added in 1908-9 and the hospital was further extended during 1926-7. It continues the Italianate style used elsewhere in Saltaire, including the neighbouring almshouses with which the hospital shares architectural similarities. Saltaire Road is the main façade, the rear is plainer.

The asset forms a group with the almshouses and also has wider group value as part of the Saltaire model village. Four of the original almshouses were absorbed into the expansion of the Infirmary and Dispensary.

Historic Interest

The provision of a hospital and the quality of the architecture illustrates the philanthropic paternalism of Sir Titus Salt, but also the dangers of millwork. It is therefore an important element of the Saltaire model village.

Setting

Physical Surroundings

The hospital sits on the corner of Victoria Road and Saltaire Road, although its primary façade is onto the former. The hospital is taller than the surrounding terraced housing and almshouses and this prominence is further emphasised by the topography.

Experience of the Asset

Due to the historic glazed signs, the historic use of the building is easily legible. The asset is primarily experienced from Victoria Road, where it is experienced as part of a group with the almshouses. The hospital is one of a number of important buildings connected by viewing points along Victoria Road, forming part of the key axial view along the street.

Associative Relationships with Other Assets

The asset has an associative relationship with the other buildings of the Saltaire model village; in particular there is a strong relationship with the neighbouring almshouses.

Appendix 2: Heritage Legislative and Planning Policy Context

The proposals for the site should be considered in light of policy and guidance in respect of heritage assets. The relevant excerpts of statutory duties, national policy, and regional and local plan policy and guidance relevant to proposals on the site are set out below.

Operation of the World Heritage Convention

The Operational Guidelines for the Implementation of the World Heritage Convention12 (the Operational Guidelines) set the procedure for the protection and conservation of World Heritage properties.

Paragraph 15 of the Operational Guidelines relate to the responsibilities of the State Parties, which for Saltaire is the UK Government. These responsibilities include to:

“ensure the identification, nomination, protection, conservation, presentation, and transmission to future generations of the cultural and natural heritage found within their territory, and give help to these tasks to other State Parties that request it”

Paragraph 96 of the Operational Guidelines states that “Protection and management of World Heritage properties should ensure that their Outstanding Universal Value (OUV), including the conditions of integrity and/or authenticity at the time of inscription, are sustained or enhanced over time.”

Paragraph 98 requires that State Parties should assure the full and effective implication of legislative and regulatory measures at national and local levels to protect the property from social, economic and other pressures or changes that might negatively impact the OUV, including the integrity and/or authenticity of the property.

The Operational Guidelines define a buffer zone as “an area surrounding the nominated property which has complementary legal and/or customary restrictions placed on its use and development to give an added layer of protection to the property” (Paragraph 104).

Statutory Duties

The Planning (Listed Buildings and Conservation Areas) Act 1990

In relation to the setting of listed buildings the following statutory duties are placed upon the decision maker:

“s66(1) In considering whether to grant planning permission for development which affects a listed building or its setting, the local planning authority or, as the case may be, the Secretary of State 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.”

UNESCO, 2015

“s.72(1) In the exercise, with respect to any buildings or other land in a conservation area, of any powers under any of the provisions mentioned in subsection (2), special attention shall be paid to the desirability of preserving or enhancing the character or appearance of that area.”

The Barnwell Manor case in February 2014 restated and clarified the law on heritage planning. The Court of Appeal found that Parliament’s intention in enacting Section 66(1) of The Planning (Listed Buildings and Conservation Areas) Act 1990 was that decision makers should give ‘considerable importance and weight’ to the desirability of preserving the setting of listed buildings when carrying out the balancing exercise. The principle also applies to conservation areas and s72(1) of the Act.

National Policy

NPPF: National Planning Policy Framework, 2012

The National Planning Policy Framework (NPPF) was introduced in March 2012 as the full statement of Government planning policy covering all aspects of the planning process. One of the twelve core planning principles of the NPPF is that planning should:

“conserve heritage assets in a manner appropriate to their significance, so that they can be enjoyed for their contribution to the quality of life of this and future generations.”

Chapter 12 outlines the Government’s guidance regarding conserving and enhancing the historic environment. Paragraph 128 outlines the information required to support planning applications affecting heritage assets. It states that applicants should provide a description of the significance of any heritage assets affected, including any contribution made by their setting. The level of detail should be proportionate to the asset’s importance and no more than is sufficient to understand the potential impact of the proposal on their significance.

Paragraph 131 provides a positive emphasis with regard to determining such planning applications, stating that local planning authorities should take account of the desirability of sustaining and enhancing the significance of the heritage assets, and putting them into viable uses consistent with their conservation, as well as the desirability of new development making a positive contribution to local character and distinctiveness.

Paragraph 132 further outlines that local planning authorities should give great weight to the asset’s conservation when considering the impact on a proposed development on the significance of a designated asset. The more important the heritage asset, the greater the weight should be. Annex 2: Glossary defines conservation (for heritage policy) as:

“The process of maintaining and managing change to a heritage asset in a way that sustains and, where appropriate, enhances its significance.”

It also specifies that any harm to, or loss of, significance of a designated heritage asset should require clear and convincing justification. Paragraph 133 outlines that local planning authorities should refuse consent where a proposal will lead to substantial harm or total loss of significance, unless it can be demonstrated that this is necessary to achieve substantial public benefits that outweigh such harm or loss, or a number of other tests can be satisfied. Paragraph 134 concerns proposals which will lead to less than substantial harm to the significance of a designated heritage asset. Here harm should be weighed against the public benefits, including securing the optimum viable use.

In considering development affecting non-designated heritage assets, paragraph 135 only requires that the effect of an application on the significance of such an asset should be taken into account in determining the application. It requires decision makers, in weighing applications that affect directly or indirectly non designated heritage assets, to make a balanced judgement having regard to the scale of any harm or loss and the significance of the heritage asset.

Paragraph 138 notes that not all elements of a World Heritage Site or Conservation Area will necessarily contribute to its significance.

Other National Guidance

National Planning Policy Guidance

This web based practice guide was made available online in March 2014. It provides detailed guidance to accompany the policies set out in the NPPF.

Department of Culture, Media and Sport Circular: Principles of Selection for Listing Buildings 2010 The Principles of Selection for Listing Buildings was published by the DCMS in 2010. It sets out the general criteria for assessing the special interest of a building in paras. 9 and 10, as below:

‘Architectural Interest. To be of special architectural interest a building must be of importance in its architectural design, decoration or craftsmanship; special interest may also apply to nationally important examples of particular building types and techniques (e.g. buildings displaying technological innovation or virtuosity) and significant plan forms;

Historic Interest. To be of special historic interest a building must illustrate important aspects of the nation’s social, economic, cultural, or military history and/or have close historical associations with nationally important people. There should normally be some quality of interest in the physical fabric of the building itself to justify the statutory protection afforded by listing.

These criteria were used to assess the significance of the listed buildings in Section 3.

Historic England: Historic Environment Good Practice Advice in Planning Note 2, Managing Significance in Decision-Taking in the Historic Environment, 2015 This Good Practice Advice (GPA) note is not a statement of Government Policy, but supports the implementation of national government policy. It provides advice on assessing the significance of heritage assets and the impact of proposals on that significance.

Historic England: Historic Environment Good Practice Advice in Planning Note 3, The Setting of Heritage Assets, 2015 This document sets out guidance on managing change within the setting of heritage assets. It provides a tool kit for assessing the implications of development proposals affecting setting.

Local Policy and Guidance

The Bradford District Replacement Unitary Development Plan

The current development plan for the Bradford District is the Replacement Unitary Development Plan (RUDP), adopted October 2005. Chapter 10 contains policies relating to the historic environment.

Policy BH4A relates to the setting of Listed Buildings and states that “Proposals for development will not be permitted if they would harm the setting of a listed building.”

Development within or which would affect the setting of a conservation area is covered by Policy BH7 which states that “Development within or which would affect the setting of conservation areas will be expected to be of the highest standards of design and to preserve or enhance the character or appearance of the conservation area.”

Policy S/BH14 applies to the World Heritage Site: “There will be a presumption in favour of the preservation of the World Heritage Site and its setting. Development which would adversely affect the character, appearance, setting or views into or out of the proposed [sic] World Heritage Site will not be permitted. Therefore:

(2) within the buffer zone, as defined on the proposals map, development which would be likely to adversely affect views into or out of the World Heritage Site will only be permitted where a suitable programme of mitigation is proposed as part of the application.”

The Bradford District Local Plan

The Local Plan for Bradford District is currently being developed and the Core Strategy Publication Draft was submitted to the Secretary of State, for public examination on Friday 12th December 2014.

Policy EN3 Historic Environment is the relevant Core Strategy Policy. It states that the Council will work with partners “to proactively preserve, protect and enhance the character, appearance and archaeological and historic value and significance of the District’s designated and undesignated heritage assets and their settings.” It continues by setting out a number of mechanisms by which this will be achieved, including:

“A. Ensure the protection, management and enhancement of the Outstanding Universal Value (OUV) of the Saltaire World Heritage Site through the implementation of the Saltaire World Heritage Site Management Plan and associated documents.

B. Require development proposals within the boundary of the Saltaire World Heritage Site Saltaire [sic] or within its Buffer Zone to demonstrate that they will conserve those elements which contribute towards its OUV, including its setting and key views.

C. Require that all proposals for development conserve and where appropriate, enhance the heritage significance and setting of Bradford’s heritage assets, especially those elements which contribute to the distinctive character of the District, specifically:

...2. The nationally important industrial heritage relating to the textile industry, particularly the mills, chimneys, commercial buildings, public buildings, and associated housing and settlements, the legacy of public parks, gardens, landscapes and cemeteries.

3. The pre-industrial townscape and distinctive architectural styles and palette of materials of the District’s towns and villages, the Victorian townscape of the expanded towns such as Bradford, Ilkley and Keighley.

4. The spatial qualities, building form, plot sizes, open spaces, trees and identified significance views of the urban areas, semi-rural villages and suburban developments, including at Heaton Estates, Devonshire Park and Middleton.

G. Require proposals to respect and reinforce the distinctive character of the part of the District within which they are located. Account must be taken of guidance adopted by the Council, particularly Conservation Area Appraisals and Reviews, the Shopfront Design and Security Guides and other guidance documents.”

The accompanying text on Saltaire World Heritage Site states that it is of international, national, regional and local importance to the District. “The village is a remarkably well preserved and outstanding example of a Victorian model industrial village.”

Section 7, “Monitoring” included an indicator IND12(EV) “The condition of the key views to and from the Saltaire World Heritage Site,” to be maintained or improved over each monitoring period.

The Saltaire World Heritage Site Management Plan

The Management Plan of the Saltaire World Heritage Site was published in December 2014 as a partnership document setting out a strategic frameworks and co-ordination for management and monitoring. The Plan is not a statutory document but informs and responds to other policies relating to the area. Appendix 7 of the Management Plan is an evaluation survey of the WHS setting and includes a key view analysis, identifies key detractor buildings/structures, important approaches/gateways and the Site’s immediate setting split into Zones.

Saltaire Conservation Area Appraisal

The Saltaire Conservation Area Appraisal was published in 2006 and forms part of the Evidence Base for the Local Plan.

Appendix 3: Saltaire Conservation Area Plan

Source: Bradford Council, Saltaire Conservation Area Appraisal, page 9 (2006).

Saltaire Conservation Area

Open Spaces, Trees, Views, Listed and Key Unlisted Buildings

Leeds and Liverpool Canal

SALTAIRE ROAD

VICTORIA ROAD

VICTORIA ROAD

Key

NB This map does not identify key trees individually, but merely indicates where there is at least one important tree.

Conservation Area Boundary Key open space Important tree(s) Key view or vista

Saltaire World Heritage Site Boundary Listed building Key unlisted building

Appendix 4: Historic Maps

Landmark Historical Map

County: YORKSHIRE Published Date(s): 1909 Originally plotted at: 1:10,560

Landmark Historical Map

County: YORKSHIRE Published Date(s): 1938 Originally plotted at: 1:10,560

Landmark Historical Map

Mapping: Epoch 5 Published Date(s): 1968 Originally plotted at: 1:10,560

C49 Architecture Ltd Heritage Mill, Huddersfield, HD4 7HG www.C49Architecture.co.uk Tel: 01535 281432 Email: [email protected]