North Area Committee 7th May 2009 Central South and West Area Committee 12th May 2009 Strategic Development Control Committee 27th May 2009 Application Number: 09/00321/LBD, 09/00322/FUL, 09/00323/CAC Decision Due by: 28th May 2009 Proposal: 09/00321/LBD: Listed Building Demolition for the demolition of the Acland Hospital and its later additions at 25 Banbury Road. 09/00322/FUL: Erection of 3 and 4 storey 'quad' building part fronting Banbury Road and 3 storey building fronting Woodstock Road to provide 248 student study bedrooms, 4 Fellows/ visitor flats, with associated teaching, office and research space and other ancillary facilities. Alteration to existing vehicular accesses to Banbury Road and Woodstock Road. 33 car and 210 cycle parking spaces. Recycling and waste bin storage. Substation. 09/00323/CAC: Conservation Area Consent for demolition of 46 Woodstock Road. Site Address: Keble College Land At The Former Acland Hospital And 46 Woodstock Road 25 Banbury Road, Appendix 1 Ward: North Agent: John Philips Planning Applicant: Keble College Consultancy Recommendation: North Area and Central South and West Area Committees are recommended to oppose the applications. Strategic Development Control Committee is recommended to refuse the applications for the reasons indicated below: 1. Loss of a listed building 2. Detrimental Impact on special character and appearance of conservation area 3. Detrimental Impact on setting of listed buildings 4. Loss of trees 5. Insufficient archaeological information Main Local Plan Policies: Oxford Local Plan 2001-2016 REPORT CP1 - Development Proposals CP2 - Planning Obligations CP3 - Limiting the Need to Travel CP6 - Efficient Use of Land & Density CP7 - Urban Design CP8 - Design Develop to Relate to its Context CP9 - Creating Successful New Places CP10 - Siting Development to Meet Functional Needs CP11 - Landscape Design CP12 - Designing out Crime CP15 - Energy Efficiency CP16 - Renewable Energy CP17 - Recycled Materials CP18 - Natural Resource Impact Analysis TR1 - Transport Assessment TR2 - Travel Plans TR3 - Car Parking Standards TR4 - Pedestrian & Cycle Facilities TR12 - Private Non-Residential Parking NE10 - Sustainable Drainage NE14 - Water and Sewerage Infrastructure NE15 - Loss of Trees and Hedgerows NE16 - Protected Trees HE2 - Archaeology HE3 - Listed Buildings and Their Setting HE7 - Conservation Areas HE9 - High Building Areas HS13 - Institutional Student Accommodation HS19 - Privacy & Amenity HS21 - Private Open Space ED7 - Oxford University - Additionl Developmnt ED8 - Oxford University - Student Accommodtn DS2 - Acland Hos Site - Ox Uni & Pri Care Facs Core Strategy – Proposed Changes CSP2 - Prev developed land & greenfield land CSP10 - Energy & natural resources CSP11 - Waste & recycling CSP14 - Supporting access to new development CSP17 - Access to education CSP18 - Infrastructure & Developer contributions CSP19 - Urban design townscape char & hist env CSP20 - Community safety CSP26 - Student accommodation CSP30 - The universities There are no policies in the Oxford Local Plan and Core Strategy that are relevant to applications for listed building consent and conservation area consent. REPORT Other Material Considerations: This application is in the North Oxford Victorian Suburb Conservation Area. It affects the setting of listed buildings adjacent and involves the demolition of a listed building. Relevant Site History: None Representations Received: Letters of comment can be summarised as follows: 1. Too high and bulky 2. Not in keeping/out of scale with local character; building too horizontal contrary to vertical emphasis of surrounding buildings 3. Over development of site 4. Too close to public pavement on both Banbury & Woodstock Roads 5. Pale brick not appropriate 6. Adverse impact on character and appearance of a Conservation Area 7. Adverse impact on setting of Listed Buildings and historic environment 8. No real attempt has been made to incorporate the listed and other existing buildings in to the development; proposed redevelopment options given are a brief nod in that direction whilst insisting on one outcome (total demolition) 9. T G Jackson building should be restored not demolished 10. Increased traffic pollution 11. Over-looking, overbearing and loss of light to neighbouring properties 12. Increase in noise and disturbance 13. Negative impact on local community 14. No special integrated link through to the ROQ site 15. Adverse impact on adjacent nursery from increased car pollution 16. Object to 33 car parking spaces on transport grounds Statutory and Internal Consultees: Thames Water Utilities Limited: Waste comments: No objection. Surface Water Drainage: it is recommended that storm flows are attenuated or regulated into receiving public network though on or off site storage. If connecting to public sewers drainage should be separate and combined at the final manhole nearest the boundary. Connection is not permitted for the removal of ground water. Discharge to public sewers requires TW permission. Sewerage infrastructure: no objection however, proposed foul flows should be taken out onto Banbury Road as there is a capacity issue in Woodstock Road. Water comments: No objection. There is a water main crossing the site that may/will need to be diverted. Environment Agency Thames Region: No objection subject to conditions imposed relating to contamination Highways Authority: No objection, subject to conditions. See main report. English Heritage: (Consulted on proposed demolition of listed building and the scale of the redevelopment site within a designated conservation area.) Summary: The Acland Home is a Grade II listed building, dating from 1897, which has significance because of its historical, aesthetic and communal values. The proposed new buildings will dominate the street scene on both roads. English Heritage does not consider that the case submitted for demolition has adequate REPORT justification and we consider that the listed building could be incorporated into a revised scheme. Some amendments to the design could mitigate its impact on the conservation area. Demolition of the Listed Building; Objects to demolition and considers that it has much more significance than the Heritage Statement suggests. It has historical associations with T G Jackson and Sir Henry Acland. It’s communal and historic values lie in its commemoration of Sarah Acland and illustrates a phase in the development of The Sarah Acland Memorial Nursing Home that opened in 1897. The Home pioneered nursing care for the poor of Oxford and provided, at cost, nursing for the middle classes. The national importance of this occasion is evidenced by the presence of the Prince of Wales at the opening. Aesthetically, it is a good example of Jackson’s work, the design and detailing being more restrained than no. 21, rather than being less well executed, as suggested by the Heritage Statement, as befits an organisation with limited resources available. Apart from the corridor link obscuring the main entrance, subsequent alterations have not diminished its aesthetic qualities. Internally, the plan form remains substantially intact, although finishes have been altered. The building, therefore, is of considerable significance, and should be retained unless there are overriding reasons for its demolition. The considerations set out in PPG15 para 3.19 have not been met. Demolition of unlisted buildings on site; Does not object to their demolition though it considers that the Heritage Statement does not articulate the full significance of these buildings. The unlisted Lodge building is dismissed as being of anomalous design and materials and making no contribution to the quality of the area. We disagree with this assessment and consider that it fits in with the mixed character of this part of the conservation area and makes a positive contribution to the street scene. We do not, however, object to its demolition if this is required to facilitate the development of the site. Impact on conservation area: Character of the area is more of large, individual buildings of a vertical emphasis standing in their own plots. While some of the development on site has eroded this character to a certain extent, glimpsed views of the listed building and large trees remain from Banbury Road. On the Woodstock Road the Lodge and its garden retain this character and make a positive contribution. There is no need for the new development to be of uniform design; a variety in design would not look out of place. Proposed buildings would dominate both road frontages. Banbury Road, proposed frontage; Despite its articulation the building is massive, has a horizontal emphasis and would be set forward of the existing building line. This impact could be reduced by setting it back to the existing building line. Pedestrians would not experience the sunken garden separating the building from the footway as a characteristic front garden. Woodstock Road, proposed frontage; While we are happy with the non-traditional design of this building we consider the impact of this frontage could be reduced by setting it back. Creation of a pedestrian route; Supports link with Radcliffe Infirmary site, but the formal tree-lined avenue appears at odds with the character of the conservation area and takes up valuable space on the site. Questions extensive numbers of car parking and wonders if servicing could be achieved in a more informal way. The Victorian Society; (Statutory consultation on demolition of listed building) Recommends