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HISTORIC HERITAGE

All policies are superseded by policies from the Core Strategy

133. This chapter supplements 'Design' by focusing on the contribution of the conservation areas and historic buildings to the character and appearance of the Borough. The following policies represent the Borough Council's continuing commitment to Historic Heritage by complementing assessments of the conservation areas, advice on listed buildings and the funding of repairs and townscape improvements. The Borough Council seeks to conserve and enhance the historic character of towns and villages with particular attention to buildings and areas which are of architectural, historic or archaeological interest. The Borough has a wealth of buildings of architectural and historic value and approximately 300 are included on the Statutory List. Some 60 buildings have also been included on the Borough Council's List of Buildings of Local Interest. The Borough Council has also been successful in conserving the townscape of the conservation areas by ensuring appropriate development, well-designed buildings, refurbishment, environmental improvements and traffic management.

134. Although the Borough Council plays a leading role in conservation it is the Secretary of State for Culture, Media and Sport who is responsible for the legislative and policy framework, listing buildings of special architectural and historic interest, exercising statutory powers for the repair of historic buildings and the designation of conservation areas. Scheduling ancient monuments, deciding applications for consent and the funding of heritage agencies are also within the responsibility of the Secretary of State. English Heritage provides advice to the Secretary of State and local authorities in relation to ancient monuments, historic buildings and conservation areas and makes grants and loans for conserving heritage. Registers of parks and gardens of special historic interest are also compiled and English Heritage sponsors surveys of listed buildings at risk.

CONSERVATION AREAS

135. The conservation areas which have been designated include the historic cores of Havant and Emsworth, smaller groups of buildings at Lymbourn Road and North Hayling and the nineteenth century parkland created for Sir George Staunton and his successor William Stone. All the conservation areas indicate the Borough's historical development thus contributing to its appearance and character.

136. PPG15: Planning and the Historic Environment, points out that local authorities have a duty under Section 69 of the Planning (Listed Buildings and Conservation Areas) Act 1990 to review existing designations from time to time and to consider whether protection should be extended. The Borough Council will periodically review the conservation areas which are shown on the Proposals Map and will consider whether extensions and further designations are justified in order to strengthen the protection of the setting of existing designations or for conserving the distinctiveness of local areas.

137. Between 1993 and 1994 each of the conservation areas was reviewed and where appropriate boundaries were adjusted. The review has been published as Conservation Areas in Havant which describes the special architectural and historic interest of each area against which the Council will judge any proposal for change which may come forward.

HE1 DEVELOPMENT IN CONSERVATION AREA

Development which would be detrimental to the character and/or setting of conservation areas will not be permitted. The special architectural character and historic interest of each of these conservation areas is described in 'Conservation Areas in Havant' which will be adopted as supplementary planning guidance. Where it is considered essential, the Borough Council will seek to bring developments under planning control by means of Article 4 directions. Development will not be permitted if it would lead to levels of traffic, parking, noise or other environmental problems which would be detrimental to the character of the conservation area and/or its setting.

138. Inappropriate development both in and near conservation areas has damaging effects on their character and appearance. Individual developments may not be significant in themselves but cumulatively they could have a major impact. Such changes include those which result from permitted development rights. The Borough Council may therefore seek to withdraw these rights for proscribed types of development. However, it is not just the development itself which can damage the townscape of conservation areas. For example, car parking can break up the historic pattern of development and additional traffic could cause unacceptable noise, danger and congestion for residents and businesses.

139. New uses may be the key to the continued viability and vitality of conservation areas. However, the incremental loss of a particular type of use may gradually lead to change in the character of an area. Alterations to buildings, in order for new uses to be accommodated, may also be unacceptable. Each proposal would need to be judged on its own merits and the Borough Council will have regard to the nature and scale of the development proposed as well as noise and traffic.

Design in Conservation Areas

140. The designation of conservation areas does not prevent change. In some instances development may be beneficial particularly in gap sites. The potential for development should be a stimulus for imaginative, high quality designs and be seen as an opportunity for enhancement. Attractive new development can be achieved provided that it respects topography, natural and historic features, follows the principles of scale, height, massing and alignment and uses appropriate materials. What is important is that new buildings should be designed with an understanding of their context in order that they harmonise with their surroundings rather than simply imitating earlier styles. It is essential to show how proposals can be integrated into, and enhance, the townscape. Therefore, only applications for full planning permission are considered appropriate. Policy D1 High Quality Design is also applicable to proposals in conservation areas.

HE2 DEMOLITION IN CONSERVATION AREAS

Proposals to demolish buildings in conservation areas will not be permitted unless all of the following apply:

(i) The building is beyond reasonable repair.

(ii) Satisfactory efforts have been made to retain the building in use.

(iii) The replacement development will not be detrimental to the character or appearance of the conservation area.

(iv) A contract has been let for an approved scheme of redevelopment and planning permission granted.

(v) The structure or building proposed for demolition makes no material contribution to the character or appearance of the area.

Where relevant the following criteria will also be applied:

(vi) The treatment of the vacant site, where no subsequent redevelopment is proposed, will not be detrimental to the character and appearance of the area.

(vii) A programme for recording the building is approved by the Council and implemented prior to the demolition.

141. The Borough Council will seek to retain buildings which make a positive contribution to conservation areas by adding townscape interest and character. Proposals for demolition will be judged against the same criteria as listed buildings as contained in PPG15 paras 3.16 to 3.19 (see Policy HE5). Even where the building makes little or no worthwhile contribution to the townscape, the Borough Council needs to have full information about the proposals for the site before demolition can be approved. Where early demolition is inappropriate, because it would result in an ugly gap site, the Borough Council will impose conditions so that demolition cannot take place until a contract for an approved redevelopment scheme has been made.

HE3 SHOPFRONTS, ADVERTISEMENTS AND SECURITY

SHUTTERS IN CONSERVATION AREAS AND ON LISTED BUILDINGS

Shopfronts, signs, security shutters and advertisements will not be permitted where they would be detrimental to the character of buildings and their surroundings.

142. The Borough Council is aware that advertising is essential to commercial activity. Well designed shopfronts enhance the character of the conservation areas and it is important that security shutters do not damage their appearance. Unless carefully designed, new shopfronts can have a detrimental effect on the appearance of individual buildings and the street as a whole. Unnecessary and inappropriate signs disfigure buildings and clutter the streetscene. Some shutters obscure the shopfronts and the window displays and at night block out light thereby creating darker streets which appear less safe.

143. In the St Faiths and Emsworth Conservation Areas design guides have been approved for advertising and signs and also for shopfront alterations and replacements. The Council has also approved a design guide relating to roller shutters. The Town, District and Local Centres Chapter contains policies (TC14 and TC15) on Shopfronts and Security Shutters.

HE4 ENVIRONMENTAL IMPROVEMENTS IN CONSERVATION AREAS

The Borough Council will continue to identify and implement environmental improvements in conservation areas as resources permit.

144. For many years the Borough Council has been proactive in enhancing the historic townscape and has a continuing commitment to identify and promote further enhancement schemes in Conservation Areas. Proposals will comprise improvements to the appearance and attractiveness of public spaces and frontages including refurbishments, paving, tree and shrub planting, lighting, street furniture, boundary treatment and signage.

HE5 LISTED BUILDINGS PRESERVATION OF LISTED BUILDINGS

The Borough Council, when considering applications for development, will have regard to the desirability of preserving the character and identity of each listed building, any group of buildings to which it relates and its setting.

Buildings of architectural or historic interest should be preserved unless there are overriding justifications for demolition.

145. Listed buildings are nationally important since they are the best of our historic and architectural heritage and because they are an irreplaceable asset. PPG15 points out that there should be a general presumption in favour of preserving listed buildings. The general criteria for considering listed building consent applications are:

(i) The importance and intrinsic architectural and historic interest of the building and its rarity, nationally and locally.

(ii) The design of the building.

(iii) The building's setting and its contribution to the local scene.

(iv) The extent to which the proposed works would bring substantial benefits to the community.

These criteria are explained more fully in paragraphs 3.5 to 3.6 in PPG15.

146. The criteria for considering proposals for demolition are more fully explained in paragraph 3.19 of PPG15 and refer to:

(i) The condition of the building, the cost of repairing and maintaining it in relation to its importance and the value derived from its continued use.

(ii) The adequacy of efforts made to retain the building in use.

(iii) The merits of the alternative proposals for the site.

147. Applications for listed building consent and planning permission need to show why the works are desirable or necessary. Sufficient information should be shown for the Borough Council to assess the impact of the proposal on the architectural or historic interest of the building and its setting. Applications for full planning permission should be made and accompanied by an application for listed building consent. Applicants are encouraged to discuss proposals with Council staff before final applications are submitted.

148. Legislation imposes a number of restrictions and requirements relating to listed buildings. The Borough Council has produced a brochure entitled Listed Buildings - A Guide to Owners which explains these responsibilities. Advice is also available from Council staff and grants may be available to meet the additional costs of repair and maintenance.

HE6 CHANGES OF USE TO LISTED BUILDINGS

Planning permission will be granted for changes of use to listed buildings provided one of the following apply:

(i) The new use is required to secure retention, repair and rehabilitation.

(ii) The change would not result in alterations which would be detrimental to the building's character.

149. The best way of securing the upkeep of historic buildings is to ensure that they have a viable use. While the best use is the one for which the building was originally designed there may be instances where change is required to secure its future. In these cases it is important to balance the economic viability of new uses against the effect of any changes to the special architectural or historic interest of the building. Therefore, the aim is to identify the best use which is compatible with conserving the historic fabric, interior and setting of the listed building (see Policy HE16: Enabling Development and the Conservation of Heritage Assets).

HE7 EXTENSIONS AND ALTERATIONS TO LISTED BUILDINGS

Extensions and alterations (internal and external) which would adversely affect the architectural or historic character of a listed building will not be permitted. The Borough Council will require the recording of features which would be destroyed by the proposed works for which consent is being sought.

150. Historic buildings are listed by the Secretary of State for Culture, Media and Sport under Section 1 of the Planning (Listed Buildings and Conservation Areas) Act 1990. There are three grades (I, II* and II) which give an indication of their relative importance. In addition some buildings are included on the list of buildings of local interest. (See Policy HE10).

151. Once a building has been listed, or is the subject of a building preservation notice, consent is normally required for demolition, alteration or extension which would affect its architectural and historic character. It is a criminal offence to carry out such works without the consent of the Borough Council. Controls apply to all external and internal works which would affect the building's special interest. However, consent is not normally required for repairs unless these involve alterations.

152. Applicants need to justify why proposed alterations and extensions are desirable or necessary. The criteria for deciding applications for consent are:

(i) Importance of the building including its intrinsic architectural interest and rarity.

(ii) Particular physical characteristics such as design, layout, plan, materials and location.

(iii) Setting and contribution to the local scene, for example, where the building forms part of a group, park, garden, townscape or landscape.

153. The grading of the building is a material consideration in controlling alterations and development. However, the statutory controls apply equally to all listed buildings irrespective of their grading.

154. Listed buildings vary greatly in the extent to which they can accommodate change without loss to their character. When considering applications for development and listed building consent, the Borough Council will be concerned that features are retained both inside and outside the building. Detailed guidance is contained in Annex C of PPG15. Reference should also be made to the Borough Council's Development Control Advice Note No.7: Home Extensions Design Guide and the leaflet Listed Buildings - A Guide to Owners.

155. Most listed buildings have undergone change and therefore exhibit features which represent more than one period in the building's history. These changes reflect the evolution of the building and are part of its character. Repair is therefore the right approach rather than replacement by new building but it is rarely acceptable to 'restore' a building to one period in its history.

156. Applications for planning permission and listed building consent must include drawings and plans which show the impact of the proposals on features of special interest. The Borough Council will normally expect an applicant to submit concurrent and related applications for planning permission, listed building consent and building regulations consent. The proposed ways of achieving building and fire regulation requirements will also need to be made clear before an application can be determined.

HE8 SETTING OF LISTED BUILDINGS

Development proposals which would adversely affect the setting of listed buildings will not be permitted.

157. The setting of a listed building is often essential to its character. Much of the building's interest can be lost if the setting is destroyed or harmed. What constitutes a setting can vary widely from building to building and should not be interpreted too narrowly. The setting may be limited to neighbouring land and buildings but may extend over a wider area. In an urban street the setting may include a number of other properties. Where a listed building forms an important visual element in the street it would probably be right to include all the streetscene within the setting of the building. A high or bulky building might also affect the setting of a listed building some distance away or alter views of a historic skyline.

HE9 HISTORIC PARKS AND GARDENS

Development proposals will not be permitted which harm the character, appearance, features or setting of parks or gardens of historic interest.

158. Historic parks and gardens contribute to the attractiveness and character of the urban landscape and the countryside while being of value for wildlife. This policy seeks to safeguard parks and gardens which are examples of landscape history and design and includes those which are substantially unaltered as well as the planting and features which have remained following development. Some parks have been largely developed such as Purbrook Park and Stakes Hill Lodge. However relic features which remain should not be swept away since they add to local distinctiveness. Where open spaces remain they provide the settings for historic buildings, as at The Manor, South Hayling. The park at Hollybank House and Wade Court took advantage of views over Chichester Harbour. Leigh Park, which forms part of the Staunton Country Park, is the most significant designed landscape in the Borough and is classified as Grade II* in the Register of Parks and Gardens of Special Historic Interest in England which has been compiled by English Heritage.

159. A number of parks and gardens which are of local importance have been included in the Hampshire Register of Historic Parks and Gardens which has been published by the County Council in association with the Hampshire Gardens Trust. Some of the sites included in this register have been developed although trees and other features from the former landscapes remain. Most of the parks and gardens are not accessible to the public although some, notably Havant Park, are significant public open spaces. An extract from the Register and Plan HE9 identify the parks and gardens in the Borough and their location. The list of parks and gardens will be kept under review and revised on the basis of historical research.

Extract from the Hampshire register of Historic Parks and Gardens

Havant Borough Council

Site ID	Place name Parish	Status	Type of Garden/Park	Main Period
1781	Bedhampton		Deer Park	Pre 1540
	Havant
1646	Belmont		Pre 1810 Park	1540-1749
	Bedhampton (E)
1645	Belmont Castle	LBII	Garden	1870-1939
	Bedhampton (E)
1895	Bidbury Mead Recreation Ground		Public Park
	Bedhampton (E)
1671	East Leigh	LBII	Post 1810 Park
	Havant
1647	Elms, The	CA, LBII*	Garden	1750-1809
	Bedhampton (E)
1648	Gazebo Garden, The	CA, LBII	Public Garden	1750-1809
	Havant
1674	Gothic Lodge		Garden	1870-1939
	Hayling Island (E)
1650	Hall Place	CA, LBII	Garden	1750-1809
	Havant
1651	Hart Plain House		Post 1810 Park	1870-1939
	Waterlooville (E)
1841	Havant Cemetery		Cemetery
	Havant
1652	Havant Park		Public Park	1870-1939
	Havant
1672	Helmsley House		Garden
	Havant
1661	Hollybank House	LBII	Post 1810 Park	1810-1869
	Havant
1668	Keydell House		Post 1810 Park	1870-1939
	Havant
1657	Manor House	CA, LBII	Garden	1810-1869
	Bedhampton (E)
1676	Manor House	LBII	Garden	1750-1809
	Hayling Island (E)
1654	Oaklands R.C. School	LBII	Post 1810 Park	1810-1869
	Waterlooville (E)
1824	Old Mill House	CA	Garden
	Havant
1658	Old Rectory, The	CA, LBII	Garden	1750-1809
	Bedhampton (E)
1655	Park Wood	SINC	Ancient Woodland	1870-1939
	Waterlooville (E)
1656	Purbrook Park School	LBII	Pre 1810 Park
	Purbrook (E)
1659	Sandy Dell	SINC	Ancient Woodland	Post war
	Purbrook (E)
1673	Sinah Warren	SINC	Garden	1870-1939
	Hayling Island (E)
1660	South Leigh Park	LBII	Post 1810 Park	1810-1869
	Warblington (E)
1825	St Michael's Convent and Sacred Heart Church	LBII	Cemetery Garden	1870-1939
	Waterlooville (E)
1662	Stakes Hill Lodge		Post 1810 Park	1810-1869
	Waterlooville (E)
1653	STAUNTON COUNTRY PARK (Leigh Park)	EH II*, CA, SINC	Post 1810 Park	1810-1869
	Havant
1663	Wade Court	AONB, CA, SINC, LBII	Post 1810 Park	1870-1869
	Warblington (E)
1664	Warblington Castle	AONB, CA, AHBR	Deer Park	1540-1749
	Warblington (E)
1839	Warblington Cemetery	AONB, CA	Cemetery
	Warblington (E)
1666	Warblington House		Garden
	Warblington (E)
1665	Warblington Lodge		Garden	1870-1939
	Warblington (E)
1842	Waterlooville Cemetery		Cemetery
	Waterlooville (E)
1667	Waterlooville Recreation Ground		Public Park	1870-1939
	Waterlooville (E)
1822	Wecock Common	SINC	Ancient Woodland	Pre 1540
	Waterlooville (E)
1669	West Leigh		Post 1810 Park
	Havant
1675	Westfield House		Garden	1870-1939
	Hayling Island (E)

Key: CA = Conservation Area, EH = English Heritage Registered Site with grade,

LB = Listed Building with grade, AONB = Area of Outstanding Natural Beauty,

AHBR = Archaeology and Historic Buildings Record

HE10 BUILDINGS OF LOCAL INTEREST

Planning permission will only be granted for alterations and/or extensions provided they do not adversely affect the architectural character of buildings included in the List of Buildings of Local Interest, or their settings.

160. There are many buildings which are not listed because they do not meet the criteria set out in the Planning (Listed Buildings and Conservation Areas) Act 1990. However, such buildings can contribute significantly to local distinctiveness. For this reason the Borough Council has adopted a list of buildings of local interest. The list includes landmarks and buildings with architectural merit, historical or cultural associations, townscape quality and relevance to the historic development of the Borough. When considering development proposals the Borough Council will discourage the demolition of these buildings, have regard to the preservation of their character and expect their settings to be safeguarded.

HE11 PRESERVATION OF ARCHAEOLOGICAL SITES AND

MONUMENTS OF NATIONAL IMPORTANCE

Development that would adversely affect a Scheduled Ancient Monument or other nationally important archaeological features, or their settings, will not be permitted.

161. Archaeological remains are vulnerable to damage and destruction, those which are protected as Scheduled Ancient Monuments under the Ancient Monuments and Archaeological Areas Act 1979 are protected under the provisions of the policy and their locations are shown on the Proposals Map.

HE12 PRESERVATION OF ARCHAEOLOGICAL SITES AND

MONUMENTS OF LOCAL IMPORTANCE

Development that would adversely affect archaeological sites or features of local importance or their settings, will not be permitted unless the need for the development outweighs the need to preserve the site or feature.

162. There are important sites which are not scheduled ancient monuments, such as the Wadeway which connects Langstone to Hayling Island and the Roman Villa at Warblington. Where development can be justified and damage to the archaeology can be avoided by modifications to the layout, preservation of the remains in situ, is preferred. The Council will seek to ensure satisfactory preservation and protection and, where appropriate, the interpretation of the remains.

HE13 ARCHAEOLOGICAL ASSESSMENTS

Applications for development which are likely to affect archaeological remains should be accompanied by an assessment of their value, the impact of the proposals and the opportunities for conservation. Such an expert assessment will have to be prepared and approved by the Council in advance of any formal determination of the relevant planning application.

163. If there are indications that important archaeological remains exist, an archaeological field assessment should be carried out. This is necessary to define their type and extent and therefore provides information which is useful for identifying the potential for minimising or avoiding damage.

HE14 ARCHAEOLOGICAL INVESTIGATIONS

Where the preservation of archaeological remains is not possible or feasible development should not begin until an agreed programme of archaeological investigations and recording has been carried out to an acceptable professional standard and at the applicant's expense.

164. Where the destruction of archaeological remains is justified, detailed information is required before the remains are lost. Although every effort should be taken to preserve features of archaeological interest it will not be practicable, necessary or desirable to retain all these in situ in development sites. Thorough recording is therefore essential and this should be based on advice from professional archaeologists. Developers are expected to take the initiative in obtaining this advice at an early stage once it is clear that preservation is not justified for archaeological reasons.

HE15 ROADS WITH SPECIAL CHARACTER

Along the following roads planning permission will only be granted for development and improvements which do not adversely affect their special character:

London Road, Waterlooville (from Hulbert Road to Silvester Road, Cowplain)
Leigh Road, Havant
Emsworth Road, Havant (from Bellair Road to Warblington Avenue)
Hulbert Road, Bedhampton (from Bedhampton Road to Purbrook Way)
Hulbert Road (north of Purbrook Way to A3M junction)
Sinah Lane, Hayling Island
Stamford Avenue, Hayling Island
Staunton Avenue, Hayling Island
Salterns Lane, Hayling Island
Hollybank Lane (northern end) and Long Copse Lane, Emsworth
New Brighton Road (southern end) and Horndean Road, Emsworth
Havant Road, Emsworth
Warblington Road, Emsworth
Webb Lane, Hayling Island
Bacon Lane, Hayling Island

165. These roads have a special character because of mature trees and shrubs. For example, along Hulbert Road north of Purbrook Way there is the experience of passing through a woodland and Horndean Road is an attractive entrance to Emsworth. Other roads contribute to the character of the suburban environment. All the roads referred to in this policy contribute to local distinctiveness and to the Borough's identity and should be conserved by ensuring that any developments and improvements are sympathetic to their tree-lined character.

HE16 ENABLING DEVELOPMENT AND THE CONSERVATION OF HERITAGE ASSETS

Planning permission will not be granted for development which is intended to secure the conservation of heritage assets unless all of the following criteria can be met:

(i) Proposals will not adversely affect the archaeological, architectural, historic or landscape value of the asset or its setting.

(ii) The proposal ensures a coherent approach to managing the asset in the future.

(iii) The enabling development will ensure the long-term conservation of the asset and its continued use for an appropriate purpose.

(iv) The need for enabling development has arisen entirely from conservation problems.

(v) Sufficient financial assistance is not available from other sources.

(vi) It can be demonstrated that the enabling development is the minimum necessary to achieve the Borough Council's conservation objectives.

(vii) The impact of the development is minimised in terms of the proposed uses, layout and appearance.

(viii) The conservation benefits outweigh any disbenefits to the community of permitting the enabling development.

The Borough Council will only consider full planning applications and may seek an agreement under Section 106 of the Town and Country Planning Act, 1990 to secure the conservation objectives of the development. Repairs should be to an agreed standard and the funds required should be available before the completion of the development.

166. The Borough Council recognises that the flexible application of planning and transport policies may assist the retention and upkeep of the historic heritage. However, proposals should not be viewed by applicants as a means of circumventing policies which should otherwise be enforced. English Heritage has become increasingly concerned by the adverse effects of some developments which have been proposed as a means of benefiting heritage assets such as archaeological remains, historic buildings, conservation areas, parks and gardens. This issue is discussed in Enabling Development and the Conservation of Heritage Assets (English Heritage, 2001) which contains the full justification for this policy.

167. Enabling development which harms the heritage which it is intended to conserve is clearly ineffective. For example, it is unacceptable for development which is proposed for financing the repair of a listed building to damage its setting. The integrity of designed landscapes, for example, depends on coherent and consistent long-term management which is based on a clear understanding of the whole and its component parts. The fragmentation of ownerships can result in deterioration in the longer term. In some cases the conservation objectives might be achieved but only at the expense of the viability of alternative uses, for example by reducing amenity or servicing space. The enabling development should be related directly to overcoming specific conservation problems rather than, for example, an owner's inability to finance repairs. This is not a valid reason for permitting development and in such circumstances English Heritage advises that a repairs notice should be considered.

168. Even if repair and conversion costs will exceed the market value resulting from the optimum viable use, enabling development will not be permitted unless the applicant can provide evidence that all sources of financial support have been fully investigated without success. Enabling development should only be considered as a last resort. Since the proposal may cause disbenefits it needs to be scrutinised to ensure that these are reduced to a minimum while maximising the conservation benefits. This means evaluating options in relation to the guidance provided by English Heritage. The uses being proposed and the design of the development require careful assessment and guidance is contained elsewhere in the Local Plan mainly in the Design chapter.