Supplementary Planning Guidance
Residential Areas of Special Character
Draft for Public Consultation
October 2001
Guildford Borough Council
Department of Environment & Planning
Services
Millmead House
Millmead
Guildford
Surrey
GU2 5BB
Further information
For more information about this Supplementary
Planning Guidance please contact:-
Sean Quigley
Senior Planner
01483 444662
[email protected]
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Page |
Summary |
1 |
1.0 Introduction |
1 |
2.0 Planning Policies |
2 |
3.0 Proposals |
7 |
4.0 Residential Areas of Special Character |
8 |
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Plans of Residential Areas of Special Character: |
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Plan 1 � Holy Trinity |
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Plan 2 � Merrow & Burpham |
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Plan 3 � Merrow, Burpham & Christchurch |
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Plan 4 � Christchurch |
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Plan 5 � Holy Trinity |
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Plan 6 � Friary & St. Nicholas |
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Plan 7 � Christchurch |
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There are a number of established residential areas within Guildford that have a distinctive character which sets them apart from the generality of residential development.� The characteristics that distinguish these areas are low densities, a prevalence of mature trees and other greenery, large gardens, distinctive boundary walls and other boundary treatments, and significant spaces between buildings. There is increasing concern that residential development proposals including infill development, extensions and conversions are eroding the attractiveness of these areas.� This Supplementary Planning Guidance is intended to help safeguard such areas from inappropriate residential development.
1.1��� Within the existing built-up areas of Guildford there are long-established lower density residential areas whose character and appearance form a strong element in the perception of Guildford�s �sense of place�. Such areas are often characterised by large villas, or similar properties, set in large gardens. These are usually very large single houses in a spacious environment with mature gardens and specimen trees.
1.2��� There is increasing concern about the effects of redevelopment proposals on the character of these areas. Typically, such proposals are for the demolition of an existing large house and its replacement with higher density residential development, the conversion and extension of larger dwellings in to flats, and infill development in the spaces between houses. Two separate, but related concerns can be identified. They are;
� the loss of older, �character� houses as a result of infill and redevelopment proposals
� the detrimental effects of residential development proposals on the character and appearance of low density areas
1.3��� Properties in the affected areas have large gardens and there is a tendency for owners to propose the sub-division of the land to create a new housing plot or plots. Typically, the resulting plot is significantly smaller than that which characterises the area, and the attractive setting of the original houses and their surroundings can be spoilt. In addition, trees and shrubbery are removed not only to clear the building footprint and for access but also incrementally over time to give more light to the new properties and gardens.� Front hedges tend to be removed for access and visibility and significantly more hard surfaces are introduced for turning and parking. The individual and cumulative effects of this type of development can significantly detract for the established quality of some residential areas.
1.4��� Whilst there has been some infilling of the areas proposed to be covered by this Supplementary Planning Guidance, their overall quality has remained. It is the Council�s intention to critically examine residential development proposals in these areas to ensure that the features which have lead to their identification as residential areas of special character are retained.
1.5 One reason concern has arisen is that these areas of special character often do not contain listed buildings and do not meet the criteria for designation as Conservation Areas where additional controls exist.� Unless situated within a conservation area or statutorily listed, individual buildings can be demolished without the need for planning permission and there can be no overriding policy presumption against their redevelopment.� However, before demolition, a prior notification application is required in respect of the method of demolition and any proposed restoration of the site. If the building lies within a conservation area, an application seeking Conservation Area Consent must be made, independent of any planning application to redevelop the site.� Details of any redevelopment proposals are usually sought where demolition of the building would adversely harm the character or appearance of the conservation area.� Listed Building Consent is required for the demolition or alteration of any part of a Listed Building.
1.6 It is recognised by the Council that there is a need to strike an appropriate balance between the need to protect the character of established residential areas and the need to achieve the efficient use of scarce land resources in accordance with PPG3 - Housing.� The Borough Council is committed to providing sustainable forms of residential development including appropriate infill and the conversion of existing dwellings in the urban area.
1.7 Suitable infill development, in appropriate locations, makes an increasingly important contribution towards meeting housing needs and reducing pressure for development in the Green Belt and other greenfield areas. This Supplementary Planning Guidance has been drafted to enable the Council to protect the character of particular residential areas from the detrimental effects of redevelopment proposals. The areas of special residential character are defined on the maps at Annex 1.� Whilst some elements of this guidance are new, the opportunity has also been taken to bring together relevant extracts from the Deposit Draft Guildford Borough Local Plan and other sources in one publication for ease of reference.
2.1��� Relevant policies of the deposit Draft Guildford Borough Local Plan allow for residential development in the existing urban area of Guildford provided that it does not have an adverse effect on the character or amenities of the area in which it is located.� The conversion of larger houses into additional dwellings will also be permitted provided there is no detrimental impact on the character of the area. Other plan policies set out the design considerations that will be important in assessing proposals, including extensions to existing dwellings, with particular reference to the effect on the existing pattern of development. Relevant Deposit Draft Plan policies are set out below;
99G2 Design Code
All development proposals will be expected to comply with the following design requirements:
99G2 (1) Context for Design
New development respects established street patterns, plot sizes, building lines, topography, established views, landmark buildings, roof treatment, aspect and other townscape elements.
It is necessary to assess the existing context, whether urban or rural, of a development site when a development is designed and subsequently evaluated.� This may be an historic street pattern, or mediaeval building plots.� Alternatively it could mean the character and appearance of the surrounding buildings. Some buildings are landmarks, known to the public and easily recognisable.� These should be given proper regard to ensure that they are retained and their settings preserved.
99G2 (2) Scale, Proportion and Form
New buildings respect the scale, height and proportions and materials of the surrounding environment.
The scale and height of new development, is extremely important.� New buildings should respect the scale and proportions of the existing built forms.� There are a number of buildings in the Town Centre which, if redeveloped, should be reduced in size and conform to the principles of the Design Code.
99G2 (3) Space Around Buildings
Existing spaces of value are respected and new spaces created through development should have an attractive and identifiable character.
Wherever new development is proposed it is essential that any existing spaces, which contribute to the character of an area, are respected and that any new spaces, which are created, have an attractive and identifiable character.� The dimensions and proportions of a square or courtyard will determine the appropriate height and scale of the buildings around it.� Glimpses of buildings and the surprise achieved by the enclosure of the space and unexpected vistas or views of important buildings will encourage the enjoyment of and delight in the built environment.
99G2 (4) Street Level Design
Buildings and spaces at pedestrian level provide visual interest and a sense of place and identity.
It is important that high priority is given to the provision of visual interest at street level.� This will ensure that the building is attractive to the pedestrian and those who use it.� Details such as ground floor windows and doors, decoration, high quality materials, boundary treatments, even the use of art, can be used to give a building identity and character.� Blank frontages should be avoided.
99G2 (5) Layout
The built layout is easily understood by the user and creates areas of identifiable character.
The user should easily understand the built environment and new development should create areas of identifiable character.� The key physical elements in this process are paths, streets and alleys, focal spaces, landmarks and distinct districts.� New designs should respect the existing elements of an area and incorporate the key physical elements to ensure that the public and the users of the buildings easily comprehend the development.
99G2 (6) Public Views and Roofscape
Public views are protected and opportunities to create attractive new views and vistas are provided and encouraged.
The topography of the Borough, and of Guildford Town in particular, allows many fine views, vistas and skylines.� In rural areas too, the character of the Borough means that developments may be visible from great distances.� Flat roofs should be avoided in most circumstances and roof features such as chimneys, dormers, cupolas and clock towers should be used to add interest to the skyline.� Plant and machinery such as air conditioning and window cleaning equipment should be located within the roof, not visible externally.� Important public views must be protected and opportunities to enhance these views together with the approaches into the Town and the villages should be considered.
99G2 (7) Materials and Architectural Detailing
Materials are of a high standard and harmonise with surrounding buildings.� Detailing on new buildings is durable and reinforces the identity and character of an area.
Materials used in new development should respect its existing context.� Regional identity is partly derived from the use of local materials and the preservation and promotion of the Surrey style is extremely important.� This is a style of domestic architecture that evolved during the latter part of the nineteenth and early twentieth centuries.� It is characterised by its hand-crafted appearance and is a traditional architectural form which incorporates leaded light and casement windows, timber framing, plain clay tiled roofs and tile hanging with the use of local materials to reflect the Surrey vernacular.� In some circumstances however it is appropriate to use a high quality modern material, and architectural innovation should not be stifled.� Traditional details such as sash windows, traditional brick bonds, paneled doors all contribute to the quality and visual interest of an area.� In new developments respect should be given to existing architectural features and details in the locality.� This helps to reinforce local character and identity.� Again, in some circumstances, it is appropriate to use a modern finish or detail but these should be durable and of a high quality.
99G2 (8) Traffic, Parking and Design
The visual impact of traffic and associated access and parking is minimised, especially in sensitive locations.
Highway improvements and other measures associated with new development should preserve or enhance the character or appearance of sensitive areas.� This may mean that highway standards are reduced to alleviate the impact of traffic and parking. Where new development proposals include street furniture, this should respect and accord with local traditions and distinctiveness.
99G2 (9) Landscaping
A high standard of landscaping, to include walls, enclosures and paving schemes, as well as trees and other planting is provided to ensure that new development integrates into the existing townscape.
Careful landscaping can complement new buildings and help integrate new development into its surroundings.� Landscaping includes walls, paving, planting beds, as well as trees shrubs and lawns.� A high standard of landscaping will be required as part of new development proposals.� Existing trees should be retained and replacements planted if necessary.� Landscaping proposals must be realistic in their designs to ensure that such schemes survive the early years and become established and are easily maintained.
99G2 (10) Open Spaces of Value
Open spaces, whether public or private, which contribute to the character of an area, in terms of the views they create, the feeling of openness they allow, are protected.
Open space, whether or not there is public access, is important for its contribution to the quality of life.� Such space needs to be protected because of its visual characteristics, which may be quite different to its conservation or recreational potential.� More detailed policies regarding open space are contained within the Recreation Chapter of the Plan.
Where necessary the Council will prepare development briefs for environmentally sensitive and major sites.� These will set out detailed guidance regarding townscape, acceptable land uses and the level of development considered appropriate.� In addition, the Council has produced Supplementary Planning Guidance to provide more detailed guidance on specific types of proposal.
Policy 99H4� Housing in Urban Areas
Planning permission will be granted for residential development in the urban areas of Guildford and Ash and Tongham provided that the development:
1. Is in scale and character with the area and avoids the adverse effects of overdevelopment;
2. Has no adverse effect on the amenities enjoyed by the occupants of buildings in terms of privacy and access to sunlight and daylight;
3. Has no adverse effect on the existing context and character of the adjacent buildings and immediate surroundings.
In addition to the allocated sites, the Borough Council anticipates that other sites will continue to come forward within Guildford primarily in the urban areas of Guildford and Ash and Tongham.� This includes infilling, redevelopment and conversions.� All proposals will need to comply with general policies and design code policies.� The Council does not consider that "Gated" estates are necessary or appropriate in Guildford Borough.
The Borough Council wishes to strike a balance between the twin objectives of making full use of urban sites and protecting and enhancing the character of the urban areas.� To assist with this it has published Supplementary Planning Guidance "Large Houses in Large Gardens" and "Environmental Assessment of the Urban Residential Areas".
Policy 99H7 Conversions
Planning permission will be granted for the conversion of houses into additional dwellings, houses in multiple occupation or hostels provided that:
1. The proposal does not result in the loss of a dwelling with three bedrooms or less;
2. There is no detrimental impact on the character of the area;
3. Amenity and space standards are adequate;
4. Adequate provision is made for car parking on site.
The conversion of large houses into small units offers an important potential source of accommodation for smaller households.� Any such development would need to ensure that there is adequate amenity space and car parking to create an attractive residential environment and avoid any detrimental effect on the amenities of the occupiers of neighbouring properties.
Policy 99H8� Extensions to Dwellings in the Urban Areas
Planning permission to extend dwellings in the urban areas will be granted provided that the development:
1. Has no adverse effect on the scale and character of the dwelling;
2. Has no adverse effect on the amenities enjoyed by the occupants of buildings in terms of privacy and access to sunlight and daylight;
3. Has no adverse effect on the existing context and character of the adjacent buildings and immediate surroundings.
Proposals to extend houses can have a detrimental effect on the amenity and character of the locality and can seriously affect the residential amenity of adjoining occupiers.� The Borough Council believes that there is a careful balance to be struck between the desire of householders to extend their accommodation and the potential impact of an extension on the area and on adjoining properties.� The Borough Council has produced Supplementary Planning Guidance on the design of residential extensions.
3.1��� In order to protect the character and appearance of particular areas, it is necessary to identify the physical features that set those areas apart. It follows that the protection of these features will significantly contribute to the protection of the character and appearance of these areas.� Particularly sensitive consideration of these features will be expected where an area abuts the Surrey Hills Area of Outstanding Natural Beauty.� The specific features that commonly contribute to the overall character are described below. In all instances, particular regard should be had to them in the formulation and consideration of development proposals;
(i)����� Existing Buildings - many of the buildings in these areas date from the late 19th Century and earlier part of the 20th Century.� They are predominantly detached and characterised by the traditional features highlighted below which together create visual cohesion and a sense of identity within the area.� Loss of the original buildings can incrementally erode the character it is sought to protect.� Consequently, the Council will generally wish to explore the potential retention of the existing building before any redevelopment proposal is considered.�
(ii)���� Trees and Hedges - a strong feature of many of these areas. There will be a presumption against the loss of trees and hedges where these contribute to the character of the area or site. Where loss is unavoidable, suitable replacements must be included as part of any proposal;
(iii)��� Gardens - typical of these areas are large mature gardens, often included as an integral part of the overall design concept, which contain the dwelling. Significant erosion or sub-division of the garden areas (both front and rear) can reduce the spaciousness and amenity they contribute to an area and the setting of the property.� There will, therefore, be a presumption against the significant erosion or sub-division of existing garden areas;
(iv)��� Boundary Walls - such structures also contribute significantly to the character of an area and, wherever possible, should be retained in any new development proposal;
(v)���� Spaces Between Buildings - in addition to large gardens, the complementary space between and about buildings should be taken into special account in formulating and considering proposals. The amenity of adjoining properties is of considerable importance and can be significantly eroded by inappropriate development;
(vi)��� Car Parking and Hard Surfacing - such works are of great significance. Accommodating additional car parking can create visual and amenity problems.� Sympathetic siting and use of materials in making provision for parking will be critical when considering development proposals. Large areas of hard surfacing, particularly involving the extensive hard-surfacing of front gardens, should be avoided.� The use of surface treatments including high quality brick and stone paviours or soft gravel finishes will be encouraged, as tarmac surfacing may harm the visual quality of new schemes.
(vii)�� Scale and Bulk - these are important elements in maintaining the character of an area.� Consequently there will be a presumption against significant increases in both floorspace and site coverage.� This will assist in retaining existing character and minimising any increase in parking within the site. It will also help to retain the general architectural and visual grain, which this guidance aims to achieve. It is considered that this approach is consistent with the aim of increasing the number of small units because many of these buildings are very large and the existing bulk will often be capable of accommodating a significant increase in the number of units.
(viii)� Roofscape - many of the properties of the type referred to in the guidance have well articulated roof lines which provide visual interest and character, thus strongly reinforcing the richness which these buildings provide. It is important that any new proposals respect the tradition by creating similarly rich and articulate rooflines, including building extensions. Generally, it is only pitched-roof forms that can provide this interest, and there will therefore be a presumption for this type of roof.� Other elements of the existing roofscape such as finials, cresting, turrets or chimneys will be encouraged as appropriate.
(ix)��� Materials and Architectural Features - the use of materials which are either sympathetic to, or similar in character to those already in use will be encouraged.� For example, the use of stock brick, clay-tile hanging, terracotta detailing, clay tiles, natural slate, decorative timber features, barge boards, sliding sash windows and paneled doors, would all be considered appropriate in the right context.� The important factor will be to maintain the area's character through the use of materials and features common to the area.
4.0� Residential Areas of Special Character
4.1��� The maps attached at Annex 1 of this SPG define the Residential Areas of Special Character where this guidance will apply. In addition to the physical features described above which contribute to the character of these areas, the following additional criteria were used for selecting the defined areas;
i) a large, long established low density residential area
ii) a homogeneous identity with a distinctive, identifiable, cohesive character
iii) an identifiable original design concept which has not been undermined by unsympathetic new development
iv) attractive, predominantly detached houses with mature trees, large gardens and hedges.
4.2��� In order to define these areas, boundaries have been drawn which incorporate housing of predominantly similar character. It is acknowledged that there may be localised exceptions to the overall character but this does not affect the underlying aim of the guidance.
4.3��� The paragraphs below set out short descriptions of the predominant characteristics of each Residential Area of Special Character. A key consideration in assessing development proposals will be the impact of the development on the existing character of the area.
4.4��� An area of low density housing in an elevated position overlooking the Chantries. The area has a linear form of development with consistent plot sizes and building line and grass verges. Areas of open-plan with large, lawned plots. More informal layout irregular plot sizes and building line in the area to the north. Periods of construction include 1950s through to the 1970s.���
4.5��� Characterised by entrance �gateways�. Mature beech-lined roads. Large individually designed detached properties, some with gable-end features. Properties screened by mature hedges. Periods of construction from the 1930s to the 1970s, but mainly 1950s/1960s. Roads to the east have a backdrop of mature landscape. Some grass verges. Later development has uniformity of materials with wider plots facing onto a central green. No mature trees or mature landscape.1970s landscape feel with use of conifers.
4.6��� Loop road system with cul-de-sacs leading from a distributor road. Cul-de-sacs terminate in circular turning heads. Informal street pattern with predominantly large plots. Some mature hedges, few mature trees. Range of building periods � 1930s onward including 1950s, 1970s and 1980s. Areas with uniformity of design and materials, some with less defined building plots. Predominantly uniform building line. Narrow grass verges thinly interspersed with small street trees.�
4.7��� Brick and terracotta gateway feature. Looped access road lined with mature trees with a series of cul-de-sacs.� Informal street pattern sloping steeply to the west. Large gated plots with individually designed substantial properties.� Large spaces between buildings.� Properties substantially screened from access road. Grass verges on both sides interspersed with mature street trees.� Predominantly post-war development.� Significant number of turn of the century properties.
4.8��� Constructed on a steep hillside, bounded on the west by the River Wey flood meadow, east by Pewley Downs AONB.� Series of steeply rising roads from Shalford Road up to the downs. Predominantly late 19th Century to mid 20th Century properties.� Irregular street pattern, consistent building lines. Many properties high above roads.� Roads bordered by significant retaining walls.
4.9��� Large individually designed detached properties in large plots constructed on downland.� Steeply rising curved streets. Predominantly late 19th Century through to late 20th Century properties with areas of 1960s/70s infill.� Informal street pattern with both regular and irregular building lines.� Predominantly hard front plot boundary treatments to individual properties (stone/brick walls, gates, garages against roads), some roads with grass verges.� Significant mature trees within property boundaries. Some mature landscaping.
4.10� Single T-shaped access road with stone gateway entrance.� Mainly inter-war development.� Full plot width houses facing road without enclosure with lawned front gardens up to road edge.� Interspersed with mature woodland trees. Consistent building line and uniform plot size and orientation. No significant gaps between buildings.� Predominantly inter-war properties.
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