LBC/04731/D P/01322/02 Parish/Name: East Cowes

Registration Date: 23/07/2002 - Listed Building Consent

Officer: Mr. P. Stack Tel: (01983) 823570

LBC for conversion of hospital into 8 houses & 3 flats; erection of 7 houses fronting Hospital Road; car parking, vehicular access & landscaping

Frank James Hospital, Adelaide Grove, East Cowes, Isle Of Wight, PO326BZ

REASON FOR COMMITTEE CONSIDERATION

The application is a major submission where there are a significant number of planning issues to be resolved.

LOCATION AND SITE CHARACTERISTICS

Application relates to Listed Grade II former hospital building which fronts Adelaide Grove located close to junction with York Avenue and which has return frontage onto Jubilee Recreation Ground. Building which is constructed of red brick under tiled roof comprises of central block which is single storey with attic accommodation characterised by four main dormers with wooden barge boards and large central gable. Projecting wings are of two storey height with crow-stepped end gables. There are five gabled dormers to each wing and verandah to ground floor on all sides. Later two storey addition to south is flat roofed.

Red brick wall to front of site is also Listed. Originally building constructed as Frank James Memorial Home in 1893, originally built for aged seamen, building only used for this purpose for six years. South wing added as extension in 1938. Property then became convalescent home and in 1903 a cottage hospital. In 1948 building taken over by National Health Service.

RELEVANT HISTORY

Various approvals for small additions and demolition works in past.

DETAILS OF APPLICATION

These applications seek both Listed Building and planning consent for proposal which involves demolition of 1938 extension back to earlier pitched roof extension, reinstatement of symmetry of building by construction of new extension on north end.

Proposal seeks to remove various outbuildings and minor parts of main building.

Briefly, proposal seeks to convert the existing building to comprise three houses in each wing, each of which uses original entrance point off terrace or cloister with central section converted to three flats sharing central staircase that is retained as common and landing. Entrance hall is enhanced by relocation of various plaques and momentos and are located in corridor of existing hospital. Extensions and conversion at north and south ends will provide two two-storey houses with access from drive at back of site.

Design philosophy adopted has been to leave all that is good and original wherever possible and where original window or door has been moved (almost all at basement level) reuse of existing brick and stone surrounds are intended. At ground floor level principal changes are rear of two west facing wings. Existing openings have been used as far as possible with insertion of small paned metal windows and doors reflect style on western end. New landings and external stairs with cast handrails provide access to gardens. At roof level, apart from work to north and south ends, only changes to insert heritage roof lights over new stairwell. It is envisaged that grounds in front of building will be maintained under a maintenance agreement on behalf of all properties together with some enhanced planting in due course.

In terms of new build, seven two-bedroomed units are proposed in a terrace along Hospital Road frontage. These are stepped up with slope and reflect style of original building. Stepped gable end feature is complimentary to main building with roof pitches and materials similar to main premises. It is intended to offer three of these units for affordable housing. New development will require considerable amount of land levelling.

Hospital Road is altered by way of construction of footpath on north side linked to widened areas on north and south sides to form traffic calming ramps and crossovers. Parking bays are located off-road with railings and boundary walls enclosing house frontages.

With regards parking, additional parking for six cars is shown off Adelaide Grove at north western corner of site using existing vehicle entrance. Rear of site (eastern boundary) shows parking for some ten vehicles with a service road linking through from York Avenue to Hospital Road. Seven parking spaces are shown for seven new residential units fronting Hospital Road.

DEVELOPMENT PLAN/POLICY

Members will be aware of requirements of circular guidance and provisions of Planning (Listed Buildings and Conservation Areas) Act 1990 which require Local Authorities when considering applications for planning permission or Listed Building consent for works which affect a Listed Building to have special regard to certain matters, including the desirability of preserving the setting of the building. Additional advice is contained within PPG15 (Planning and the Historic Environment). There is statutory requirement also to have special regard to desirability of preserving any Listed Building or any features of special architectural or historic interest which it possesses. In terms of use, guidance advises that generally best way of securing upkeep of historic buildings and areas is to keep them in active use. In principle, aim should be to identify optimum viable use of property that is compatible with fabric interior and setting of the historic building. Relevant PPG also advises that many Listed Buildings can sustain some degree of sensitive alteration or extension to accommodate continuing or new uses.

The following policies of UDP are considered to be particularly relevant:

B1 (Alterations and Extensions to Listed Buildings).

B2 (Setting of Listed Buildings).

B3 (Change of Use of Listed Buildings).

B4 (Demolition of Listed Buildings).

G1 (Development Envelopes for Towns and Villages).

G4 (General Locational Criteria for Development).

D1 (Standards of Design).

H14 (Locally Affordable Housing as an Element of Housing Schemes).

Text contained within paragraph 15.26 whilst relating principally to new retail development, advises that in dealing with applications involving loss of local community facilities including shops and pubs, the Council will expect evidence to be submitted to show that the business is not able to be commercially viable and all alternative means for its retention have been explored. This will require an assessment of the viability of alternative uses, the continued local support for such a community need, the presence of similar facilities in the locality and their accessibility to local people and the impact on other elements of the local economy, i.e. tourism.

CONSULTEE RESPONSES

English Heritage have been consulted but at time of preparing report no reply had been received.

Highway Engineer advises that carriageway width along Hospital Road is too narrow for two vehicles to comfortably pass each other and leaves insufficient manoeuvring space to access driveway. Plans also indicate excessive traffic calming measures and concern is expressed over enforcement of proposed one-way traffic flow from York Avenue onto Hospital Road. Revised plans have been submitted incorporating suggested alterations by Highway Engineer. Briefly revised scheme involves single pinchpoint shared highway surface of 4.5 metres and increased turning head.

In view of fact that Hospital Road provides safe route access to local school Highway Engineer has been asked to comment further on appropriateness of highway works in Hospital Road and whether or not it would be prudent to seek to introduce one way system between York Avenue and Adelaide Grove.

Environmental Health Officer recommends condition relating to contamination report being carried out should consent be granted.

PARISH/TOWN COUNCIL COMMENTS

East Cowes Town Council raise no objection to application, however, they advise that they will be monitoring the plans put forward by North Medina Community Development Trust in coming months.

THIRD PARTY REPRESENTATIONS

Fourteen letters have been received objecting to proposal. Objections can be summarised as follows:

Alterations have adverse impact on the character and setting of Listed Building.

Loss of community facility which should be kept available for local community and for which it was originally intended.

Increased residential activity on site and resultant increase in vehicular traffic in locality.

Impact on trees.

Inappropriate use of Listed Building and doubt is cast over housing meeting local needs.

Original buildings should remain intact to preserve its character and setting.

East Cowes group of the Isle of Wight Society support proposal in principle, however, they suggest minor amendments relating to end elevations of proposed dwellings and access and parking arrangements.

Governors of East Cowes Primary School raise concern given that Hospital Road has been designated a safe route to school and many children and adults use this road as their main access to the school and to Jubilee Recreation Ground. Increase in traffic will lessen effectiveness of safe route.

CRIME & DISORDER IMPLICATIONS

Relevant Officer given opportunity to comment but no observations received.

EVALUATION

Main planning considerations are appropriateness of alternative use of building in policy terms, impact on character and setting of Listed Building in respect of demolition and reinstatement works together with the construction of the seven new dwellings. Issue of affordable housing also needs to be addressed.

In terms of principle there is no Unitary Development Plan policy which would preclude against loss of hospital facility. In general, such policies seek to ensure provision of social, community, health and educational facilities in order to meet need created by new residential development. As explained by applicant in following paragraph hospital facility is no longer required following re-organisation of health care provision.

By way of explanation applicant (NHS Trust) advise that at the end of July 2002 existing patients were relocated to modernised and refurbished wing of existing Newcroft building at St Mary's Hospital. Frank James Hospital is therefore surplus to requirements of Isle of Wight Healthcare NHS Trust and under NHS disposal criteria Trust must endeavour to obtain best price on open market in selling asset. Trust advise that whilst best price is likely to be achieved by way of residential development they emphasise that when final offers are invited on open market it will not necessarily be sold for that purpose. It would however enable Trust to more accurately evaluate final offers which could include a variety of uses including community beneficial use. Net proceeds from sale will all go towards improving NHS patient care on Island.

Alternative use of building for residential purposes will not, it is considered, detrimentally impact on character or setting of Listed Building and would indeed facilitate its maintenance. B national and local policy support a flexible approach in dealing with changes of use of Listed Buildings. As advised by Council's Conservation Officer demolition of inappropriate extension and balancing up of wings of main building have been handled sensitively and with respect to original architecture. Removal of pitched roof extensions and freestanding buildings is supported although removal of small building to east which was mortuary chapel is regretted. Use and general layout of main building, whilst extensive, will not adversely affect general character and ambiance of building. Importance of axial symmetry of building to north has been handled well, including retention of former landscaping to north elevation.

The provision of seven houses along the Hospital Road frontage are accommodated for by way of removal of the southern wing and minimum distance of some thirteen metres is achieved between the new build and the remaining footprint of the Listed Building. This distance, together with proposed design of dwellings, is considered sufficient to assimilate new development within grounds of Listed Building without adversely impacting on its character or setting.

Residential development of this scale on site of this size is expected to provide affordable housing in compliance with Policy H14 of the UDP. Such provision at 20% requires three/four units to be allocated for such provision. Agent states that three of the new units at the east end are to be made available for affordable housing but makes point that design and construction are the same as the remaining units fronting Hospital Road.

Whilst it is usual for Planning Authority to round up requirement for such provision, in this particular case, given considerable costs involved in ensuring appropriate alterations/works to the Listed Building, it is considered appropriate to require lower number of units of affordable housing in this instance.

Revised condition has been suggested seeking to ensure an approved scheme is submitted for boundary fencing along both the northern boundary of the site and in respect of the south western corner of the site around the curtilage of the proposed dwellings it is understood that further revised plans will plan show the provision of a brick wall enclosure.

\with regards maintenance of the grounds it is anticipated that the grounds in front of the building will be maintained under a maintenance agreement on behalf of all properties. It is understood that the artefacts have been taken out and photographed prior to being replaced however these may be relocated at a suitable location and applicants would be willing to accept a condition accordingly.

HUMAN RIGHTS

In coming to this recommendation to grant permission consideration has been given to the Articles of the European Convention on Human Rights. Impact this development may have on owners/occupiers of neighbouring property has been carefully considered and whilst there may be some interference with rights of these people balance has to be achieved with rights of applicant to develop land in manner proposed. Insofar as there is an interference with the rights of others it is considered necessary for the protection of the rights and freedoms of the applicant. It is also considered that such action is proportional to the legitimate aim and in the public interest.

JUSTIFICATION FOR RECOMMENDATION

Having given due regard and appropriate weight to all material considerations referred to in this report I consider that proposal offers opportunity to bring back into active use and ensure continued maintenance of this Listed Building with proposed works improving overall appearance of the building whilst new build will successfully integrate within site. Proposal is therefore seen as complying with policies B1, B3 and H14 of the UDP and accordingly application is recommended.

RECOMMENDATION - APPROVAL (Both applications) (Subject to planning obligation requiring three units of affordable housing to be provided on site).

Conditions/Reasons:

1	Time limit - listed building - A11

2	The materials to be used in the construction of the external surfaces of the alterations hereby permitted shall match those used in the existing building. Reason: In the interests of the amenities of the area and to comply with Policy D1 (Standards of Design) of the IW Unitary Development Plan.

3

Construction of the buildings hereby permitted shall not commence until a schedule of all materials and finishes to be used for the external roofing and walls of the same has been submitted to and approved in writing by the Local Planning Authority. Thereafter only such approved materials and finishes shall be used in carrying out the development. Reason: To safeguard the amenities of the locality and to comply with Policy D1 (Standards of Design) of the IW Unitary Development Plan.

4

Before the development hereby approved is commenced detailed drawings at a scale of at least 1:20 shall be provided and agreed by the Local Planning Authority showing construction and material detailing in respect of proposed new windows and doors and any other external decorative features proposed. Reason: To secure a satisfactory and sympathetic form of development in the interests of the character of the listed building and to comply with Policy B1 (Alterations and Extensions to Listed Buildings) of the IW Unitary Development Plan.

5

No part of the development hereby permitted shall commence until there has been submitted to and approved in writing by the Local Planning Authority: a) a site investigation report documenting the ground conditions in the vicinity of all the above-ground tanks, lines and filling points in accordance with BS10175:2001 - "Investigation of Potentially Contaminated Sites - Code of Practice", and, unless otherwise agreed in writing by the Local Planning Authority, b) a remediation scheme to deal with any contaminant including monitoring proposals and a remediation verification methodology. The verification methodology shall include a sampling and analysis programme to confirm the adequacy of decontamination and an appropriately qualified person shall oversee the implementation of all remediation. The construction of buildings shall not commence until the investigator has provided a report, which shall include confirmation that all remediation measures have been carried out fully in accordance with the scheme. The report shall also include results of the verification programme of post-remediation sampling and monitoring in order to demonstrate that the required remediation has been fully met. Future monitoring proposals and reporting shall also be detailed in the report. Reason: To protect the environment and protect harm to human health by ensuring that where necessary, the land is remediated to an appropriate standard in order to comply with Part IIA of the Environmental Protection Act 1990.

6

The existing boundary wall fronting Adelaide Grove shall remain undisturbed except where required to improve access onto Hospital Road as shown on the approved drawing no. RP518/11 received on 18 July 2002. Reason: To protect the character and appearance of the existing Listed Building and its boundary wall.

7

Before the development commences a landscaping and tree planting scheme and details of other hard surfacing shall be submitted to, and approved in writing by, the Local Planning Authority. Such scheme shall specify the position, species and size of trees to be planted, the phasing and timing of such planting and shall include provision for its maintenance during the first five years from the date of planting. Reason: To ensure that the appearance of the development is satisfactory and to comply with Policy D3 (Landscaping) of the IW Unitary Development Plan.

8

No development shall take place until there has been submitted to and approved in writing by the Local Planning Authority a plan indicating the positions, design, materials and type of boundary treatment to be erected (including all residential curtilages and the entire northern boundary to the application site). The boundary treatment shall be completed before the buildings are occupied) . Development shall be carried out thereafter in accordance with the approved plans. Reason: In the interests of maintaining the amenity value of the area to comply with Policy D1 (Standards of Design) of the IW Unitary Development Plan.

9

Notwithstanding the provisions of any current Town and Country Planning (General Permitted Development) Order 1995 (or any Order revoking and re-enacting that Order), no freestanding buildings, structures, walls or fences of any kind shall be erected within any residential curtilages without the prior written approval of the Local Planning Authority. Reason: In the interests of amenities of the area and to comply with Policy D1 (Standards of Design) of the IW Unitary Development Plan.

10

Notwithstanding the provisions of any current Town and Country Planning (General Permitted Development) Order 1995 (or any Order revoking and re-enacting that Order), no extension, building or structure permitted by Part 1, Classes (A and E) of the 1995 Order, as amended, shall be erected within any residential curtilage without the prior written approval of the Local Planning Authority. Reason: In the interests of amenities of the area and to comply with Policy D1 (Standards of Design) of the IW Unitary Development Plan.

11	Withdrawn PD right for windows/dormers - R03

12

Notwithstanding the provisions of any current Town and Country Planning (General Permitted Development) Order 1995 (or any Order revoking and re-enacting that Order), no alteration to the roof of any dwelling hereby approved (including the addition of windows) permitted by Part 1, Classes (B/C) of the 1995 Order, shall be constructed without the prior written approval of the Local Planning Authority. Reason: In the interests of amenities of the area and to comply with Policy D1 (Standards of Design) of the IW Unitary Development Plan.

13	No dev in front of building line - R11

M J A Fisher

Strategic Director

Corporate and Environment Services