11. THE ENVIRONMENT

INTRODUCTION

11.1 During the past decade, people have become concerned increasingly about the environment in which they live and work, and the effects of pollution on current and future generations.

11.2 Gateshead contains both good- and poor-quality urban environments. The latter include parts of the older inner urban areas and some local housing estates. There are also some good residential environments, such as those designated as Areas of Special Character and also the new housing developments adjacent to the river. Gateshead has some of the finest countryside on Tyneside and a rich and diverse historic environment.

11.3 The protection and enhancement of the environment in its widest sense is fundamental to all elements of the plan. A good-quality and safe environment presents a positive image that assists in attracting inward investment. All proposals and allocations in the plan, such as sites for new housing development, have been assessed in terms of their impact on the environment.

11.4 This Chapter contains policies and proposals for the built environment, for the countryside, and for contamination, pollution and hazards.

THE BUILT AND NATURAL ENVIRONMENT — OVERALL POLICY

ENV1 The maintenance and improvement of all aspects of the borough’s environment is fundamental to the plan and will be actively pursued, particularly with regard to conserving and protecting the best and improving or removing the worst aspects. Environmental considerations, including sustainability, will be material factors in considering development proposals.

11.5 The environmental objectives in Part I of the plan give prime importance to protecting and improving the environment. All change, whether major or minor, must be properly guided by the plan and development and growth must be sustainable. This is particularly important in the allocation of land for new housing and employment uses and in providing for social, leisure, transport and other needs.

THE BUILT ENVIRONMENT

GENERAL POLICY

ENV2 The established environmental quality, local character and distinctive elements of towns and villages will be maintained or improved. Features of townscape value will be protected. Sympathetically designed and appropriately located new development will be permitted.

11.6 The character of the borough's towns and villages varies considerably. For example, the older industrial towns such as Gateshead and Blaydon have their roots in rapid expansion during the nineteenth century whilst Whickham and Ryton have grown from villages during the past forty to fifty years to become established dormitory towns. High Spen, Chopwell and Marley Hill are examples of former colliery villages whilst Barlow and Lamesley have retained a rural character.

11.7 Each town and village has a distinct character and quality, and larger towns and villages have a range of neighbourhoods each with their own identity. In many parts of the borough, particularly the inner area, improvements and new development are required to upgrade the environment. Proposals for change, however, particularly new development, need to be sensitively controlled to protect and enhance the valuable parts of the built environment and retain their identity and distinctiveness. Ensuring that new development, particularly public buildings and open spaces, is accessible for people with disabilities, and making development secure, as a crime prevention measure, are important design considerations.

CHARACTER AND DESIGN

ENV3 The design, density and scale of new development should make a positive contribution to the established character and identity of its locality. All development will be expected to recognise established design principles with regard to such factors as scale, massing, height, materials, density, legibility, views and vistas. The relationship between buildings and the spaces around and between them must be handled in a sensitive manner.

11.8 The sensitive control of new development is fundamental to safeguarding the character and identity of towns, villages and neighbourhoods and to the enhancement of valuable features of the built environment. Consequently, the design and form of proposed new development will be carefully assessed by the Council to ensure that it is in keeping with the character and identity of the area within which the development is located. A high standard of design will be required for buildings and the spaces around them to enhance the built environment. Detailed guidance for specific localities and sites will be prepared by the Council, as appropriate. Most applications are required to submit a Design and Access Statement under the General Development Procedure) (Amendment) (England) Order 2006. Appendix 15 outlines the purpose and elements of these.

URBAN DESIGN PRINCIPLES FOR CENTRAL GATESHEAD

ENV4 The Council seeks the highest possible quality of urban design within the central Gateshead Area to ensure that the area is attractive, safe, usable, inclusive, durable, adaptable and sustainable. To achieve high standards of urban design, new development within Central Gateshead will be expected to demonstrate adherence to the following urban design principles:

1. respect the historic street pattern of the town centre and the character and setting of all listed buildings and Conservation Areas;

2. enhance urban form which would consist of a series of well connected urban blocks of an appropriate scale and massing to the surrounding context. A strong building line (and where possible an active frontage) should be provided in the main streets;

3. respect and enhance existing landmarks and gateways and look for opportunities to create appropriate new ones;

4. concentrate higher-density development around the core of the town centre, Gateshead’s Bus/Metro Interchange and along the major public transport corridors. These should be linked to the cycle and pedestrian networks;

5. restrict tall buildings along the river edge or on the floor of the gorge if they were to block strategic views of the river from the gorge slopes and plateau behind, taking account of Policy ENV26 and Interim Policy Advice note 4: Tyne Gorge Study, and taking into account more localised views as determined by the Council;

6. integrate large developments to enhance visual and physical permeability, particularly proposals within the Primary Shopping Area;

7. define public space which should be well linked and of a variety of types and sizes taking account of Policy ENV5;

8. provide choice and convenience of movement for pedestrians and cyclists by improving existing and providing new links and routes between and within the Primary Shopping Area, Gateshead Quays, Baltic Business Quarter and the River Tyne Corridor and link with the Strategic Cycle Route Network taking account of Policy T5;

9. contribute to a safe and secure environment by ensuring that public spaces are overlooked to increase natural surveillance and that private uses are located to the rear or within the development (e.g. internal courtyards);

10. consider microclimate and the topography of the area in order to avoid or minimise any negative impacts or effects from proposed developments; and

11. minimise energy use taking account of Policy MWR 35.

11.9 Over the next ten to fifteen years, central Gateshead will build on the development of Gateshead Quays, to form a high-quality townscape in keeping with its emerging economic and cultural contribution as part of the NewcastleGateshead regional capital at the heart of Tyne and Wear City Region. It is essential that the access between Gateshead Quays and the Primary Shopping Area is improved; that the area is well connected with the river, through a coherent network of urban blocks and streets; and that new developments enhance Gateshead’s image.

PUBLIC REALM IN CENTRAL GATESHEAD

ENV5 The Council seeks to ensure that an excellent standard of public realm is delivered in Central Gateshead. It should integrate and improve the character and quality of Gateshead Quays, Baltic Business Quarter, Central Riverside, the Primary Shopping Area and other parts of the central Gateshead area. To achieve this the following urban design principles should be applied:

1. Public spaces should be provided and linked so that they are legible, safe, attractive and direct. Wherever possible, space should be handed back or prioritised for pedestrian use, with a reduction in motor vehicle-dominated environments;

2. Public spaces should be accessible, inclusive and free of clutter. Consideration should be given to the arrangement of paving materials, street furniture, lighting, soft landscaping and the exclusion of non-essential signage. Materials and street furniture (including lighting) should be complementary and design solutions should be simple and elegant;

3. High-quality materials must be used and consideration should be given to the management, aftercare and maintenance of the public realm;

4. Consideration must be given to the relationship between the height and massing of buildings that front onto public spaces and the size of the space in order to create an appropriate sense of enclosure;

5. Design should make suitable provision for service and emergency access;

6. Public entrances to buildings should be highly visible, taken directly from public spaces and, where possible, active uses should front onto these spaces, especially at ground floor level;

7. Development should allow for maximum sunlight penetration into public spaces where possible; and

8. Soft landscaping should be appropriate to its location in scale and type having regard to shading, maintenance, microclimate, and its potential to obscure (in terms of safety/security and sight lines/visibility splays).

Large-scale formal public spaces should be created or improved at: Trinity Square; Performance Square; Baltic Square and within the Gateshead Quays Phase 2 development site (GQ2).

Smaller-scale more intimate spaces should be created: at Hillgate Quay; within the Baltic Business Quarter; at High Street South/Sunderland Road; within Tynegate Precinct; and next to the old Station Hotel on Ochre Yards.

11.10 Gateshead Council will seek to ensure that public spaces in the central area are well designed with an emphasis on comfort, safety and accessibility for pedestrians, cyclists and vehicular traffic (where appropriate). The aim is to provide a network of high-quality spaces that improve Gateshead as a place to live, work, shop and visit. The design of new public spaces should reflect and enhance the special character and function of the Primary Shopping Area, Gateshead Quays and other parts of the Central Area. Gateshead requires a dominant town centre public space in the heart of the Primary Shopping Area, to provide a focus for community and performance activity and a place where people can meet and relax. Developers should seek guidance from the Council regarding the palette of materials and street furniture that are appropriate and consistent with the sites above and other parts of the Central Gateshead Area. If the urban design principles are not adhered to this may cause a delay in the development process or refusal of planning permission.

PUBLIC ART

ENV6 Developers are encouraged to integrate good quality public art works into the design of the public realm in visible and accessible areas in the Borough, to improve the attractiveness of the environment, the image and sense of place.

Developers should consider the opportunities for new public art at the outset of the design process. Developers will be expected to integrate public art within development located within Central Gateshead and within important public spaces, major development sites and prominent positions.

Public artwork should:

• be of good quality;

• be durable and robust, requiring minimum maintenance;

• take account of public safety;

• minimise opportunities for vandalism and graffiti;

• be carefully positioned and should not cause a hazard to the visually impaired.

Developers should retain and enhance existing public art.

11.11 Gateshead has a long-established tradition of public art including: Antony Gormley’s Angel of the North landmark sculpture at the gateway site at Eighton Lodge alongside the A1, the Riverside Sculpture Park within the central Gateshead area that is proposed to be re-modelled, and countryside sculpture trails. Public art promotes legibility and can be used as a landmark to attract people to certain areas, provide a focal point at gateways and define routes and connect locations. The type of public art will vary depending on the nature of the development proposal, but the Council will expect the provision of public art in all proposals that have an impact upon public spaces, major development sites and prominent positions i.e. gateway sites, focal points or meeting places. The central Gateshead area provides considerable opportunity for the installation of public art that should: complement the visitor attractions on the Gateshead Quays; contribute to the redevelopment of the Primary Shopping Area; and, improve the public realm. Developers should have regard to the Public Art Strategy for Gateshead Town Centre. The provision of public art will be secured through planning obligations and/or use of conditions. Developers should contact the Council at the outset of the design process for advice regarding public art provision.

CONSERVATION AREAS

11.12 Gateshead’s Conservation Areas provide attractive places to live and work and contribute to the quality of life for local people. Conservation Areas are areas of special architectural or historic interest, the character and appearance of which it is desirable to preserve or enhance. The Council is keen (and has a duty under the Planning (Listed Buildings and Conservation Areas) Act 1990) to preserve and enhance the character and appearance of designated Conservation Areas and to review designations from time to time. In 2006, the Council produced draft Interim Policy Advice note 17: Conservation Area Character Statements, Strategies and Policy Guidelines. There are currently 22 designated Conservation Areas (listed in Appendix 3). The Council is continually reviewing other areas of special architectural or historic interest which should be designated as Conservation Areas. Areas in Felling and Shipcote are recognised to have historic value and their status and any requirement for protection will continue to be monitored.

DEVELOPMENT WITHIN CONSERVATION AREAS

ENV7 Development within Conservation Areas must preserve or enhance the area’s special architectural or historic character or appearance by:

1. respecting its architectural and historical context particularly in terms of design, massing, height, silhouette, grain, proportion, rhythm, street alignment, plot layout and associated landscaping;

2. ensuring that wherever practicable and appropriate, traditional natural local materials which contribute to the area’s character or appearance are used and incongruous materials are avoided;

3. ensuring that traditional or important features both on buildings and contributing to their setting should be retained – where features have deteriorated to the extent that they have to be replaced, the replacement should match the original in design, materials and construction methods;

4. protecting trees, hedgerows, landscape features, open areas and views and vistas, within and out of the Conservation Area, which contribute to its character and appearance; and

5. not generating traffic movements, parking demands, noise or other environmental impacts that would be prejudicial to the area’s character and appearance.

Applications for outline planning permission will not be acceptable for development within Conservation Areas.

11.13 Conservation does allow for change, but generally only where that change makes a positive contribution to local character. It is vital that any new development, alteration or extension does not detract in any way from the essential character or appearance of these areas. The retention of traditional or important features both on the boundary of the Conservation Areas and those contributing to their setting is essential. These include, for example, doorways, shopfronts, forecourts, garden walls and railings. Where development that enhances the area is allowed, it must be of a high quality and appropriate to its setting. Trees are of great importance in forming the character of many Conservation Areas and therefore operations that would lead to their loss will not normally be permitted. All tree works, including those in Conservation Areas, will be considered against Policy ENV44. The Council has approved development guidelines for a number of designated Conservation Areas, which provide detailed guidance on how the plan will be implemented. Others will be prepared as appropriate and as resources allow (see draft Interim Policy Advice note 17, Conservation Area Character Statements, Strategies and Policy Guidelines).

DEMOLITION WITHIN CONSERVATION AREAS

ENV8 Consent for the total or substantial demolition of any building or structure which makes a positive contribution to a Conservation Area will only be granted if:

1. it can be conclusively demonstrated that the building or structure is structurally unsound and incapable of repair and re-use;

2. it can be demonstrated that concerted attempts have been made to retain the building or structure in use, or in the case of a building which is incapable of re-use, that attempts have been made to find appropriate alternative sustainable uses for it;

3. the demolition and redevelopment of the site will preserve or enhance the character and appearance of the Conservation Area and will contribute to wider conservation objectives;

4. planning permission has been granted for the redevelopment of the site; and

5. a contract has been let for the full implementation of the approved redevelopment scheme.

There will be a presumption that where an appropriate alternative use has been proposed and a building or structure detracts from the character or appearance of a Conservation Area, or is of no architectural or historic interest, its demolition will be permitted.

11.14 Conservation Area designation introduces control over the demolition of most buildings within a Conservation Area. Special considerations and controls apply to listed buildings, but most buildings in Conservation Areas are unlisted and in cases where a building is to be demolished, Conservation Area Consent is required from the Council.

SETTING OF CONSERVATION AREAS

ENV9 Development that protects or enhances the setting of a Conservation Area, including important views into and out of the Conservation Area, will be permitted.

11.15 The impact of development proposals on the setting of, or views into and out of, a Conservation Area will be a material consideration when determining such applications. Proposals for development adjacent to Conservation Areas should be designed to be sympathetic in design, scale, location and use of materials.

DEVELOPMENT IN GARDENS AND GROUNDS IN CONSERVATION AREAS

ENV10 Permission will not be granted for development (especially that which would involve sub-division) in gardens and grounds which make a contribution to the character of the following Conservation Areas:

Crow Hall	Sheriff Hill
Chowdene	Low Fell
Saltwell	Coatsworth
Birtley	Whickham
Rowlands	Gill Ryton

11.16 The character of some existing and proposed Conservation Areas relies as much on the spaces between buildings as on the buildings themselves. Development within, and the sub-division of, gardens and grounds in these areas would nearly always result in erosion of their character.

LISTED BUILDINGS

ENV11 Extensions, alterations and changes of use to a listed building must preserve or enhance the building’s special architectural or historic interest by:

1. respecting its historical context particularly in terms of design, massing, height, proportion and materials;

2. ensuring that traditional, natural materials and methods of working appropriate to the building are used and incongruous, artificial materials are avoided;

3. retaining and repairing historic fabric – where the fabric has deteriorated, repair rather than replacement should be always be the first option; where features have deteriorated to the extent that they have to be replaced, the replacement should match the original in design, materials and construction methods;

4. ensuring that alterations to historic fabric are reversible, as far as practical, and preserve the building’s aesthetic qualities; and

5. ensuring that the setting of the building is protected where it is an essential part of the building’s character.

Where there have been unsympathetic alterations to a building (e.g. replacement windows, roofs, loss of chimneys etc.) the opportunity should be taken to replace them with more appropriate designs and materials where there is substantiated evidence of the original designs.

All applications for listed building consent and planning permission should include supporting evidence to demonstrate that the proposals have been designed in the light of a clear understanding of the building’s special interest.

11.17 Approximately 300 listed buildings in the borough have statutory protection and are important to the Borough's heritage (see Appendix 4). The Council will protect and preserve listed buildings by:

• preventing demolition other than in exceptional circumstances;

• preventing inappropriate extensions, alterations and changes of use;

• encouraging enhancement, good maintenance and repairs; and

• using its statutory powers to ensure that works urgently necessary to preserve unoccupied buildings are carried out.

11.18 The onus will be on applicants to justify their proposals by demonstrating why works which would affect the character of a listed building are desirable or necessary. Listing also protects the interior of buildings and the Council will seek to ensure that historic interiors and features are preserved. The settings of listed buildings will be protected by, among other measures, preventing inappropriate development.

DEMOLITION OF LISTED BUILDINGS

ENV12 Demolition, or alterations resulting in the substantial demolition, of listed buildings will be permitted only in exceptional circumstances and where every effort has been made to secure their future. In determining an application for listed building consent to demolish, the local planning authority will consider the following:

1. the importance of the building, its intrinsic architectural and historic interest and rarity;

2. the particular physical features of the building which justify its listing;

3. the building’s setting and its contribution to the local scene;

4. the extent to which the proposed redevelopment scheme would bring substantial benefits for the community, in particular by contributing to the economic regeneration of the area or the enhancement of its environment;

5. the condition of the building and the cost of repairing and maintaining it in relation to its importance and to the value derived from its continued use; and the extent to which it has been conclusively demonstrated that the building or structure is structurally unsound and incapable of repair and re-use and the extent to which it has been demonstrated that concerted attempts have been made to retain the existing use or an alternative sustainable use in the building.

If consent is granted, this will be subject to:

1. a replacement development scheme having been granted planning permission and

2. the relevant contract concerning the intended development having been completed and

3. a scheme for the recording and/or salvage of the building having been approved and undertaken.

11.19 For a consent to be given to demolish or part demolish listed buildings, the agreement of the Department of Culture, Media and Sport is required and is granted only in very special circumstances. Consent will not be given for the total or substantial demolition of any listed building unless the applicant can demonstrate convincingly that real efforts have been made to sustain existing uses; or that attempts to find viable and compatible new uses have failed, or that redevelopment would produce sustainable planning benefits for the community which would decisively outweigh the loss resulting from demolition. Demolition will only be allowed where there is clear evidence that it will be followed immediately by redevelopment. However, consent for demolition will not be given simply because redevelopment is economically more attractive to the developer than repair and re-use of a historic building, and, for instance, preservation in some form of charitable or community ownership may be possible.

11.20 Where appropriate, provisions must also be made to record elements of the building which will be lost, and to salvage items and materials of architectural or historic value which can be reasonably re-used. Policy ENV23 requires a programme of building recording to be carried out before a building is demolished.

11.21 The underlying consideration in dealing with any applications for consent to demolish a listed building is that once lost, historic buildings cannot be replaced. Planning Policy Guidance note 15: Historic Buildings and Conservation Areas recognises that the destruction of historic buildings is very seldom necessary for reasons of good planning: more often it is the neglect or failure to make imaginative efforts to find new uses for them or to incorporate them into new development.

11.22 PPG15 also recognises that there are many outstanding buildings for which it is in practice almost inconceivable that consent for demolition would ever be granted. The demolition of any Grade I or Grade II* listed building would be wholly exceptional and require the strongest justification.

11.23 Buildings which are not listed are usually crucial in forming the character of Conservation Areas, for their appearance and because they form the historic fabric of a particular area. Consent is needed for the demolition of most buildings in Conservation Areas. Premature demolition will be resisted. Policy ENV8 sets out the criteria that need to be met when considering applications to demolish non-listed buildings in a Conservation Area.

ACCESS TO HISTORIC BUILDINGS

ENV13 Proposals which seek to improve the accessibility of a building of special architectural or historic importance must preserve or enhance that special interest and should minimise any loss of historic fabric. Applicants will be required to demonstrate the appropriateness of the proposals in an Access Plan which assesses access requirements and demonstrates an understanding of the building’s special interest. This assessment must form part of a planning or listed building consent application.

11.24 The layout or design of listed buildings, locally listed buildings or those within Conservation Areas can sometimes pose difficulties for people with impaired mobility. The Disability Discrimination Act 1995 requires that public buildings or places of work are accessible to disabled people. It is important that any such access improvements are reconciled with the architectural or historic interest of the building. This may mean that more creative or innovative access solutions are required in order to avoid harm to the historic environment. Proposals to alter buildings of special architectural or historic importance may, however, create the opportunity to improve the level of access, which may be beneficial to all members of society. Guidance on the formulation of an Access Plan can be found in the English Heritage document “Easy Access to Historic Buildings” published in 2004.

HISTORIC PARKS AND GARDENS

ENV14 The character of the borough's Parks and Gardens of Special Historic Interest will be protected and enhanced. Development proposals must include supporting evidence that justifies the changes proposed, based on appropriate research into the historic context of the proposals. In particular, proposals will be required to:

1. retain, conserve, and where appropriate restore, buildings, walls, landscaping, ancient and veteran trees and other features which are an integral part of the historic designed landscape;

2. incorporate the appropriate design of new buildings and landscaping and other features and the use of materials; and

3. limit the use of buildings and land to those uses appropriate to their historic context.

Development within the setting of a historic park or garden will be controlled to protect its setting and character.

11.25 Historic parks and gardens have a special planned landscape quality which reflects the period in which they were created. In Gateshead three parks are included in the English Heritage Register of Parks and Gardens of Special Historic Interest (Gibside, Bradley Park and Saltwell Park) and all either constitute, or are located within, Conservation Areas. Many historic parks and gardens have a biodiversity value that should be protected.

GIBSIDE

ENV15 The historical and recreational value of Gibside will be protected and enhanced by:

1. the appropriate restoration or consolidation of buildings;

2. the restoration of key elements of the eighteenth century planned landscape; and

3. the improvement of visitor facilities and public access in ways which do not detract from the estate's character.

11.26 The part of Gibside which is a Conservation Area and Park and Garden of Special Historic Interest is particularly important both for its range of fine eighteenth century buildings and for the landscape of gardens and walks that unites them. Fortunately the landscape was not remodelled in the nineteenth century and is in effect a complete, if damaged, landscaped estate typical of the early to mid-eighteenth century. In this context the Council is keen to preserve the character of the estate, to restore it where appropriate, and to extend public access and enjoyment. These objectives will be best achieved through a partnership with the National Trust.

BUILDINGS AT RISK

11.27 Buildings at risk are listed buildings, scheduled ancient monuments or other historic buildings which are at risk through neglect or decay, or are vulnerable to becoming so. There are a number of such buildings in the borough and they represent an important part of the borough’s heritage which could easily be lost forever if their decay is not halted. English Heritage maintains a register of buildings which are listed grade I or II* or scheduled ancient monuments and the Council maintains a register which includes grade II listed buildings.

11.28 The Council is keen to work with owners of these buildings to secure their futures through repair, and where buildings are capable of it, finding a new use. In certain circumstances grants may be available from external bodies (for example English Heritage or the Heritage Lottery Fund). In appropriate circumstances the Council may seek to apply some of the other policies within this plan in a more flexible manner where this would be in the interests of the conservation and rescue of a building at risk. However, if it appears to the Council that a building is being deliberately neglected as an attempt to secure inappropriate development in the context of rescuing it, the Council will not accept such proposals and will seek to use its statutory powers of repair. In all cases where there is neglect and where negotiation with the owners does not appear to be likely to secure the conservation of the building, the Council will use its statutory powers to secure urgent repairs to vulnerable buildings where appropriate.

11.29 The Council will seek to ensure that buildings at risk are repaired and, where appropriate, brought back into a sustainable use. Some buildings at risk form part of, or are adjacent to, larger development sites and this offers an opportunity for securing their repair and re-use. Such development proposals are unlikely to be acceptable unless they contain detailed provisions for securing the repair, and where appropriate the re-use, of such buildings or structures. Their conservation can be funded by considering them as part of a wider development opportunity and the Council will secure this with planning obligations or appropriate conditions on any permissions for the development. Guidance relating to the type and extent of appropriate ‘enabling development’ can be found in the English Heritage policy statement “Enabling Development and the Conservation of Heritage Assets” published in 2001.

11.30 There are certain important buildings at risk in the borough which are related to wider historic landscapes and are of strategic importance. These include Ravensworth Castle and Axwell Park.

Map ENV1: Axwell Park: ENV17

[Click to see larger image in a pop-up window]

^{© Crown copyright All rights reserved Gateshead Council, Licence No. 100019132 2007}

RAVENSWORTH CASTLE

ENV16 The Council will seek to ensure that the listed buildings and scheduled ancient monument at Ravensworth Castle, and the historic designed landscape in which they are set, are conserved by:

1. the preservation, consolidation and repair of the remains of the John Nash house and medieval castle;

2. the preservation and repair of the stable block and conversion to an appropriate and sustainable new use which can secure the long term preservation of the whole complex; and

3. the restoration of the historic parkland setting of the castle.

Any planning permission for the conversion of the stable block will be linked to the conservation of the other historic buildings and landscape through a planning obligation or conditions attached to any consent for that conversion. Securing a degree of public access to the castle and its immediate setting is desirable and should be explored in any conservation proposals.

11.31 Ravensworth Castle is a complex which incorporates the remains of a medieval castle, the remains of an early nineteenth century country house designed by John Nash, a large nineteenth century stable block arranged around a courtyard, and associated structures. This is set in a historic designed landscape that contains features and buildings associated with its development as a park and garden. The complex at Ravensworth Castle is of great importance to the borough and offers an opportunity for a degree of public access given its location within open countryside but in close proximity to the conurbation.

AXWELL PARK

ENV17 The historical value of Axwell Park will be protected and enhanced by the restoration of Axwell Park house and its setting and the restoration of the eighteenth century planned landscape of the park.

1. In order to secure the restoration of Axwell Park house, a strictly limited amount of development may be permitted on the site of the former classrooms immediately to the west of the hall (Map ENV1), providing all of the following criteria are met:

   1. the development would not materially detract from the archaeological, architectural, historic, landscape or biodiversity interest of the asset or site, or materially harm its setting;

   2. the development would secure the long-term future of the asset or site;

   3. it is clearly demonstrated that the amount of enabling development is the minimum necessary to secure the future of the asset/site; and

   4. the value to the community of the resulting development and the enhanced historic interest of the asset or site clearly outweigh the disbenefits of the enabling development.

2. Subject to the proposed development meeting the criteria listed in (i) above, planning permission will be granted where:

   1. the physical impact of the development and the financial considerations are precisely identified at the outset, through the submission of full rather than outline planning applications;

   2. the objective of the preservation of the historic interest of the site is securely and enforceably linked to the planning permission; and

   3. the heritage asset is repaired to an agreed standard, or the funds are made available to do so at the outset or prior to completion or occupation of the development.

11.32 In spite of substantial encroachment by twentieth century housing developments, the core of the eighteenth century estate around Axwell Park, a dilapidated Palladian-style villa designed by James Paine in 1758, still survives. A number of original landscape features still exist; the serpentine lake and associated eighteenth century access bridge in a substantially unaltered form. The Council has approved a strategy for Axwell Park in order to secure the repair and refurbishment of the house and the restoration of the historic landscape (draft Interim Policy Advice 17). Any planning permission for new development in association with the restoration and re-use of the house will be linked securely to the conservation objectives by the use of an appropriate legal agreement and adequate financial bond.

LOCAL LIST

11.33 The Council has approved a list of buildings, and one of parks and gardens, which it considers to be of special local architectural or historic interest and will continually encourage their recognition and conservation. These are buildings and designed landscapes which, whilst not on the statutory list (listed buildings) or on the national Register of Parks and Gardens, are nonetheless of considerable local interest and should be retained. The lists are contained in Appendix 5.

11.34 There are no additional planning controls which safeguard buildings and landscapes on the local list and the Council has limited powers to control demolition except, for example, in Conservation Areas. However, the Council will seek to ensure that when planning permission or conservation area consent is required for alterations, the building or landscape’s special local interest will be taken into account in determining such applications.

LOCALLY LISTED BUILDINGS

ENV18 The retention and use of locally listed buildings is encouraged.

Consent for alterations to buildings on the local list should ensure that they preserve their special local architectural or historic interest by:

1. respecting the building’s design, appearance and any features of architectural or historic merit in the design of any extensions or alterations; and

2. ensuring that wherever practicable and appropriate, materials appropriate to the building’s special local interest are used.

New development of, or alterations to, buildings within the curtilage or setting of a locally listed building must be designed to be sympathetic to it.

Where the Council has control over the demolition or alteration amounting to substantial demolition of a locally listed building, it will not grant consent for such demolition unless the proposal meets the criteria of ENV8.

The Council will continue to consider reviewing the lists and updating them from time to time to ensure that they reflect the diversity and history of the borough’s built environment.

LOCALLY LISTED PARKS AND GARDENS

ENV19 Consent for new developments within a locally listed park or garden should preserve or enhance its special local historic interest and landscape character by:

1. retaining and conserving, and where appropriate restoring, buildings, walls, landscape, ancient and veteran trees and other features which are an integral part of its special local interest; and

2. retaining the use and character of the park or garden as an open designed landscape.

There will be a presumption against any development which would result in the loss of the park or garden as an open designed landscape.

The Council will continue to consider reviewing the lists and updating them from time to time to ensure that they reflect the diversity and history of the borough’s built environment.

ARCHAEOLOGY

SCHEDULED ANCIENT MONUMENTS

ENV20 Development which would harm scheduled ancient monuments and/or their setting will not be permitted.

11.35 Archaeological remains provide evidence of human activity and development over thousands of years including the more recent industrial period. They are an irreplaceable part of the borough's heritage and therefore should not be needlessly or thoughtlessly damaged or destroyed. The most important remains in the borough are scheduled ancient monuments, which by definition are of recognised national importance. The consent of the Secretary of State for Culture, Media and Sport is required for works or development affecting them. Appendix 6 lists the scheduled ancient monuments in the Borough.

SITES AND AREAS OF ARCHAEOLOGICAL IMPORTANCE

ENV21 Where archaeological remains survive, whether designated as a scheduled ancient monument or not, there will be a presumption in favour of their preservation in situ. However, where the significance of archaeological remains is such that their preservation in situ is not essential, or is not feasible, a programme of archaeological works aimed at achieving preservation by record will be required, the findings of which should be published.

11.36 In addition to scheduled ancient monuments there are sites and areas of archaeological importance. These are shown in the Historic Environment Record to which the public has access. Appendix 14 contains a list of the sites and areas of archaeological importance that are shown on the proposals map. Although they do not have statutory protection, the case for seeking their preservation, either in their original situation, which is preferred, or by record (the excavation and recording of remains) should be fully considered when they are affected by proposed development. Where the physical preservation in situ of archaeological remains is not justified, the Council will need to be satisfied, before granting planning permission, that the developer has made appropriate and satisfactory provision for the excavation and recording of the remains. Such excavation and recording should be carried out before development commences, and the financial responsibility for the investigation, recording and publication of results will rest with developers.

11.37 In addition to the preservation and protection of archaeological remains, the Council will seek to secure public access to them, for the purposes of interpretation, education, recreation and tourism.

ENV22 Where there is the likelihood that archaeological remains will be encountered as a result of development, and on all developments over 0.5ha in size, the Council will require a programme of investigative research and/or fieldwork to determine whether the remains, that might exist, merit preservation in situ or by record. Research and fieldwork findings should be published.

11.38 As well as known sites and monuments, there are areas where there is good reason to believe that archaeological remains may exist. Additionally, any development site within the district over 0.5 hectares has the potential to contain archaeological remains. Before planning permission is granted in these areas it is important to establish the character and extent of these archaeological remains. Research, and where necessary, fieldwork will determine whether the remains should be preserved by record and establish the appropriate treatment to avoid or minimise damage to any archaeological remains. Developers are advised to seek early pre-application discussions with the County Archaeologist to determine whether a site might be archaeologically sensitive and discuss the nature of archaeological work which will be required.

BUILDING RECORDING

ENV23 Development proposals which involve the conversion, re-use or demolition of standing buildings of archaeological, architectural or historic interest will need to incorporate a programme of building recording and assessment to inform the details of development or record the building in advance of demolition, as appropriate.

11.39 Gateshead has a number of outwardly unprepossessing structures which are important in forming a link with past communities and industries. These will merit recording by qualified archaeologists or building historians to an agreed specification which will reflect the importance of the structure and detail the most suitable recording methodology (e.g. photographic survey, elevation recording etc).

NEWBURN FORD BATTLEFIELD

ENV24 The historical value of the Newburn Ford battlefield site will be protected and enhanced by:

1. protecting it against development and changes to the landscape which would adversely affect the scope to interpret the course of events during the battle;

2. encouraging the enhancement of the battlefield, particularly through appropriate landscaping, and the provision and maintenance of public access; and

3. seeking and encouraging properly planned field research.

11.40 English Heritage's Register of Historic Battlefields includes the site of the battle of Newburn Ford which was fought in 1640 during the ‘Second Bishops' War’ — a clash between the forces of Charles I and his Scottish subjects. The extent of the battlefield within the borough is defined on the proposals map and while registration does not entail additional statutory controls, it will be necessary, nevertheless, to encourage appropriate land management, and, through the process of development control, to consider the effect of development on the battlefield site. Although the landscape of 1640 was profoundly different from that of today, significant areas of the battlefield have not been developed and are not allocated for development. This allows an understanding of the course of events during the battle, which took place over pasture land with woods on the steep bluffs on the edge of the flood plain.

11.41 The introduction of elements into the landscape which would detract from the appreciation of the course of the battle will be resisted. Where new buildings are necessary, they should be grouped with existing structures wherever possible to reduce their visual impact on the landscape. Where field research is to be carried out, it is important that this should be properly planned to safeguard the integrity of the battlefield. Enhancement of the battlefield, through measures to help re-create its original character, and providing and maintaining public access for the purposes of interpretation, education, recreation and tourism, will be encouraged where appropriate and feasible.

AREAS OF SPECIAL CHARACTER

ENV25 Within Areas of Special Character, development that will maintain and/or enhance that character will be encouraged. The following areas will be subject to Interim Policy Advice or a Supplementary Planning Document or Documents:

25.1 Broom Lane / Whaggs Lane, Whickham

25.2 Eighton Banks

25.3 Ashtrees Gardens / Durham Road, Low Fell

25.4 Cedars Green, Durham Road, Low Fell

25.5 Leyburn Place area, Birtley

25.6 Bedford Avenue, Birtley

25.7 Square Houses and Kay’s Cottages, Mill View, Carr Hill

25.8 Beech Avenue area, Whickham

11.42 Parts of the borough have a distinctive built character deriving from their buildings and spaces, which are worthy of recognition. In order to maintain this special character, the Council is preparing detailed policy guidelines to ensure that where planning permission is required for alterations to buildings and spaces, these are carried out in a manner that maintains this recognised character.

11.43 This special character is derived from the architecture of the buildings, their distinct form and details, the layout of building plots, streets and spaces, the landscape in which they are set and the distinct appearance of the groups of buildings. In some areas, the historic nature of the buildings is also of note.

11.44 The Areas of Special Character identified in this policy were predominantly selected through the Local List process. As these were groups of buildings that were recognised as having special character, it was felt that it was more appropriate that these were excluded from the Local List and designated in a separate Areas of Special Character policy.

Broom Lane / Whaggs Lane, Whickham

11.45 The longest-established Area of Special Character is the residential area located broadly between Broom Lane and Whaggs Lane in Whickham. The main characteristics of this area are:

• low density housing

• dense coverage of mature trees

• long, well-established gardens

In the late 1980s and early 1990s this area’s character was affected adversely by the development of small housing estates and single residential properties on infill sites and garden land. The area’s protection under this policy will control similar damaging development in the future.

Eighton Banks

11.46 At Eighton Banks, the residential area comprising Ravensworth Avenue, Jubilee Avenue and Springfield Avenue has a unique character that should be protected and comprises:

• primarily detached and semi-detached stone-built dwellings

• similar architectural style, but with some degree of individuality

• uniform layout

• long rear gardens with deciduous mature trees

The principal threat to the area’s special character comes from unsympathetic alterations and extensions and the pressure for infill development in the large rear gardens. It is therefore considered necessary to control future development in this area to preserve its character.

Ashtrees Gardens / Durham Road, Low Fell

11.47 In Low Fell, the twelve Edwardian villas and their gardens located between Ashtrees Gardens and Durham Road are considered to have a character worthy of protection. A combination of features contribute to the special character:

• Individual house designs

• Relatively large gardens containing mature trees

• Uniform building line and boundary treatment on the Ashtrees Gardens frontage.

The main concern in this area is the erection of extensions beyond the existing building line and the erection of intrusive boundary treatments, both of which would damage the consistency in character.

Cedars Green, Durham Road, Low Fell

11.48 Cedars Green comprises mainly ex-Council properties arranged around a central grassed area. The area’s interesting character is defined by:

• Generous openness of the estate; large village green and exposed front gardens

• Variety of housing styles

• Common walling and roof materials of the houses creating a cohesive atmosphere

The main threat to this area would be the development of inappropriate extensions and the erection of boundary treatments to the front of the properties, both of which would damage the open character of the estate.

Leyburn Place area, Birtley

11.49 This area is focussed around a number of streets which have a character not unlike those influenced by the garden city movement:

• three distinct housing types; most attractive are short terraces of five dwellings

• scale and proportion of houses have a ‘cottage-like’ feel

• interesting layout comprising narrow roads and footpaths creating an intimate atmosphere

The main threat to this area would be the development of inappropriate extensions and additions to the frontages of the properties; careful attention should be made to the design and materials of proposed future developments to alleviate this threat.

Bedford Avenue, Barley Mow, Birtley

11.50 This area is bounded by Bedford Avenue to the north and Vigo Lane to the south and has an interesting character which includes:

• a mixture of housing types set within gardens to the front and rear

• large area of open space and mature trees separating the houses from the main road behind

• soft-hedged boundary treatments gives the area a village-like character

The removal of some of the boundary hedges has created a harder feel to some of the area and any further removal should be resisted in the future. The erection of extensions which would effectively join the semi-detached properties to the short terraces should be avoided, as it will obscure the views through the area.

Square Houses and Kay’s Cottages, Mill View, Carr Hill

11.51 The area comprises two courtyards each surrounded by a single block of one-storey dwellings. Their unique character is described below:

• The exterior of the blocks is fairly plain with arched gateways leading to the internal courtyards

• Courtyards are an intimate, well-defined space comprising a mixture of paths, grass, mature trees and bushes.

• Surrounding public open space provides a pleasant setting

Inappropriate extensions, additions or alterations to the exterior of the blocks would damage the area’s character, as would development or works that would result in the loss of the open grassed areas.

Beech Avenue area, Whickham

11.52 This area, comprising the streets around Beech Avenue, is a complete contrast to the surrounding modern estates, and reveals an interesting character which consists of:

• mainly Edwardian and late Victorian villas set within generous gardens.

• the attractive and historic proportions of the majority of the properties and range of materials including red brick, stone and slate.

• the extensive mature tree and hedge planting which creates a secluded feel.

The character of the area is derived from a combination of the features mentioned above and significant change to any one of these elements would result in the degradation of the character of the area, but the loss of trees and hedges would change it fundamentally.

11.53 Draft Interim Policy Advice, to be read in conjunction with this policy, will be issued as a Supplementary Planning Document. It will contain character statements for each of the areas, along with a description of the types of threats that they face, and a selection of area-specific policies, which should be applied to protect and enhance the special character of these areas. Whilst this policy identifies eight areas of special character, the list is not exhaustive and further areas are being considered.

THE RIVER TYNE GORGE

ENV26 In order to protect the important and unique character of the Tyne gorge, new development within the area of the gorge defined on the proposals map must safeguard or enhance its setting in terms of scale, design, landform and integration within the existing urban context. Depending on the potential impact of the proposed development, applicants may be required to demonstrate the appropriateness of the proposals through the submission of a design statement which must accompany a planning application.

11.54 The Tyne gorge, particularly the area consisting of the group of bridges over the river Tyne in central Gateshead and the part of the gorge which they cross, has created one of the most dramatic townscapes in the region and beyond (see Map ENV2). The Gateshead Millennium Bridge and the Tyne Bridge in particular are nationally recognised symbols of Tyneside. The rate of change along the Tyne gorge has accelerated in recent years, not least as a result of the Baltic, The Sage Gateshead and Gateshead Millennium Bridge, and the area faces increasing development pressures. To safeguard the gorge’s special character it is important to manage future change and in order to set the context for this, an “Urban Landscape Assessment of the Tyne Gorge” (known as the Tyne Gorge Study) has been undertaken by Land Use Consultants. The character appraisal within this study appraises architectural quality, undertakes a visual analysis of the gorge, indicates the importance of its different areas, identifies threats and opportunities within the gorge and indicates principles for its protection and development in the future. Interim Policy Advice note 4 summarises the study and applicants should refer to this before submitting development proposals within this area.

Map ENV2: The River Tyne Gorge: ENV26

[Click to see larger image in a pop-up window]

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