Ministerial guidelines
Architectural Heritage Protection: Guidelines for Planning Authorities
Protected structures, architectural conservation areas, curtilage, and works to historic buildings.
Department of Arts, Heritage and the Gaeltacht · 2011 · 267 pages
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- Architectural Heritage Protection Guidelines for Planning Authorities 221 CHAPTER 16 MAKING GOOD DISASTER DAMAGE 16.1 Disaster Plans 16.1.1 In the interest of protecting a historic structure, the development of a disaster plan can be useful, mitigating the endangerment of those parts of the structure which are saved from a fire, flood or other devastation. This could involve compiling an inventory of special architectural features and fixtures, a drawn record or photographs of the building or those parts of it considered as being of special interest. These records should be stored at a separate location, away from the protected structure. Priorities for saving objects or features in the event of disaster can then be made. The inventory could also serve as an archive in the event of a total loss. 16.2 Mitigating the Loss and Salvaging Materials 16.2.1 In order to mitigate damage to the protected structure and to minimise the loss of historic fabric, steps need to be taken speedily in the aftermath of a fire or other disaster. Firstly the stability of the remaining fabric should be assessed and the building made structurally stable before access is allowed for other purposes. Where necessary, the fabric of the building should be protected from further damage by weather or decay. This may require the erection of a temporary roof. Provision should be made to facilitate, in an appropriate manner, the drying-out of fabric and contents saturated as a result of fire-fighting measures. Careful consideration should be given to minimising the risk to remaining, and potentially salvageable, elements which could be further damaged through the drying-out process. 16.2.2 The building should be made secure against vandalism and all features of value, including architectural fragments and building materials, should be protected and salvaged. Records should be made of the remaining and damaged material and mapped locations of the salvaged debris. An owner or occupier may need to call on specialist expertise regarding methods of storing or conserving salvaged elements such as finishes, joinery or plasterwork. 16.3 Rebuilding After Total Loss 16.3.1 In most cases where a disaster such as a fire has caused total, or near total, loss of a historic building, the special interest which led to its inclusion in the RPS may be considered irredeemably lost and the building of a replica replacement will generally serve little purpose. In such cases, the building should be deleted from the RPS. However, if the building formed part of a larger architectural design such as a terrace, square or other group of buildings or was an important urban or rural landmark, then the reconstruction in replica of at least the exterior of the building may be considered necessary in order to protect the setting of other historic structures or the character of an ACA. As soon as it is safe to do so, the surviving fabric of a damaged structure should be inspected and measures taken to stabilise it, erecting a temporary roof if necessary and securing the site against unauthorised access Where a protected structure has suffered devastating or irreparable damage to its special interest through a fire or other disaster, it may often serve little purpose to reconstruct or replicate it, except where a larger architectural design has been affected by the loss or the structure is an important local landmark; in such cases the reinstatement of the exterior or other elements of the structure may be considered
- CHAPTER 16 MAKING GOOD DISASTER DAMAGE Architectural Heritage Protection Guidelines for Planning Authorities 222 16.4 Partial Loss 16.4.1 The total loss of a building in a disaster is very rare. Partial loss of a structure is more common. This is also more problematic and will require a careful assessment of the remaining building fabric. A judgement will need to be formed by the planning authority as to what constituted the special interest of the structure and to what extent that special interest has been compromised by the damage. The effect of the damage on adjacent protected structures or on the character of an ACA should also be considered. 16.4.2 The assessment will need to consider the type and extent of the damage and the importance of the damaged portion to the quality of the whole. It may be difficult to identify the point at which the building is so damaged that full reinstatement is neither worthwhile nor desirable. Each case will have to be considered on its own merits, as standard procedures cannot be applied. 16.4.3 Where the damaged section of the building is part of an architectural composition, or one which is symmetrical or where the building forms part of a formal composition, then it may be considered essential to reinstate the damaged section fully, or at least externally, even where a substantial proportion of the historic fabric has been lost. 16.5 Reinstatement of Interiors 16.5.1 Where the interior of a protected structure is almost entirely lost but the external shell remains substantially intact, the requirement may be to repair or reinstate the exterior fabric but allow the interior to be rebuilt in a different manner. Much will depend on the quality of the interior before the disaster. Where a high-quality interior has been damaged and substantial fragments remain, the recreation of the interior incorporating those surviving fragments may be appropriate, providing this can be done without an undue amount of conjecture. Many fires are successfully extinguished before major damage occurs, requiring a careful assessment of the remaining fabric to ascertain if its special interest has been compromised. An assessment of the extent of reinstatement appropriate following partial damage will require to be carried out on a case-by-case basis The true extent of damage to important interiors may be disguised by smoke-blackening and blistered paint. Careful spot cleaning of the stained and blistered surfaces and examination of lath and plaster linings will be needed to establish whether or not decorative interior plasterwork or joinery is capable of repair
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- Alterations to Enhance Fire Safety CHAPTER 17
- Architectural Heritage Protection Guidelines for Planning Authorities 225 CHAPTER 17 ALTERATIONS TO ENHANCE FIRE SAFETY 17.1 Introduction 17.1.1 Fire is one of the greatest threats to the fabric and contents of a protected structure. The object of fire safety legislation, quite rightly, concentrates on the saving of lives and prevention of injury to persons. However, in the case of a protected structure, additional consideration needs to be given to minimising damage to the historic fabric and contents in the event of fire. Many protected structures may be particularly vulnerable too because of their remoteness or lack of occupancy. Older buildings may be more vulnerable too because of traditional construction techniques which included the extensive use of timber in concealed spaces or because of unrecorded alterations, such as the installation of services, which created routes through the fabric for the spread of smoke and fire. 17.1.2 Compromise from all sides will often be needed to resolve conflicting requirements of fire safety and architectural conservation. Where possible, planning officials and fire officers should liaise during the course of a planning application, to ensure the best solution is found. This can be done by using the mechanisms available under Section 13 of the Fire Services Act 1981. 17.1.3 In the interests of good conservation, consultation between the applicant, the planning authority and the fire authority should take place, where possible, at a pre-planning stage. It is generally of advantage to all concerned to resolve any major issues at an early stage. 17.2 Applications for Works to Enhance Fire Safety 17.2.1 Where the planning authority considers that an application for works to a protected structure would require alterations to enhance fire safety that have the potential to adversely affect the character of the building, the planning authority should consult the fire authority. Where the fire officer advises that extensive or potentially unacceptable works may be required, the planning authority may then request that the applicant submit a fire risk analysis as further information in order to allow an assessment of the full impact of the proposed development on the structure. It may be advisable for the applicant to engage a specialist fire consultant in order to achieve a satisfactory level of fire safety with minimal intervention into the fabric of the structure. 17.2.2 Where an application for planning permission has been granted which does not address fire protection, an applicant should be advised that further planning permission will be required, where necessary alterations would materially affect the character of the protected structure. 17.2.3 It is impossible to prescribe a standard approach as each protected structure is unique and will require an individual assessment of its vulnerability. Firesafety design solutions should impact as little as possible on the important elements and fabric of a protected structure. In principle, there should be minimal intervention into the existing fabric of the protected structure, and alterations which impact on important fabric should be readily reversible. 17.2.4 Occasionally works to enhance fire protection would necessitate a level of intervention which the planning authority considers unacceptable in terms of excessive loss or disruption of the historic fabric. In such cases, the developer should be encouraged to explore alternative fire-safety solutions, including alternative uses, which may have fewer implications for fire safety. 17.2.5 Where permission for works to enhance fire safety is refused, the planning authority should notify the fire authority of the decision. 17.3 Technical Guidance Document B of the Building Regulations 17.3.1 A flexible approach is required when considering the fire protection measures suitable for a historic building. It is recognised in Technical Guidance Document (TGD) B of the Building Regulations that, in the case of an existing building, there may be constraints that would not exist with a new building and that some variation of the provisions of TGD-B may be appropriate. The Department has also published a series of guides/codes of practice in relation to fire safety in existing buildings for the purposes of assisting building owners in meeting their statutory obligations under the Fire Services Act 1981. 17.3.2 Because of the importance of preserving the architectural character of a protected structure, imaginative compromises will often have to be made between active and passive fire protection measures. A number of possible compensatory measures are outlined in TGD-B of the Building Regulations for works to existing buildings. Where works would materially affect the character of the protected structure the onus should be on the applicant to show that alternative solutions to fire safety enhancement have been fully explored.
- CHAPTER 17 ALTERATIONS TO ENHANCE FIRE SAFETY Architectural Heritage Protection Guidelines for Planning Authorities 226 17.4 Means of Escape in Case of Fire 17.4.1 The safe escape of occupants from a building in the event of fire is of primary importance. However, with a protected structure it may be neither practicable nor appropriate to comply with particular requirements of TGD-B of the Building Regulations. For this reason, compensating measures are allowed to be provided when dealing with an existing building. These measures include all or some of the following: a) enhanced levels of life safety protection by automatic fire detection and alarm systems; b) reduced travel distances; c) enhanced smoke-control measures; d) pressurisation of stairway enclosures; e) protection to escape routes from places of special fire risk; f ) enhanced performance of fire doors; g) additional structural fire-protection measures such as increased levels of compartmentation of the building. There may be special requirements for providing means of escape for people with disabilities, which will also have to be considered. Escape routes and exits 17.4.2 Escape routes should generally be internal where they can be accommodated without damaging good internal fabric or decoration. The use of external escape stairs should be avoided where possible because of their large and usually negative impact on the external appearance of the building. In addition, the requirement for windows or doors adjacent to an external escape stairs to have adequate fire resistance could involve the alteration of original joinery and the loss of historic glass. Where the installation of an external escape stairs is unavoidable, it should be carefully designed and efforts made to locate it inconspicuously. Escape stairs should not be permitted on principal elevations nor where they would impact on important views of the structure. 17.4.3 Requirements for adequate means of escape from a building may include proposals for the insertion of new doorways in external walls, the conversion of existing window openings into doors or the replacement of historic windows such as sash windows with other opening types. Such proposals should be carefully considered by the planning authority. Proposals that require the conversion of original window openings into doors to facilitate escape will require very careful consideration and should avoid impacting on surviving early or original windows and on important elevations. There may also be a potential impact on nearby windows which may require re-glazing with fire resistant glass The use of external escape stairs should be avoided on important elevations or where they would be obtrusive in an important view of the structure
- Architectural Heritage Protection Guidelines for Planning Authorities 227 CHAPTER 17 ALTERATIONS TO ENHANCE FIRE SAFETY The reversal of a door to allow it to open in a different direction may require obtrusive alterations to a historic doorcase and may make the original hinges and locks redundant The use of standard signage may not be appropriate in highquality interiors. Alternative designs are available which minimise the visual impact while fulfilling fire-safety obligations The design of a new protected lobby within a fine historic interior should take great care to avoid adverse visual and physical impacts; interrupting a symmetrical space or cutting across decorative plasterwork may not be acceptable regardless of whether the proposed works are reversible 17.4.4 For weatherproofing reasons, entrance doors traditionally open inwards and most internal doors open into rooms rather than outwards as may be required for escape purposes. Proposals to re-hang a historic door in order to reverse the opening direction may require unacceptable alterations to the doorframe or to the appearance of an important interior. Lighting and signing of escape routes 17.4.5 The need for the lighting and signing of escape routes should be carefully considered so as to reduce the impact on the character of the interior while clearly defining the routes. In certain sensitive interiors, the applicant may be required to install specially designed fittings that suit the location while fulfilling fire-safety requirements. Fire-protected lobbies and corridors 17.4.6 Where proposed alterations to provide enhanced fire protection would require the inclusion of protected lobbies, corridors or staircases into the interior of a protected structure, works may be necessary which would have a serious impact on the character of the building. This could include works to upgrade the fire resistance of historic walls, floors, ceilings, staircases or doorcases. 17.4.7 The insertion of a new fire-resistant lobby into an interior could damage the appearance of rooms and disrupt important decorative schemes. The applicant should be able to prove that alternative solutions and the provision of compensatory features have been explored. Where the insertion of a new lobby is permitted, its design should be appropriate and take account of the existing architecture of the interior. The reversibility of the new works should not be an excuse for poor or unsympathetic design. Fire detection and alarm systems 17.4.8 A fire-detection and alarm system is an essential part of the fire-safety strategy for all buildings. The early detection of fire is of great benefit in reducing damage and danger to both life and property. Automatic detection systems can detect the presence of fire from smoke, heat or infra red/ultra violet radiation and other emissions. Some buildings may require a different form of detection system for different locations. The character of an important interior can be harmed by the inappropriate design or intrusive location of a detection system and its associated wiring, for example, smoke detectors mounted on a decorative ceiling.
- CHAPTER 17 ALTERATIONS TO ENHANCE FIRE SAFETY Architectural Heritage Protection Guidelines for Planning Authorities 228 17.4.9 Where a detection or alarm system is proposed for the interior of a protected structure, the installation should as far as practicable be carried out without damaging the fabric and appearance of the structure. The detection system chosen should be appropriate to the location in addition to satisfying fire safety legislation. Fire suppression 17.4.10 Proposals may be made to install fire suppression systems, including hose reels or sprinklers. These systems together with their associated drainage can be difficult to conceal and their use in protected structures, particularly those with high-quality interior work, is often inappropriate. They may be considered acceptable in protected structures where they can be installed in concealed locations as part of major refurbishment works. 17.5 Internal Fire Spread (Linings) 17.5.1 Some protected structures may have internal finishes which are combustible such as timber panelling to walls or ceilings and which may constitute a fire risk. Alternative fire-safety solutions should be sought to the removal of important internal linings. Other inappropriate works could include proposals to cover over important internal linings or finishes with other linings in such a way as to damage the fabric or appearance of a protected interior. 17.6 Internal Fire Spread (Structure) Load-bearing structural elements 17.6.1 Many protected structures will include load-bearing structural elements of combustible materials such as timber. Alternative fire-safety solutions to proposals which require the removal or replacement of combustible structural elements, where these are important to the special interest of the protected structure, should be developed. The encasement of timber, iron or steel structural elements to enhance fire safety may damage the appearance of a protected interior particularly where there are decorative elements such as scrolled brackets, cusped columns and the like. Compartmentation 17.6.2 Compartmentation is a major part of passive fire protection but one which can cause difficulties when applied to a protected structure. In order to achieve the necessary subdivision of the building, works may be required to upgrade the fire Fire suppression systems have been developed for high quality interiors, using small, unobtrusive sprinkler heads and flexible pipework, which minimise the impact on the fabric of the building compared to traditional sprinkler systems. The decision to introduce a fire suppression system into a building must balance the benefits of early detection and suppression and the reduced amount of water used compared to traditional fire-fighting methods with the disadvantages of the risk of accidental discharge and the disruption caused to the building during installation Recent advances have been made in the design of fire detection systems allowing for unobtrusive installations within fine interiors. Systems such as aspirating or air sampling systems (top) consist of a sampling unit, remotely located, and small diameter pipes requiring only minute holes in the ceiling fabric to allow air to be drawn and sampled. The impact on a decorative ceiling contrasts favourably with the large, usually white, plastic smoke detectors (middle) previously used in many historic interiors
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