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 239 CHAPTER 18 IMPROVING ACCESS 18.5 Requirements for Users with Cognitive and Sensory Disabilities 18.5.1 The full range of disability extends beyond mobility alone. Where proposals are made to provide improved access to and within protected structures, consideration will also need to be given to the requirements of users with varying degrees of visual, hearing and cognitive ability. 18.5.2 Such proposals may include the provision of tactile circulation routes, visually contrasting steps at top and bottom of flights of stairs, signage, enhanced lighting levels, tapping-rails, communication aids such as induction loops etc. Consideration will need to be given to the potential impact of such proposals on the fabric, character and appearance of the protected structure. 18.6 Introduction of New Elements 18.6.1 New elements associated with improving access to a protected structure will be required. These may include lifts, ramps, handrails and balustrades. These elements will often be highly visible and have the potential to impact on the special interest of the building. Where new elements are to be introduced, they should be designed to respect the character and materials of the existing fabric. The design does not need to imitate past styles to be considered acceptable, but should respect the quality of existing features. Designing new elements for incorporation within a historic building is a challenge. The planning authority should not seek to discourage contemporary and innovative designs, providing these are of sufficiently high quality and do not detract from the character of the historic fabric. Traditional surfaces finishes can cause problems for those in wheelchairs or with walking difficulties but accessible routes can be provided through these areas using complementary materials New elements which are provided to improve access to a protected structure should avoid being visually obtrusive, whether consciously modern or of a traditional design
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- Architectural Heritage Protection Guidelines for Planning Authorities 241 CHAPTER 19 MAINTENANCE 19.1 Regular and correct maintenance and repair are key to the conservation of protected structures and buildings within ACAs. Without them the structures, or elements of them, may deteriorate beyond recovery. Proper repair and maintenance slow the progress of decay without damaging the character and special interest of the structure but should generally be undertaken only after establishing the cause of deterioration. Aggressive or misguided works can lead to the permanent damage of the fabric of a building. In considering routine maintenance, care should be taken to require that such works always follow conservation principles and best practice. Repair and maintenance works should not generally include the replacement of elements, except where required to make good a shortfall or to replace individual broken items. 19.2 Maintenance works are generally the responsibility of the owner or occupier of the building and not of the planning authority. However, the authority can provide appropriate assistance in achieving these works in the form of aid (whether financial, materials, equipment or services) and of advice given formally through the declaration or informally in another context. The planning authority can take action, where a structure is becoming endangered through neglect, to specify works which it considers necessary to prevent the structure from deteriorating further. This can be done by issuing a notice under Section 59 of the 2000 Act or, if appropriate, a notice under Section 11 of the Derelict Sites Act 1990. However, it is preferable that intervention should take place at an early stage, before deterioration takes hold. 19.3 It is good building management practice for the owner or occupier of a protected structure to prepare a programme of on-going maintenance. It is also good practice to monitor regularly any critical aspects of a building envelope and structure, particularly if it is old or in fragile condition. If this is done regularly, deterioration can be arrested at an early stage, and tackled quickly and cheaply. It may be useful for an owner or occupier to prepare a maintenance manual containing the accrued experience of those previously charged with the care of the building. 19.4 Repairs should be carried out only after careful analysis of the problems that have led to deterioration so as to ensure that the repairs are appropriate and have a relatively long life. There is no point in spending money on a building, only to find out that the initial analysis did not pinpoint the essential problem and hence the steps taken to solve it are not relevant or durable. Repairs themselves can cause further damage, if based on an incorrect analysis of a problem. These windows are pictured prior to a recent repair. While it was initially thought rails, sills or stiles would need replacement or splicing-in, on examination very little timber repair was required. The crown and cylinder sheet glass was retained in the repair and redecoration works. It is important to inspect all historic elements on an individual basis prior to specifying works, in order to ensure that only necessary repairs and replacement of parts are carried out It is good management practice to regularly inspect a structure to ensure that rainwater continues to drain effectively. In this case a blockage in a new lead downpipe resulted in overspill onto the wall behind, which was not remedied in time to prevent efflorescence occurring on the face of the saturated brickwork
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- Architectural Heritage Protection Guidelines for Planning Authorities 243 APPENDIX A RESEARCH SOURCES Research Sources Appendix A Department of the Environment, Heritage and Local Government National Inventory of Architectural Heritage Dún Scéine Harcourt Lane Dublin 2 telephone: 01 411 7100 email: [email protected] website: www.buildingsofireland.ie Department of the Environment, Heritage and Local Government Archaeological Survey of Ireland 6 Ely Place Upper Dublin 2 telephone: 01 647 3000 Irish Architectural Archive 45 Merrion Square Dublin 2 telephone: 01 663 3040 fax: 01 663 3041 e-mail: [email protected] website: www.iarc.ie The National Archives Bishop Street Dublin 8 telephone: 01 407 2300 e-mail: [email protected] website: www.nationalarchives.ie The National Library of Ireland Kildare Street Dublin 2 telephone: 01 603 0200 e-mail: [email protected] website: www.nli.ie Registry of Deeds Henrietta Street Dublin 7 telephone: 01 670 7500 website: www.landregistry.ie Valuation Office Ireland Irish Life Centre Abbey Street Lower Dublin 1 telephone: 01 817 1000 e-mail: [email protected] website: www.valoff.ie Industrial Heritage Association of Ireland Tailors’ Hall Back Lane Dublin 8 website: www.steam-museum.ie/ihai Dublin City Archives 138-142 Pearse Street Dublin 2 telephone: 01 674 4800 e-mail: [email protected] website: www.dublincity.ie/dublin/archives2 Cork Archives Institute Christ Church South Main Street Cork telephone: 021 427 7809 e-mail: [email protected] website: www.corkcorp.ie/facilities Representative Church Body Library Braemor Park Churchtown Dublin 14 telephone: 01 492 3979 e-mail: [email protected]
- APPENDIX B ARCHITECTURAL HERITAGE IMPACT ASSESSMENTS Architectural Heritage Protection Guidelines for Planning Authorities 244 Architectural Heritage Impact Assessments Appendix B B1.0 Requirement for a Report B1.1 The requirement for an architectural heritage impact assessment will generally come about for one of two reasons: a) as part of a development application in order to provide sufficient information for the planning authority to make an informed decision on the potential impact on the architectural heritage, or b) where permission has been granted for works to a protected structure or a proposed protected structure, to record the existing fixtures or features which contribute to its special interest and which would be lost or altered as a result of the works. B2.0 Scope of the Assessment B2.1 The detail and extent of the assessment should be appropriate to the nature and scale of the proposed works. The object of the assessment should be to describe how the proposals would affect the character of the protected structure or any part of it. This will normally require a description of the existing structure, a description of the works proposed and a description of how any potential adverse impact on the architectural heritage is to be mitigated. B2.2 Where comprehensive or wide-ranging works are proposed, the entire protected structure and the land and features within its curtilage may require to be included in the assessment. However, where proposals are limited in scale or relate to a specific part or parts of the structure, it will generally be sufficient to include a brief description of the structure as a whole, to provide a context for the proposals, but to concentrate the detailed assessment on those parts of the structure which will be impacted upon. If the application relates to a new building within the curtilage of a protected structure or proposed protected structure, the assessment should concentrate on the relationship between the structure and its setting, and the merits of, and impacts on, existing structures and features in the curtilage. B2.3 Ideally, there should be full access to the structure for the author of the assessment in order for him/her to have a full understanding of the potential for the works to impact on the building. B3.0 Recording a Structure to be Altered or Demolished B3.1 Where an assessment is intended as a permanent record of a structure, or part of a structure that is being altered or demolished, it may have to substitute for the structure itself and so must be capable of bearing on-going and repeated analysis, re-examination and reinterpretation. Specialist expertise may be necessary for the compilation of such architectural heritage impact assessments that describe and assess structural or other engineering matters or those relating to historic landscapes. B4.0 Competency of Author(s) B4.1 The author(s) of an architectural heritage impact assessment should be appropriately qualified or competent to undertake the assessment. Where the works to the protected structure are unlikely to have more than a minor impact on the character of the structure, it may be acceptable that the assessment be undertaken by a person, or persons, without specialised expertise. However, where the protected structure is of high quality or rarity, or where the impact on the architectural heritage may be substantial, the planning authority could make it a requirement that the assessment be carried out by those with relevant competence or expertise. B5.0 Elements of the Assessment B5.1 The content of the assessment will vary in individual cases depending on the relative significance of the structure for which the assessment is being prepared and the nature and extent of proposals under consideration. The information set out below can be used as a guide. Assessments should generally contain three distinct but interdependent elements: a) a written account; b) a set of well-presented drawings; c) suitable photographs and/or other illustrations.
- Architectural Heritage Protection Guidelines for Planning Authorities 245 APPENDIX B ARCHITECTURAL HERITAGE IMPACT ASSESSMENTS 1 Details available from the relevant planning authority or by consulting its current development plan 2 Details available from the relevant planning authority or by consulting its current development plan 3 Relevant RMP information should be available in the offices of the planning authority and local libraries 4 Relevant RMP information should be available in the offices of the planning authority and local libraries 5 The owner of the structure will have received written confirmation at the time of registration 6 The owner of the structure will have received written confirmation at the time of the making of the order 7 Available from published surveys or from the NIAH website Written Account B5.2 The written account of the building will usually comprise three parts: a) core data; b) short description of the building; c) analysis. Core Data B5.3 The following core data on the building should generally included in every report: a) purpose of the assessment. For example, where the assessment forms part of a planning application, this should be stated. Where the assessment is part of a response to a further information request from the planning authority, the planning reference and a copy of the further information request from the planning authority should be included with the assessment. Where the assessment is to fulfil the requirements of a condition of permission, the planning reference number should be given and a copy of grant of permission and relevant condition(s); b) name and address of the structure, including any local reference by which the building is known, where this is necessary to identify it; c) brief description of the typological aspects of the structure; d) Ordnance Survey map reference for the structure; e) National Grid reference, where necessary; f ) details of the form, or forms, of statutory protection which apply to the site, for example: i. Record of Protected Structures, including reference number;1 ii. Architectural Conservation Area designation;2 iii. Recorded Monument, including RMP reference number;3 iv. Zone of Archaeological Potential;4 v. Registered Monument, including RMP reference number;5 vi. Preservation Order or Temporary Preservation Order;6 g) name of the individual (and their agency, if appropriate) who prepared the assessment, and his/her relevant qualifications or competency; h) date of the assessment and of the inspection; i) name of relevant planning authority; j) details of any declaration issued regarding the structure; k) National Inventory of Architectural Heritage registration number of the structure, where available7 . Short Description of the Structure B5.4 This should be a concise description of the structure as it exists, noting all its salient features, and describing its external and internal appearance and setting, form, present function, type or purpose, materials, architect and date (where ascertainable). For large sites, where there is more than one structure, separate descriptions of each should be made together with an account of their relationship to each other. Analysis of the Existing Structure B5.5 Following on from the basic data contained in the short description, the written assessment should contain all or part of the following information as relevant to the particular case. B5.6 Where the development consists solely of new work, such as extensions or new build in the curtilage of a protected structure, items a) to c) can be briefly summarised: a) a description of the structure, recording features of note or historical significance, architectural or engineering design, building materials, building techniques and craftsmanship. Where comprehensive works are proposed, it may be appropriate that this description be carried out on a floor-by-floor, room-by-room basis; b) a description of the structure’s overall development, noting evidence of successive building phases and supporting this analysis with annotated reference to stylistic elements, documentary sources or scientific dating methods, where appropriate. Reference should be made to original and present uses of the structure, or its parts; c) a description of the current physical condition of both the fabric and the structure in order to establish the nature and extent of any apparent damage, including any indications of previous demolition or alteration to the structure; d) a description of the relationship of the structure to its setting, noting the evolution and condition of the site, its impact on the landscape, ancillary structures (either current or removed) and their relationship to the principal structure in question. Where the proposal relates to new works this section should be comprehensive. However, it will not be relevant where internal works alone are proposed;
- APPENDIX B ARCHITECTURAL HERITAGE IMPACT ASSESSMENTS Architectural Heritage Protection Guidelines for Planning Authorities 246 e) information on persons or organisations associated with the construction, development or use of the building, including architects, engineers or builders, proprietors or other occupants, where known. Historically significant events with which the building was associated should also be included. f ) certain structures may merit further investigation of record sources, such as Valuation Office records, deeds relating to the building in the Registry of Deeds, architectural drawings or other information in, for example, the Irish Architectural Archive, National Library of Ireland or the Archaeological Survey of Ireland, and historic census records. Drawings B5.7 Drawings of the structure, including site-plans, plans, sections and elevations, are generally necessary in order to locate the proposed works, the location and direction of the photographs included and to help in the assessment of the impact of the proposed development. Rooms or other spaces should be numbered and these numbers matched to written descriptions and illustrations where necessary to identify locations. B5.8 Where alterations are proposed to only a small portion of the structure, it should not generally be necessary to include an exhaustive set of measured drawings for the entire protected structure. Indicative floor plans combined with photographs should be sufficient to support the assessment in such cases. Maps B5.9 Where the building or structure appears on early Ordnance Survey or other historic maps and its development, or earlier form, is relevant to the development proposals, it would be useful to include copies of the pertinent sections of the maps within the assessment and cross-referenced to other parts of the assessment as necessary. Photographs B5.10 A photographic survey of the relevant parts of the structure should be an integral part of the assessment. Where comprehensive works are proposed, the photographic coverage required for assessments could include floor-by-floor, room-byroom coverage of the internal appearance, and building elements, decorative features, details, fixtures or fittings, whether internal or external, noted as contributing to its character in the detailed written analysis. B5.11 Where minor or small-scale works are proposed, photographs can be limited to those parts of the structure which will be impacted upon by the development. In such cases, it will nonetheless be useful to include enough general photographs of the structure to allow the context of the development to be appreciated by anyone reading the assessment. B5.12 Colour-print film and digital images can be used for assessments to be submitted prior to a decision being made on the planning application. Scanned or digitally produced photographs should be printed legibly in the assessment to allow detailed examination. All copies submitted to the planning authority should be to the same standard, and not black-and-white photocopies. Captions should identify the purpose of the image and the location of the feature or space. B5.13 Copies of relevant historic photographs, where available, could usefully be included with the assessment. All photographs should be clearly marked, identifying the location and the subject of the image, and when the photograph was taken and by whom (if known). Anticipating Concealed Features B5.14 Where the proposed works consist of alterations to an existing structure, concealed architectural features, such as chimneypieces, fireplaces, earlier openings, panelling, or decorative finishes, may come to light during the course of the works. Where there is any likelihood of this, the assessment should contain a schedule of reversible exploratory and enabling works and note whether or not it is anticipated that further future approvals will be necessary as a result.
- Architectural Heritage Protection Guidelines for Planning Authorities 247 APPENDIX B ARCHITECTURAL HERITAGE IMPACT ASSESSMENTS B5.15 Where feasible, the assessment should indicate alternative design details or methods of work which would allow such features to remain in situ. Alternatively, the planning authority could attach an appropriate condition to the planning permission to ensure that these features will be retained or properly recorded as appropriate to their importance. Where removal is unavoidable, the assessment should suggest alternative locations within the structure for found features. Impact Assessment B5.16 The author(s) of assessments compiled to accompany a planning application should be fully appraised of the development proposal. The assessment should contain an evaluation of the quality and importance of the structure. In addition, it should contain a comprehensive assessment of the implications of the development for the character of the structure and the area in which it is located. This should highlight how the elements of this character (those which contribute to its special architectural, historical, archaeological, artistic, cultural, scientific, social and/or technical interest) would be materially altered by the development. Recommendations and Conclusions B5.17 Any recommendations and mitigation measures should be set out in accordance with the conclusions of the impact assessment, including an outline of proposed conservation works for agreement with the planning authority. Any scope of works statement or methodology included should be specifically written for the structure that is the subject of the assessment. B5.18 It may not always be necessary or desirable to include conclusions or recommendations in the assessment. In some cases it will be sufficient for the assessment to describe and assess the structure, with clear and relevant illustrations cross-referenced to the text. Such assessments should describe in detail the existing architectural heritage, the impacts of the proposals, and the potential to mitigate any negative impacts in order to allow the planning authority to arrive at its own conclusions regarding the appropriateness of the proposed development.
- BIBLIOGRAPHY Architectural Heritage Protection Guidelines for Planning Authorities 248 Bibliography Relevant legislation and statutory instruments Planning and Development Act 2000 (in particular Part IV Architectural Heritage) Planning and Development Regulations 2001 also Architectural Heritage (National Inventory) and Historic Monuments (Miscellaneous Provisions) Act 1999 Building Control Act 1990 Building Regulations and Technical Guidance Documents 1997 - 2004 Derelict Sites Act 1990 Employment Equality Act 1998 Equal Status Act 2000 Fire Services Act 1981 Freedom of Information Acts 1997 - 2003 Heritage Act 1995 Local Government (Sanitary Services) Act 1964 Minister for the Environment and Local Government (Performance of Certain Functions) Act 2002 National Monuments Acts 1930 - 2004 Planning and Development (Amendment) Act 2002 Registration of Title Act 1964 Taxes Consolidation Act 1997 (in particular Section 482 – Relief for expenditure on significant buildings and gardens) Wildlife Acts 1976 - 2000 Government publications Archaeological Survey of Ireland, Archaeological Inventories of Co. Carlow (1993); Co. Cavan (1995); Co. Cork 1. West (1992); Co. Cork 2. East and South (1994); Co. Cork 3. Mid (1997); Co. Cork 4. North (2000); Co. Galway 1. West (1993); Co. Galway 2. North (1999); Co. Laois (1995); Co. Leitrim (2004); Co. Louth (1986); Co. Louth (Full Survey) (1991); Co. Meath (1987); Co. Monaghan (1986); Co. Offaly (1999); Co. Tipperary 1. North (2002); Co. Waterford (1999); Co. Wexford (1996); Co. Wicklow (1997) Department of Arts, Culture and the Gaeltacht, Strengthening the Protection of the Architectural Heritage (Dublin: 1996) Department of Arts, Heritage, Gaeltacht and the Islands, Action on Architecture 2002 - 2005 (Dublin: 2002) Department of Arts, Heritage, Gaeltacht and the Islands, Framework and Principles for the Protection of the Archaeological Heritage (Dublin: 1999) Department of Arts, Heritage, Gaeltacht and the Islands National Heritage Plan (Dublin: 2002) Department of the Environment, Conservation Guidelines (Dublin: 1996). Available in pdf format from www.environ.ie Department of the Environment, Sustainable Development – A Strategy for Ireland (Dublin: 1997) Department of the Environment and Local Government, PL12 – A Guide to Architectural Heritage (Dublin: 2002) Department of the Environment, Heritage and Local Government, National Inventory of Architectural Heritage Handbook (unpublished May 2003) National Inventory of Architectural Heritage, Surveys of the Architectural Heritage of Co. Carlow (2002); Co. Clare (2000); Fingal Co. (2002); Co. Kerry (2002); Co. Kildare (2002); Co. Laois (2002); Co. Meath (2002); South Dublin Co. (2002); Co. Waterford (2004); Co. Wicklow (2004); Surveys of the Architectural Heritage of Athy (2004); Navan (2004); Tralee (2004). See also www.buildingsofireland.ie National Monuments and Historic Properties Service, Office of Public Works, The Care and Conservation of Graveyards (Dublin: 1995) Council of Europe Conventions Council of Europe, European Charter of the Architectural Heritage (Strasbourg: 1975) Council of Europe, Convention for the Protection of the Architectural Heritage of Europe (‘Granada Convention’) (Strasbourg: 1983) Council of Europe, Convention on the Protection of the Archaeological Heritage of Europe (‘Valletta Convention’) (Strasbourg: revised 1992) Further information available from www.coe.int
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