Trow Bridge Townhall - A Report On Conservation Legislation

Trowbridge Town Hall

A Report on Conservation Legislation: submitted by Mariana Isa towards the degree of Master of Science in the Conservation of Historic Buildings at the University of Bath. Department of Architecture and Civil Engineering.

Session 2005-2006

Trowbridge Town Hall

Acknowledgement The help, advice and support from the following are gratefully acknowledged: Dr. Michael Forsyth Faisal Mohd Ali Duangrach Iamudomrak Ali Amran BBA Architects Classmates of Msc. Conservation of Historic Buildings 2005-2006

Trowbridge Town Hall

List of Illustrations Figure No:

Title of Illustration

Illustration Credit

1.

Trowbridge Town Hall on Market Street.

Online Source 3

2.

Location of Trowbridge Town Hall.

Trowbridge Town Council

3.

Picture shows services installed during 1970s in the proposed Grand Hall area which will be removed to expose the timber roof structure.

Author

4.

Trowbridge Historic Retail Zone.

Trowbridge Town Council

5.

Proposed building section accommodating the new uses.

BBA Architects

6.

Huge void space of Great Hall, exposing grand timber roof structure.

BBA Architects

7.

Proposed front entrance ramp.

BBA Architects

8.

Proposed glass staircase (new vertical core).

BBA Architects

9.

All levels are linked to the vertical core (refuge zone). In the case of emergency, exit is through the front door and to the Sensory Garden.

BBA Architects

i

Trowbridge Town Hall

Synopsis

Trowbridge Town Hall will be undergoing a major refurbishment and renovation as part of the Local Town Council’s intention to regenerate the town. The project involves minor interior alteration and a new glass stairs extension.

This report is written in favour of the proposal with justifications based on the local and national planning and conservation policies.

Information regarding the design proposal is based on BBA Architect’s presentation at the Trowbrigde Town Hall Forum on 10th April 2006. At present, the design proposal is still undergoing modifications, subjected to further discussions between the consultants and conservation authorities involved.

ii

Trowbridge Town Hall

Contents

Acknowledgement List of Illustration

i

Synopsis

ii

1.0

Background of Trowbridge Town Hall

1

2.0

The Planning Status of the Building

3

3.0

Authorities and Bodies involved in the Planning Application

4

4.0

The Relevant Planning Legislation

5

5.0

Design Proposal and Impact on Existing Fabric

6

6.0

Building Regulations, Fire Safety Legislation, Disabled Discrimination Act and Listed Buildings Requirement.

9

7.0

Funding and Grants

12

8.0

Conclusion

14

Notes

16

Bibliography

17

Appendix: Historic Drawings Proposed Design Scheme Cost Estimation

Trowbridge Town Hall

Trowbridge Town Hall 1.0

Background of Trowbridge Town Hall

Figure 1: Trowbridge Town Hall on Market St.

1.1

Trowbridge Town Hall is a substantial detached Victorian building constructed during 1887-1889. It was paid for by a benefactor for the use of Trowbridge’s community. The building is primarily faced with natural Bath stone and is covered by a series of timber framed pitched roof structures surfaced with slate. The Town Hall features the usual embellishments and entablatures commonly associated with this period of construction1. There is a central clock tower of similar construction on the north front.

Trowbridge Town Hall

Trowbridge Public Park

Civic Hall

Figure 2: Location of Trowbridge Town Hall.

1

Trowbridge Town Hall

1.2

During the mid-1970s, the original uses of the building interior were altered by Wiltshire County Council (WWC). WWC carried out extensive alteration works due to Local Authority re-organisation.

The main use of the building was as a

Magistrate’s Court. This use ceased approximately 3 years ago due again to reorganisation of the Local Authority when Chippenham Magistrate's Court was completed. The building is now only occupied intermittently2. 1.3

The consultant team concludes that the building is in a reasonable structural condition. The proposed refurbishment and renovation involves extensive removal of most of the 1970s layout alterations, replacement of the entire services installations, a new vertical core to replace existing, a new disabled access at the main entrance and general upgrading and redecoration work.3.

Figure 3: Picture shows services installed during 1970s in the proposed Grand Hall area which will be removed to expose the timber roof structure.

2

Trowbridge Town Hall

2.0

The Planning Status of the Building

2.1

The Trowbridge Town Hall is a Grade II listed building, with a listing description by the Local Authority that reads as follows: “1887. Asymmetric plan. Stone built with gabled front (shaped gables capped by pointed pediments) basically “Jacobean” style with a central Italianate tower capped by a short spire. 3 storeys, 2 lit by a giant round headed window to left with complex square and half-round tracery and having a central oriel balcony. 6 light oriel 1st floor to right repeating tracery of left hand window and having balustrade above. 4 light mullion and transom window to 2nd floor. 6 ground floor windows in various shapes. Central entrance below tower, fluted pilasters, round headed doorway with decorated orders and key with VR; cornice over with “Jub. Vic. Reg. Jun 20. 1887” and fluted consoles to balcony over. Angled stair turret to left ending in bell dome capped by 2 chimneys. Tower has clock and side piers and central band, modillion cornice and oriel to balcony before clock. Gablets at base of spire. A variety of devices, mottoes and arms festooned over front, including 2 panels showing factory workers. Back and east side have similar elevations the best ordered is the east front.”

2.2

The Trowbridge Town Hall is located within the Trowbridge Conservation Area and has been assessed as a significant landmark in the Historic Retail Zone4.

Trowbridge Town Hall

Figure 4: Trowbridge Historic Retail Zone.

3

Trowbridge Town Hall

2.3

Currently, there are no scheduled ancient monuments in Trowbridge. Because of the potential wealth of archaeology, known and unknown, the area where the Town Hall is located is designated as an Area of Archaeological Potential. Any potential development within this area is subject to policy C15 (District Plan) regarding archaeological investigation5.

3.0

Authorities and Bodies Involved in the Planning Application

3.1

Trowbridge is in the Westbury Parliamentary constituency and governed by Trowbridge Town Council, West Wiltshire District Council and Wiltshire County Council6.

3.2

The Trowbridge Town Hall project is supported by both the District and County Councils as part of the Transforming Trowbridge regeneration programme7.

3.3

BBA Architects was appointed by the Trowbridge Town Council’s Working Party to undertake feasibility studies to propose potential uses and estimate the initial cost of refurbishing. The report is based on findings obtained in June, July and August 20058.

3.4

The public interest is relevant in balancing the factors as to whether or not Listed Building Consent (LBC) should be granted. There have been council meetings, public forums and open days at the Town Hall, articles on the town council’s website, reports in the Wiltshire Times and a display over three days at West Wilts Show (2005) with regard to the future of the Trowbridge Town Hall. The vast majority of returned questionnaires felt that the Town Hall should be brought back into use for all the community9.

3.5

The proposed design is to be developed further through discussions with: ƒ

West Wiltshire District Council’s Planning Department

ƒ

West Wiltshire District Council’s Conservation Officer

ƒ

West Wiltshire District Council’s Building Control

ƒ

Wiltshire County Council Highway’s Department

4

Trowbridge Town Hall

4.0

The Relevant Planning Legislation

4.1

Under the Town and Country Planning Act 1990, the planning application is to be submitted to the West Wiltshire District Council (WWDC) with a listed building and conservation area consent request under the Planning (Listed Buildings and Conservation Areas) Act 1990.

4.2

The planning application will also have to be made for Change of Use as the existing Magistrate’s Court is covered under a ‘Sui Generis’ use. There is residential use at present for the top flat. The Change of Use application will have to cover all the different type of uses: ƒ ƒ ƒ ƒ ƒ

4.3

Shops, retail - A1 use Restaurant / café - A3/A4 use Pubs & bars - A4 use Offices - B1 use The great hall / public hall - D1/D2 use

Specific policies and guidelines for protecting the built environment, preserving and enhancing conservation areas stated in Trowbridge Council’s Local Development Framework and West Wiltshire District Plan 1st applies to the proposed scheme.

4.4

The local Conservation Area issues are restricted to preserving the physical character of the Town Hall.

4.5

A design statement will be included within the planning applications. This needs to provide evidence for all major changes to the building design.

4.6

In determining the proposals the Planning Authority (WWDC) will refer to the relevant National Planning Legislation and Government Circulars with particular reference to Planning Policy Guidance 15 (PPG 15) – Planning and the Historical Environment 1994, published by the Department of the Environment (DOE) and PPG16 – Archaeology and Planning 1990.

5

Trowbridge Town Hall

4.7

Mandatory consultants for the application will be notified by the Local Planning Authority (WWDC). They are the Secretary of State (Department of Culture, Media and Sport), English Heritage (EH), The Society for the Protection of Ancient Buildings (SPAB), the Georgian Group and The Council for British Archaeology.

5.0

Design Proposal and Impact on Existing Fabric

5.1

PPG15.2.18 mentions that new uses may often be the key to a building’s or an area’s preservation. The intention to change the use of the Town Hall is to ensure that the building adapts to the current and future needs of Trowbridge’s community. The way forward is to look at the development much more commercially while injecting some elements of community use.

5.2

Trowbridge Town Council‘s outline for the project are as follows: ƒ

TTC Offices.

ƒ

Registrar Offices.

ƒ

Ground floor retail unit(s) with street frontage.

ƒ

Tourist Information Facility.

ƒ

‘Sessions Hall’ providing Marriage Room, Council Chamber and other ‘multi-use’ facilities.

ƒ

‘Great Hall’ for shows, concerts, lectures, events, fairs and the like.

ƒ

‘Supper Room’ adjacent the ‘Great Hall’ providing bar / catering space to support functions as well as being a multi-use hall in it’s own right.

ƒ

A full catering facility to support all events / functions.

ƒ

A3 retail unit in basement with separate access.

ƒ

A new core providing vertical movement by lift, staircase and dumb waiter

ƒ

Storage and ancillary space.

6

Trowbridge Town Hall

Figure 5: Proposed building section accommodating the new uses.

5.3

The proposed design promotes interaction, daylight, connectivity, accessibility, panorama and compliance (refer appendix). The design intention is to return the Town Hall to its former glory whilst making it suitable for 21st century community use.

5.4

The significant alteration is the stripping of the 1970s partitions to reveal the huge void space of the Great Hall, exposing its grand timber roof structure. The hall will be used for banquets, stage performance, conferences and wedding receptions. This is a positive step towards regaining the architectural and community spirit of the Town Hall.

Figure 6: Huge void space of Great Hall, exposing grand timber roof structure.

7

Trowbridge Town Hall

5.5

The Planner’s major concern was the design of the front entrance disabled access ramp10. PPG15.3.12 states the importance of balancing the effect of any changes on the special interest of a listed building. To fulfil this, the front entrance ramp design keeps with the character of the building using smooth Ashlar and Bath stone and metal railings. Glass is proposed in order to play down the appearance and the scale of the ramp.

Figure 7: Proposed front entrance ramp.

5.6

Alterations are based on proper understanding of the structure. Taking account of the building’s age and method of construction, the new glass stairs and front ramp will be structurally independent, taking all support from the natural ground.

Figure 8: Proposed glass staircase (new vertical core).

8

Trowbridge Town Hall

5.7

Car parking issue has been raised with Wiltshire County Council Highways Department11. As there is no parking space linked to the building at present, there are no foreseen problems with the lack of parking spaces in the proposal. Personnel are able to use the neighbouring Castle Place car park which happens at present.

5.8

A parking lay by off the front entrance would be used as a dropping off and picking up point, rather than a parking space. This would allow wedding ceremony traffic for the bride and groom.

6.0

Building Regulations, Fire Safety Legislation, Disabled Discrimination Act and Listed Building Requirements.

6.1

A sensitive and sensible application of the Building Act 1984, Fire Safety Legislation and Disability Discrimination Act (DDA) is extremely important as mentioned in PPG15.3.26. Steps have been taken to ensure that the proposed design fulfils all these requirements12.

6.2

Building Regulations 6.2.1 Ramped entrance off the main high street is not required under Part M of the Building Regulations. However, this ramped entrance is required by Trowbridge Town Hall to comply with current DDA regulations. 6.2.2

Thermal and noise regulations are not required to comply with current Building Regulations as main use is as existing.

6.2.3

All fire door improvements will be agreed with the conservation officer. Concealed Permabate fire door closers within the door are preferred.

9

Trowbridge Town Hall

6.3

Fire Safety Legislation 6.3.1 The wine bar and retail are treated as new and therefore would have to comply with the latest fire separation details in the building between uses floor/ceiling and walls. 6.3.2

The rest of the building are treated as refurbishments, therefore, no changes are required for Building Regulations between floors/ceiling and walls including doors.

6.3.3

Regarding the new stairs and lift to replace existing, the fire strategy will be agreed with the fire officer through Building Control. The new proposals would meet with the number of required fire exits.

6.3.4

A new automated fire alarm system will be installed throughout the building so that all occupiers will be aware of an emergency.

Great Hall Supper Room

TTC Office

TTC Office Suite

Possible connection to Castle Place Development

Session Hall

Sensory Garden

Food Preparation Equipment Store Figure 8: All levels are linked to the vertical core (refuge zone). In the case of emergency, exit is through the front door and to the Sensory Garden.

10

Trowbridge Town Hall

6.4

Disability Discrimination Act (DDA) 6.4.1

New disabled access is proposed at the front entrance and at the rear exit leading to the Sensory Garden.

6.4.2

The new lift and stairs will be sized to comply with DDA, BS8300 and Part M of the Building Regulations as agreed with Trowbridge Town Hall / users.

6.4.3

External and internal decoration and ironmongery will be agreed with clients / conservation officer and DDA regulation.

6.4.4 6.5

Door width on emergency exits will comply to DDA requirements.

Listed Building 6.5.1

A thorough design statement will be required to substantiate any proposed alterations to the building.

6.5.2

English Heritage is to be consulted regarding the replacement of the existing staircase with a glazed structure.

6.5.3

All design alterations will be agreed with the conservation officer and English Heritage before starting development. This will include extensive large scales details including all stone reports.

11

Trowbridge Town Hall

7.0

Funding and Grants

7.1

The estimated cost for the new development is ₤2,089,000 excluding VAT and building cost inflation. This equates to ₤1,129/m2 (₤105/sq.ft) based on the overall GFA. With the 15% allowance for fees the initial cost rises up to ₤2.4M. Inflation is currently running at about 5% per annum13.

7.2

In taking ownership of the Town Hall, the Trowbridge Town Council decided to increase the council tax precept as a one off payment from council tax payers up to ₤78 a year14. There were different reactions from the tax payers, some supportive and some disagreed. Alternatives to fund the project must take account of the possible effects which the funding could have on the precept.

7.3

Based on a capital spend approaching £3M (including fees), the funding sources are likely to be a combination of the following: ƒ

WCC capital contribution to Registrar fit-out.

ƒ

Existing TTC capital funds.

ƒ

HLF grant.

ƒ

Other grants.

ƒ

Disposal of Civic Hall for commercial redevelopment.

ƒ

Local benefactors (any famous/successful ‘Sons and Daughters’ of Trowbridge).

ƒ

Borrowing (capitalised against rental income).

ƒ

Precept increase (£1 rise/household generates £10K additional income per annum).

ƒ

The scope of work and possible phasing will need to be reviewed to ensure that capital spend equates to available funds.

7.4

The most likely source of significant funding is the Heritage Lottery Fund but even then the Town Council must find at least 25% of matched funding. A loan from the Public Loans Board would allow for some of the cost to be spread over a longer period. Generating of income from letting out space in the building could contribute to a portion of the Town Hall’s future running costs.

12

Trowbridge Town Hall

7.5

The suitable options to manage the new Town Hall are either in the form of a Charitable Trust, a Community Investment Company or through Town Council ownership. The most unlikely resort is to sell the management to a developer because it would not benefit the public.

7.6

The differences between a Charitable Company and a Community Investment Company are listed in the table below15.

ƒ ƒ

Charitable Company Governed by Memorandum and articles of association Runs by Directors/Trustees Members

Formal Requirements

ƒ ƒ

Exclusively charitable Public benefit

ƒ

Community Interest Test*

Reporting

ƒ ƒ ƒ

Accounts - CH and CC** Annual return - CH and CC SIR - CC

ƒ ƒ ƒ

Accounts – CIC regulator Annual return – CH CIC report – CIC regulator

Pros

ƒ ƒ ƒ ƒ

Easy to attract funding. Charity = goodwill Reduced rates from council Tax benefits

ƒ ƒ ƒ ƒ ƒ

More flexible than a charity Can carry on any trading Directors can be paid Greater financial freedom Can still be eligible for some grant-funding.

Cons

ƒ

Cc consent sometimes needed for changes to M&A. Very restricted trading, so would need to set up a trading subsidiary company. Problems with serving alcohol on charity premises.

ƒ ƒ

No tax benefits Only discretionary reduced rates from council Some grant-funders may no be able to give to CIC Not very widely known yet.

Structure

ƒ

ƒ ƒ

*

Community Investment Company ƒ Governed by memorandum and articles of association ƒ Run by directors ƒ Members

ƒ ƒ

**

The Community Interest Test – Would a member of the public, when looking at the CIC, say it was for the community interest? CH – Companies House; CC – Charity Commission

7.7

In the case of the new Trowbridge Town Hall, management by a Charitable Company is recommended. There are precedence of projects managed by charitable companies that have proved to be successful. Due to public pressure, The Town Council is in no position to take risks.

13

Trowbridge Town Hall

7.8

A grant application by a Charitable Company is more likely to be approved by the Heritage Lottery Fund (HLF). This is because HLF must be convinced that the development is in the public’s interest and that there will be a sufficient income with no private gain. Through a Charitable Company, the Town Council can also reclaim V.A.T through the V.A.T savings scheme. A business plan stating its future viability has to be submitted to HLF together with the grant application.

8.0

Conclusion

8.1

Being a Grade II listed building means that Trowbridge Town Hall alterations have to be carried out sensitively to accommodate the new uses. The design proposal is compatible with the fabric, interior and setting of the historic building as mentioned in PPG15.3.9.

8.2

The consultants have conducted a thorough study regarding the building’s structure, defects and potential use. All these have taken into respect of Trowbridge and West Wiltshire local policies, the PPG15 and other relevant planning and building regulation. Ongoing discussion with all the authorities involved shows the consultants’ commitment to ensure the protection of the building’s character.

8.3

The proposed design considers the original 19th century layout and applies the minimal intervention approach. Take note that the proposal does not change the fabric of the building.

8.4

The proposal also takes account of how the 19th century building could accommodate modern building regulations such as the fire legislation and DDA. This is important to ensure that the building would be safe for public use.

14

Trowbridge Town Hall

8.5

It is clear that the building is able to meet the accommodation requirement, but a significant capital investment will be required. Funding is always an issue in restoration projects, however the only opposition for the Trowbridge Town Hall project is regarding the increase of tax. It is noted that the inclusion of more commercial elements would attract fewer grants, hence the management by a Charitable Company is preferable.

8.6

Trowbridge Town Hall has been a significant landmark in Trowbridge for more than 100 years. Refurbishing the unused Town Hall and injecting commercial and community use will reinstate its original role.

15

Trowbridge Town Hall

Notes 1. BBA Architects, chapter 4.2 2. BBA Architects, chapter 2.1 3. Trowbridge Town Hall Forum 4. Trowbridge Town Council 5. Trowbridge Town Council 6. Online Source 4 7. BBA Architects, chapter 4.3 8. BBA Architects, chapter 6.0 9. Online Source 1 10. BBA Architects chapter 4.3 11. BBA Architects, chapter 4.3 12. BBA Architects, chapter 4.3 13. BBA Architects, chapter 5.3 14. Online Source 1 15. Online Source 2

16

Trowbridge Town Hall

Bibliography

1.

BBA Architects. Trowbridge Town Hall Feasibility Report. BBA Architect, Bath, 2006.

2.

Department of the Environment. Planning Policy Guidance: Planning the Historic Environment (PPG15). Department of the Environment, September 1994.

3.

Department of the Environment and the Welsh Office. The Building Regulations 2002. Her Majesty’s Stationary Office, 2002.

4.

Heritage Lottery Fund. Conservation Management Plans. Heritage Lottery Fund.

5.

Johns, Colin. Historic Building Legislation: Current Legislation and Policy- Listed Buildings. Lecture Notes for Msc. Conservation of Historic Building at University of Bath, 8 March 2006.

6.

Johns, Colin. Historic Building Legislation: Current Legislation and Policy – Conservation Areas. Lecture Notes for Msc. Conservation of Historic Building at University of Bath, 16 March 2006.

7.

Johns, Colin. Building Preservation Trust. Lecture Notes for Msc. Conservation of Historic Building at University of Bath, 16 March 2006.

8.

Norris, Peter. The Building Regulations and Associated Legislation. Lecture Notes for Msc. Conservation of Historic Building at University of Bath, 22 March 2006.

9.

Suddards, W. Rogers. Listed Buildings - The Law and Practice of Historic Buildings, Ancient Monuments and Conservation Areas. Sweet & Maxwell, London, 1996.

10.

Trowbridge Town Council. Trowbridge Conservation Area Character Assessment. Trowbridge Town Council, March 2006.

11.

Walker, Robert. Guide to Historic Buildings Law. Cambridge County Council, 1995.

17

Trowbridge Town Hall

Web sites: 1.

Letter Special: Your Views on the Trowbridge Town Hall Project. http://archive.thisiswiltshire.co.uk/2006/2/10/262123.html Accessed: 10.05.2006

2.

Charitable Company or CIC? www.stoneking.co.uk Accessed: 10.05.2006

3.

www.trowbridge.gov.uk Accessed: 10.05.2006

4.

Advice on Listed Buildings. www.westwiltshire.gov.uk Accessed: 10.05.2006

Others: 1.

Trowbridge Town Hall Forum. Monday, 10th April 2006.

18