Allan House, Newcastle

Chris Fern, Guy Hopkinson, Simon Johnson & Steve Timms. 2006

introduction | desk based assessment | building & photographic survey | building appraisal | conclusions & bibliography

Part 3: Historic Building Appraisal

Introduction

This report has been prepared on the behalf of Mike Griffiths & Associates in support of an application for the mixed-use redevelopment of the Alan Building, City Road, Ouseburn, centred on NGR NZ 2631 6423. The Site was formerly the offices of the Tyne Tees Steam Shipping Company and is currently occupied by a shop-fitting company and architects office.

The purpose of this document is to explore the architectural and historic interest of the buildings within the Site; and their contribution to the immediate surroundings and Conservation Area. Having considered them in context, an assessment is made of the individual buildings' significance and a judgement made as to whether they are of such importance that they should be retained, on conservation grounds, as part of the wider proposals.

Policy Framework

Although Alan House is not statutory Listed, it is included on the local list of buildings of historic interest, and also falls within the Lower Ouseburn Conservation Area (CA) designated in October 2000.

Whilst inclusion on a local list does not place any additional planning controls on proposals for redevelopment, the adoption of supplementary planning guidance based on the Local List is a material consideration; and the planning authority will take historic or architectural interest of a building(s) into account when determining any application.

Government advice in 'Planning and the Historic Environment' Planning Policy Guidance Note 15 (PPG15) seeks to give advice on applying conservation policy within the planning system with specific reference to issues that should be considered in assessing applications. It suggests that where a building falls within a CA, then the same procedures should be followed as if it were Listed (paras. 4.25-4.27). Great emphasis is placed on applicants justifying proposals to works on Listed Buildings. Key terms include importance and setting with regard to Listed Buildings and the character of Conservation Areas. Criteria for assessing Listed Building application area given in para 3.5:

• The importance of a building, its intrinsic architectural and historic interest and rarity, in both national and local terms ('historic interest' is further explained in paragraph 6.11);
• The particular physical features of the building (which may include its design, plan, materials or location) which justify its inclusion in the list: list descriptions may draw attention to features of particular interest or value, but they are not exhaustive and other features of importance (e.g. interiors) may come to light after the building's inclusion in the list;
• The building's setting and its contribution to the local scene, which may be very important, e.g. where it forms an element in a group, park, garden or other townscape or landscape, or where it shares particular architectural forms or details with other buildings nearby;
• The extent to which the proposed works would bring substantial benefits for the community, in particular by contributing to the economic regeneration of the area or the enhancement of its environment (including other listed buildings).

In particular, para 4.26 states:

• account should clearly be taken of the part played in the architectural or historic interest of the area by the building for which demolition is proposed, and in particular of the wider effects of demolition on the building's surroundings and on the conservation area as a whole.

Criteria for judging Listed Building Consent applications are also provided in PPG15:

• The importance of a building, its intrinsic architectural and historic interest and rarity, in both national and local terms ('historic interest' is further explained in paragraph 6.11);
• The particular physical features of the building (which may include its design, plan, materials or location) which justify its inclusion in the list: list descriptions may draw attention to features of particular interest or value, but they are not exhaustive and other features of importance (e.g. interiors) may come to light after the building's inclusion in the list;
• The building's setting and its contribution to the local scene, which may be very important, e.g. where it forms an element in a group, park, garden or other townscape or landscape, or where it shares particular architectural forms or details with other buildings nearby;
• The extent to which the proposed works would bring substantial benefits for the community, in particular by contributing to the economic regeneration of the area or the enhancement of its environment (including other listed buildings). [para 3.5]

This guidance has been incorporated in to the Newcastle UDP (January 1998), which has been saved until 2007. Relevant policies within the UDP comprise:

CO1 The city's build heritage will be preserved, protected and restored, and where necessary, the plan's policies will be applied flexibly to achieve this.

CO2 Alteration or extension of a listed building or other development which would harm its architectural or historic interest or setting will not be allowed.

CO2.1 If exceptional circumstances justify demolition of the whole or substantial parts of a listed building, consent will be subject to:

• A replacement development scheme having been granted planning permission and,
• The relevant contract concerning the intended development having been completed, and
• A scheme for the recording and/or salvage of the building having been approved and undertaken.

CO2.2 Redevelopment behind the retained façade of a listed building will be allowed only in the following exceptional circumstances:

• Where the building lacks coherent historic (not necessarily original) interior(s) and the basic structure, if it survives, is of no significant architectural or historic interest and is either under major structural distress or has been substantially removed or replaced by later alterations; and
• Where the replacement building will be sympathetic in scale and form to the retained façade and to any other original structure, whish is or might become visible, and to its immediate surroundings.

Further advice regarding the contribution of unlisted buildings to a CA has been provided by English Heritage in Conservation Area Practice (1995) and Conservation Area Appraisals (1997). These documents are material considerations within the planning process and propose a series of questions that should be asked in assessing a buildings value:

• Is the building the work of a particular architect of regional or local note?
• Has it qualities of age, style, material or any other characteristics, which reflect those of at least a substantial number of the buildings in the conservation area?
• Does it relate by age, style, materials or in any other historically significant way to adjacent listed buildings, and contribute positively to their setting?
• Does it, individually, or as part of a group, serve as a reminder of the gradual development of the settlement in which it stands, or of an earlier phase of growth?
• Does it have a significant historic association with established features such as the road layout, burgage plots, a town park, or landscape features?
• Does the building have landmark quality, or contribute to the quality of recognisable spaces?
• Does it reflect the traditional functional character of, or former uses within, the conservation area?
• Has it significant historic associations with local people or past events?
• If a public building, does its function or enclosed public space contribute to the character or appearance of the conservation area?
• If a structure associated with a designed landscape within the conservation area, such as walls, terracing or minor garden buildings, is it of identifiable importance to the historic design?

In English Heritage's view, any one of these characteristics could provide the basis for considering that a building makes a positive contribution to the special interest of a conservation area, provided that its historic form and qualities have not been seriously eroded by unsympathetic alteration.

In addition, where a scheme would involve demolition of all, or a substantial part of a Listed Building, government advice is that it should consider the following issues:

• The condition of a building, the cost of repairing and maintaining it in relation to its importance and to the value derived from its continued use. Any such assessment should be based on consistent and long-term assumptions. Less favourable levels of rents and yields cannot automatically be assumed for historic buildings. Also, they may offer proven technical performance, physical attractiveness and short-lived and inflexible technical specifications that have sometimes the possibility of tax allowance and exemptions and of grants from public or charitable sources. In the rare cases where it is clear that a building has been deliberately neglected in the hope of obtaining consent for demolition, less weight should be given to the costs of repair.
• The adequacy of efforts made to retain the building in use. The Secretaries of State would not expect listed buildings consent to be granted for demolition unless the authority (or where appropriate the Secretary of State himself) is satisfied that real efforts have been made without success to continue the present use or to find compatible alternative uses for the building. This should include the offer of the unrestricted freehold of the building on the open market at a realistic price reflecting the building's condition (the offer of a lease only, or the imposition of restrictive covenants, would normally reduce the chances of finding a new use for the building).
• The merits of alternative proposals for the site. Whilst these are a material consideration, the Secretaries of State take the view that subjective claims for the architectural merits of proposed replacement buildings should not in themselves be held to justify the demolition of any listed building. There may very exceptionally be cases where the proposed works would bring substantial benefits for the community, which have to be weighed against the arguments in favour of preservation. Even here, it will often be feasible to incorporate listed buildings within new development, and this option should be carefully considered: the challenge presented by retaining listed buildings can be a stimulus to imaginative new design to accommodate them. [para 3.19 (i-iii)]

In summary, any proposal for alterations or demolition of a building within a CA must be justified. Such justification needs to be made on both an extra-site basis, where the whole site is considered in its broader context at local, regional or national level: and on an intra-site basis where individual elements of a building are graded in order to establish their relative importance and contribution to the whole. For the purposes of this report, the relative merit of each aspect of the site will be graded in accordance with the following section.

Assessment Criteria

Character

The Site forms part of the Lower Ouseburn CA. The CA is comprised of a diverse range of buildings, in terms of their relative massing, architectural detailing, chronology and materials exploited for their construction. It is also varied, topographically, with Alan House sitting on a prominent position with views over the river and, a priori , forming an important contribution to the cityscape in general and the character of the conservation area in particular.

A thriving industrial area from the mid seventeenth century with a heyday in the nineteenth; the area still retains a diverse range of industrial buildings including flax mills, manufacturing chemist, confectionary factory, glass works and a pottery.

In general, however, the area within the vicinity of Allan House has a low density of historic buildings when compared to the overall building stock. Whilst the more recent development is not within itself without merit (based on today's values), it does tend to having a much larger massing than the historic buildings of the area and it is only the relatively open aspect of the Allan Building that has prevented its setting from being compromised.

The topography also contributes to the character of the area as a backdrop and visual edge to the river valley, and also by the existence of a network of open spaces at different levels throughout the area. This not only adds a vertical dimension to the juxtaposition of the buildings but also results in interesting vistas that add to the visual appreciation and amenity value of the CA as a whole.

The CA includes nine statutory Listed Grade II buildings, one of which -The Victoria Tunnel, lies almost directly under Allan House. The effect of the proposals on this structure is discussed within the complementary desk-based assessment and not within this report.

Assessing a buildings contribution to the character of an area is, at best, a largely subjective process based on an individual's knowledge and experience. For the purposes of this report, the assessment of character will primarily be made on the basis of the buildings inherent character of build and detailing, given the general paucity of local parallels.

Importance

At the time of writing, there is no nationally agreed method of measuring the relative importance of archaeological remains. PPG 16 draws a distinction between nationally important remains and those of lesser distinction (paragraph 8). On this basis, it is possible to distinguish between monuments of national, regional, local or negligible importance:

National Monuments that are scheduled and protected under the Ancient Monuments and Archaeological Areas Act (1979); those suitable for scheduling, or considered to be of national importance, but not covered by the Secretary of State's criteria for scheduling. Listed Buildings, registered Battlefields and Historic Parks and Gardens.

Regional Sites or buildings listed in the Sites and Monuments Record (SMR), or other sources, which are of a reasonably well-defined extent, nature, date, and significant examples in the regional context.

Local Sites listed on the county Sites & Monuments Record, or other sources, which are of low potential or of minor significance in the regional context. Unlisted buildings and unregistered historic parks and gardens of historic interest.

Negligible Areas in which investigative techniques have produced negative or minimal evidence of antiquity; or where large-scale destruction of deposits has taken place. Buildings of inferior or intrusive design.

The criteria for listing a building are that is represents special architectural or historic interest. The principles applied for decision-making are set out in PPG 15:

• Architectural interest
• Historic interest
• Close historical associations with nationally important people or events
• Group value

A building may qualify for listing on any one or combination of these criteria. Age and rarity are also 'relevant considerations'.

Although a building may be listed on the basis of its historical interest, for example, or its contribution to a streetscape as a unit of a group; once designated controls apply to 'any object or structure fixed to the building' and 'any object or structure within the curtilage...and has done so...before 1 July 1948'. Thus, there is a need to assess the relative value of individual elements or details within a building or group of buildings in order to identify which elements are crucially important and should not be changed; elements that are significant but can be modified; and those that are damaging or intrusive and could be removed to the overall benefit of the building or group.

The overall value of a building may exceed the sum of its parts in that each individual element may be common, but the combination of a whole range of period features with good survival may be rare. It also follows, therefore, that individual features of a building of great importance may not, in themselves, be particularly significant. It is on this basis that most historic buildings can undergo a degree of change subject to careful consideration of the proposals within the context of understanding a given building as a dynamic whole.

In this report, the following categories are used:

1. Exceptional
   of primary importance to the overall value of the building or group in terms of architectural value, historic interest, or contribution to the local scene, and must be retained and conserved.
2. Significant
   makes a major contribution to the value of the building, although not justifying Listed status, or making a positive contribution to the local scene. Retention should be considered as a first option, but may be mitigated by recording depending on impact of proposals.
3. Some Significance
   examples of period detailing, alterations, fixtures or construction methods of some interest, but in poor condition or common within local terms. Negative impacts require mitigation by recording.
4. Not Significant
   fabric, structures and fixtures that are well conceived but do not make a positive contribution to the local scene, or lack interest or distinctive features making them stand out in contributing to the importance of the building. Poorly executed alterations.
5. Intrusive
   fixtures or details that have a detrimental effect on the special architectural or historic interest of a building or the local scene, or where the removal would benefit the building. Poorly executed repairs.

The judgement as to which category of significance any particular element or feature belongs, comes from an assessment of their rarity and condition or contribution to the buildings overall value:

table to add

Architectural and Historical Context

The Site

Any building appraisal requires some basic understanding of the historic development of an area in order to determine a buildings importance in context. The applications for the current redevelopment proposals are to be supported by a desk-based assessment (DBA) and thus only a short summary will be presented here. The findings of the DBA have been made available, however, to the current author during the preparation of this report and have been fully considered in developing the assessments and recommendations below.

The Lower Ouseburn Valley was one of the hubs of the Industrial Revolution on Tyneside. Glass making was undertaken in the area from c. 1640-1940, with lead, iron, soap, lime-works, mills and potteries all flourishing by the late 19 th century. Whilst much of this industrial heritage has been demolished, there is still a diverse array of buildings reflecting the heyday of Newcastle's manufacturing past.

Allan House itself was designed by Architect J. Watson Taylor of St. John Street, Newcastle, and was constructed in 1908, with its first mention in the Trade Directory for 1909-10. The original approved building plans are held at The Tyne and Wear Archives (Plan number 22437). The original building comprised Allan House fronting onto City Road, with a blacksmith wing to the rear, and was constructed for new stores and works for the Tyne Tees Steam Shipping Company, which had been formed in 1903 by a merger with the Tees Union Shipping Company.

Plans were submitted and approved for the construction of a garage and warehouse along Ouse Street in 1931, but OS maps appear to suggest that they were not built for several years. The construction of this building involved the demolition of the tenements and a Public House on Ouse Street.

The architects for these works were the Newcastle based firm Marshal Tweedy, whose registered address was 125 Pilgrim Street, Newcastle. Labels on these plans relating to the existing building indicate that the use of some of the rooms in the main building changed slightly; but essentially the form was the same as originally conceived.

The current freeholder, Allan Joinery, purchased the building in the mid 1960s, and are responsible for the modifications to the fabric and openings that are visible today. These primarily include the conversion of the blacksmith to a store, the conversion of the lower storerooms into ventilated workshops, the subdivision of 2 nd and 3 rd floor spaces into storerooms and office spaces, with toilets and the insertion of a false ceiling on the 2 nd floor.

Setting

Allen House has a slightly elevated position on the valley side with open views down to and across the river. It comprises a broadly triangular land parcel of approximately 0.16ha, and falls within the southwest corner of the Lower Ouseburn Conservation Area.

Modern commercial buildings, interspersed with more historic examples and open spaces, dominate the gross-character of the area. However, the area does appear to retain the historic street plan and those historic buildings that do survive reflect the very broad and diverse nature of the past industry of the area. The area is thus of far more interest than is immediately apparent.

The dominant building materials are red brick with stone dressings and slate roofs. Stone is principally used for retaining (property) walls and frequently has old repairs in brick. Many of the repairs are, technically, poorly executed but the passage of time has given these a charm of their own adding to the character of the area.

The Site is essentially a courtyard complex with buildings fronting on to City Road and Ouse Street.

The courtyard has a concrete hardstanding and is accessed via both City Road and Ouse Street. Ouse Street falls south to north and all adjacent roads are tarmac surfaced whilst pavements are either in tarmac, pavers or flags. There is a fall in level off the east side of Ouseburn Street forming a flat area to the Ouseburn, and which includes the derelict remains of the former Maynard's Toffee factory; whose chimney extends above the level of Ouse Street to create a visual marker for the buildings that are otherwise hidden. Across the Ouseburn valley, the skyline is dominated by the Grade II* former Ouseburn School.

To the south, the front façade of the main building (Allan House itself) should present a clear focal point when viewed from the river, but overgrown and unsympathetic street planting mars this. Between Allan House and modern residential development on the banks of the Tyne, is the 1877 Sailor's Bethel.

To the west of Allan House, there is a small open area at the junction of City Road and Cut Bank, but rather than a clear view of Allan House when travelling east, this first impression is of advertising hoardings.

View from Malling Street	View from Malling Street	View from Walker Road
image to add	image to add
View from the Tyne Bridge	View from Gateshead Quay	View from Quayside

 

Allan House

As noted above, Allan House has two primary phases of construction and the earliest of these (Allan House and blacksmiths shop) are locally listed.

Materials and construction - an overview

Allen house is primarily of redbrick construction with faience (terracotta) detailing imitating gauged and rubbed brickwork to the front façade. Other special bricks, such as cants and bull noses, are utilised for plinths and windowsills. Elevations fronting the courtyard are simpler, with OPC based cast lintels.

The bricks are 'imperials' and are thinly bedded on a coarse aggregate (?cementitious) mortar. The south elevation (façade) is in English Bond with the correct use of closers and is of good workmanship. This bond is also used for the returns, but the north elevation is built in English Garden Wall Bond (three over one). A third bond, Header Bond, is used on the radii walls where the front entrance opens to the courtyard. In localised areas, the bricks have spalled and even suffered localised cavernous decay owing to inappropriately hard re-pointing.

The faience is used for the voussoirs, hood mouldings and other enrichments such as the capitals and cornice, keys and rococo shell motifs.

The roof construction follows the centre-point carpentry tradition. Full access to the roof structure was not possible during the site visit; but what was seen suggests that the common king post roof truss with twin purlins has been used throughout.

The roof of Allan House is covered in slates and a brick parapet wall with shaped gable surmounts the facade. It appears that this parapet wall was originally detailed as per the shaped gable but has been simplified (see below). The blacksmiths' workshop has a hipped roof and has been recovered in modern sheeting. The post 1931 development is flat roofed.

Stone is little used, with the main examples being the simple skewed arch for the front façade access to the courtyard and for window sills to the main façade.

The fenestration is primarily of painted wood, although the windows of the post 1931 garage and warehouse are 'crittal' type iron frames. The windows of Allen house are primarily characterised by quadrant and astragal mouldings; those that have openers tend to be bottom-hung internally opening casements. Of particular note are the two first floor oriel or bay windows with rendered coffered undersides.

Few original interior doors survive and these comprise four-panel doors of common form with flush panels and bolection mouldings in the former office areas; whilst those in more utilitarian areas are of framed and boarded construction.

Many of the floors have coverings, but those that are exposed are boarded. Where skirting survives in the office areas, this is either 9" cyma recta or 6" torus. Most modern alterations are clearly identifiable by the use of stud divisions and the use of simple chamfered architrave; whilst the original architraves in the office tend to be more heavily moulded with cavetto, cyma reversa and beads.

The main stairs are basically of dogleg form in mahogany and have been partially boxed-in on the second floor. Currently, the skirting and balusters are painted but were probably originally varnished to match the handrail and finials. The newel posts are square with applied mouldings and are paired at the return of the stairs at each half landing. The balusters are of square section finely moulded. Of note, is the use of a turned roundel where the handrail butts the wall on the third floor.

Few original, or at least early, fixtures survive. In room A1, there is some extant boarded and glazed partitioning but it is not clear if this is primary to the original build, as it is not shown on the approved plans. Its form of construction (flush panels with bolection mouldings and astragal glazing bars is of little help, since this method was widespread from at least the mid nineteenth century up to (in some cases) the 1950s. However, it also appears that a moulding, re-used as cornice in the current utility room, may have originally been a dado applied to this partitioning. In this case, it is likely to be earlier rather than later and if not primary to the original build it is unlikely to post-date the 1930s.

This room also has some built-in cupboards likely to be contemporary with the partitioning. Of joined and beaded construction, these have lost their original doors that are most likely to have been similarly detailed as the panels of the partitioning.

One of only two in situ fireplaces also survives in this room. It is a mass-produced cast iron example, with red tiled splays and a curious grate reminiscent of the hob-grates common a century earlier. It is quite decorative with a hybrid of styles including projecting corners in the rococo manner (cf. the faience shell motifs on the front elevation) and Arts & Crafts stylised tulips.

The second fireplace can be found in room A5. This comprises an in situ oak surround in a mass-produced and de-based Arts & Crafts style, and includes a mirrored overmantle. The actual fireplace has been boarded and an electric fire substituted; it is not known if the grate survives behind the boarding.

Very few other original fixtures or fitting survive, excluding some original ironmongery and two poorly preserved gas light fittings.

Site Assessment

Setting

The existing setting of the building is considered to be relatively poor, but this could be dramatically improved easily.

It is considered that there are two crucial lines of sight that need to be considered when considering the proposals.

Firstly, as noted above, the position of Allan house makes it a gateway to the CA when approached from the west along City Road. However, the advertising hoardings, poor street planting and 'flat' floor treatments detract from the appreciation of the building; all factors that redevelopment may enable to be improved.

Secondly, given its prominent position, it is one of the most identifiable buildings when the valley is viewed from the river. However, the massing of the recent residential development is dominant and thus appreciation of the Allan building is again compromised.

The hard landscaping within the courtyard area is harsh, albeit fit for the present usage and again redevelopment will offer the opportunity of improving this dramatically.

The Buildings

The site easily reduces in to three architectural units:

• Allan House (Building A)
• Blacksmiths' workshop (Building B)
• Post-1931 warehouse and garage (Building C)

Blacksmiths' Shop

The only interest that this range has is that it is part of the original development and helps define the central courtyard. However, it has been gutted of all of its original fittings and the main fabric has been substantially altered. As surviving, it is of no individual architectural interest and it is considered that the fabric record undertaken is sufficient mitigation if demolition is approved.

Assessment value overall 2 = D - not significant

Post 1931 Development

Similarly, this building reflects a chronological change in the development of the site and a shift in building practice. Individually, however, it is not of great interest and whilst the intention to retain the substantial part of it within the redevelopment is welcome; it is questionable whether this should be insisted on if further structural investigations question the viability of its retention.

Assessment value modern cladding 1 = E - intrusive
earlier fabric 2 = D - not significant

Should the final redevelopment proposals include demolition of this range, then the existing fabric record is considered appropriate mitigation and no further recording should be required.

Allan House

The main building is less straightforward. Overall it is clearly of high local importance and its long-term retention is crucial in maintaining, if not improving, the character of the CA.

However, not every feature is equally important or sensitive. Its most significant element is the south elevation. Despite being marred by the loss of the parapet walls cornice and poor setting, this is still a significant architectural entity for the CA. Whilst it utilises the predominant local building materials (stone, red brick, slate) it is also one of the few buildings in the wider area to make use substantial use of faience and the liberties taken within its classical inspirations give it an almost mannerist feel.

Assessment value overall 9 = A - exceptional

Internally, the building has lost the majority of the any original fixtures and fittings, with the exception of three key areas - the stair well, Room A1 and elements of Room A5.

The stairs are the only primary fitting surviving intact and also have a defined status in PPG 15, which highlights their architectural importance and provides de facto protection for stairs by seeking to ensure that they are rarely removed. Similarly, the fireplaces whilst of common form are crucial indicators of the original interior design that is otherwise lost and should be retained.

Assessment value stair case 9 = A - exceptional
fire grate, A1 9 = A - exceptional
fire surround, A5 9 = A - exceptional

Assessment of the other few remaining original/early fittings, largely in Room A5: original doors, part gas lighting, sub-divisions and cupboards is perhaps more contentious. All these features have some interest in terms signifying a type of construction or lighting, for example, but they must be considered in terms of the overall survival of such features within the building as a whole.

There is a tendency to seek, where practicable, the retention of all fixtures and fitting that form part of the historic fabric of a building. However, not all historic fabric is of equal value. For example, even small elements of medieval fabric in a building that would otherwise be considered to be much later would be considered of great significance. However, in later post-industrial buildings, the emphasis of what is significant shifts to what is well preserved or crucial to understanding the building.

On this basis, whilst these fixtures and fittings provide information on how the internal joinery was executed; how rooms were subdivided; lit and storage cupboards provided; they do not form part of a complete coherent picture. On this basis, they are not of such significance that they need to be retained; but further recording above the complementary fabric record submitted as part of the planning application will be required for the cupboards and room divisions.

Assessment value gas light fittings 3 = C - some significance
original doors 4 = C - some significance **
room divisions 4 = C - some significance **
ironmongery 3 = C - some significance

** further recording required if not retained

Development in Context

General Considerations

The demolition of a listed building, or part of a listed building or attachment and buildings within the curtilage of a listed building require Listed Building Consent. The demolition of a non-listed building within a conservation area requires Conservation Area Consent. The definition of the boundaries, attachments and curtilage of a listed building can be confirmed by the statutory authorities.

Proposals for the demolition of walls or buildings subject to the above controls need to be justified and the effect on the significance of the Site measured and balanced against any gains that the re-development will bring. PPG 15 outlines four principal considerations that need to be taken into account when considering alterations or demolition:

• Importance
• Particular features of the building
• Setting and contribution to the locality
• Benefit of the proposals

The change of use of a building space can have a major impact on its fabric. The requirements demanded by new uses, or the modernisation of existing uses, may require various changes to a building for the purposes of fire escape, increased floor loadings; improvements in acoustic insulation; reduction in heat loss and new services etc. Some changes to the fabric of a building are therefore inevitable and can be beneficial in terms of safeguarding its future usefulness and therefore its sustainability. Some buildings, or parts of buildings, are less important than others and may be better suited to accommodate change without detriment to the overall importance, character or setting.

The impact of ill-informed, indiscriminate or over-zealous 'improvement' can disfigure buildings of historic value and result in a loss of character. Where this has already occurred, such as the widespread inappropriate use of OPC mortar, redevelopment offers some potential for redress. Some of the primary issues requiring particular care and strategic planning are:

Fire

There are two, but related, areas of concern

• The upgrading of the building fabric (doors, floors, ceilings et.) to restrict the spread of fire and limit the risk of early structural collapse.
• The provision of safe means of escape.

Part B of the Building Regulations and BS 5588 are the main source of guidance where there is a new building or an existing building that undergoes a material alteration. In terms of upgrade to the building fabric, consideration should be given to the range of less destructive techniques available such as intumescent coatings for doors. In terms of fire escape, the planning of escape routes and location of escape stairs should also seek to minimise the impact on the building fabric and visual amenity. In controlling the character of the setting and the wider conservation area, any external stairs should be located wherever possible away from principal lines of sight.

Floor Repairs or Increased Loadings

Changes of use can require increases in the load bearing capacities of floors to limit deflection, damage to finishes and to safeguard against failure. Some uses, such as storage, may require a higher floor loading capacity than others. Consideration should be given to upgrading existing floors rather than replacement. This is not only due to retaining as much of the existing fabric as possible, but also has long term conservation benefit: the original joists are almost certainly first generation, slow growing, Baltic timber that has a low sapwood/heartwood ratio. Consequently, they are inherently rot-resistant and superior to any stressed timber currently available as replacements.

Conservation of Fuel and Power

The more onerous requirements for new and refurbished buildings set out in Part L of the Building Regulations (2002) could encourage major changes to buildings in addressing heat loss requirements (such as dry-lining walls, double glazing etc.). How these changes can be best managed and accommodated is discussed in the English Heritage publication Building Regulations and Historic Buildings (2002).

There is scope for the relaxation of the requirements for historic buildings and for alternative measures such as secondary glazing, and prioritisation of less destructive measures such as more efficient boilers. Any changes in environmental conditions can lead to detrimental effects on the building fabric and these will need to be considered during the design stage.

Sound Resistance

Similarly, the requirements of Part E of the Building Regulations (2003) apply to a range of refurbishment work previously not covered. Wherever possible, improvements to floors and walls should be made hand in hand with thermal and fire related upgrade works using the least disruptive techniques. Where practicable, consideration should be given to over-laying rather than replacing wall and floor linings. Historic plaster can be resistant to the passage of sound and acoustic testing might be considered to avoid any unnecessary upgrading.

New Services

Mechanical and electrical installations tend to have shorter service lives than most building components, but can be intrusive and destructive. Attention should be given to minimising the impact on historic fabric through:

• Discreet appliances
• Careful internal and external locations for appliances and outlets
• Careful choice of service routes through a building
• Where practical, consideration should be given to accommodate future changes

Alterations to Enhance Access

Where alterations are proposed, the need of the alteration, its impact on the character and value of the fabric that will be affected needs to be assessed. Assessment should be undertaken on a case-by-case basis and may be based on the following:

• Where the fabric is of special interest, such as a feature of interest value A or B, any alteration, except for conservation need, is likely to be considered too disruptive. The exception being where its retention prejudices the overall viability of proposals that are otherwise considered, on balance, to be carefully considered, justified and appropriate. Where loss is unavoidable, detailed fabric recording is required to mitigate the loss.
• More common details or fabric that contribute to the overall character of a historic building (value C) may not be indispensable, but should be preserved where possible. Any changes would need to be justified and only actioned following fabric recording
• Not significant fabric (value D) may be altered or replaced where it is more cost-effective. Fabric recording may be required depending on the context and extent of any alterations.
• Intrusive fabric/features (value E) should be removed for the benefit of the building, except where such removal may have further adverse effect on the surviving fabric.

The assessment criteria above are intended as a baseline on which to establish the relative importance of the Site and its elements, but the final decision of the acceptability of any alterations will be subject to the appropriate planning and Conservation Area consents. In order to seek consent for any proposed works, the design will need to retain the overall character of the building and it's setting.

Measures should be taken to conserve and protect features of special importance. Conservation work should be carried out to best practice as recommended by a reputable concern and undertaken by skilled operatives.

Repairs should be undertaken in materials of similar quality to the historic fabric and of matching or complementary character. Replacement materials such as fenestration or roofing materials should match the existing building.

Where original patterns do not survive, materials and designs should be chosen with regard to quality and be consistent with the overall character of the building. Conjectural reconstructions should be avoided. Reconstruction should only be considered where firm evidence survives.

New Build, Alterations or Additions

New buildings and additions requiring consent should be of a quality that add to the overall significance and constitute a valuable contribution to the Site and its setting.

Proposals should justify their visual impact on the Site and neighbouring buildings. The justification should include consideration of the effect on important views, elevations and the scale, massing and choice of materials for the new building.

New buildings and interventions should possess their own character, quality and stamp; and should be recognised by future generations as a valuable contribution of our time. The authentic use of local materials, massing and design details may be encouraged, but their ill-informed use can lead to a poorly executed historical pastiche which should be avoided. Materials should be chosen with care and compliment the existing building although a degree of gradation from matching to similar to contrasting may be considered, but all materials should be of a quality appropriate to the context of a listed building.

Particular challenges are presented when co-joining new build and historic buildings and require careful planning in order to avoid long-term problems through incompatibility. The use of traditional lime-based mortars and renders, for example, are much more breathable than cement based ones and may help alleviate problems such as interstitial condensation.

Landscaping

Given the poor quality of the existing landscaping there may be some opportunity to increase the amenity value of the streetscape and thus the setting of the Site and Conservation Area as a whole. Approval of landscape works will normally be a requirement of applications for consents, which should justify the proposals. New proposals should also have their own character, quality and stamp: complimenting existing buildings. Proposals should also consider the effect on any potential buried archaeological remains.

Access

Access to the premises will require up grading to comply with the Disability Discrimination Act (1995) and part M of the Building Regulations. Guidance can be found in the Code of Practice published by the Disability Rights Commission and in BS 8300. English Heritage has also produced a specialist guide for access alterations to historic buildings called Easy Access to Historic Properties (1999).

Outline Proposals

The proposed redevelopment has a number of potential implications:

• direct impact during stripping out, upgrading, and joining old to new resulting in a loss of historic fabric
• affects on the Site's setting
• affects on the statutory Listed Buildings
• affects on the character of the Conservation Area (CA)

Such impacts can be adverse, beneficial or neutral, and the extent to which an impact is positive or negative is not only dependent on informed design but also on the choice of materials and quality of build.

Direct Impact

Some impact on the historic fabric is unavoidable; the challenge is to minimise this so far as is practicable; avoid particularly sensitive areas where possible; and mitigating through recording where necessary.

The fireplaces in Rooms A1 and A5 should be retained along with the stairs. The loss of the other fittings and features has effectively been mitigated by the fabric record; although additional constructional details (including 1:1 profiles of mouldings) should be undertaken of the panel and glazed room divisions.

The greatest impact will be the partial demolition of the Blacksmith's range and garage/warehousing. The surviving fabric of these structures is not considered so significant as to fail the tests outlined in the policy section above. On this basis, their loss is considered acceptable. Moreover, the fabric record already undertaken is considered to be an appropriate level of recording as mitigation for their loss.

The proposals allow for a creative sail detail over entrances on both the north and south elevations of Allan House. These will presumably be mechanically fixed and their design should seek to ensure that any fixing holes are targeted at mortar bed rather than the face of the brick.

Setting of the building

The proposals for the actual alterations will have no impact on the Site's setting. Within the development proposals, however, there is a clear opportunity to improve the setting of the building particularly with regard to the street planting.

Listed Buildings & Character

The building most likely to be adversely affected by any substantive redevelopment of the site is the Victoria Tunnel that runs below the site. This is potentially at risk from direct truncation, but this is to be avoided, however, by engineering design.

Other listed buildings within the immediate vicinity include the Sailor's Bethel and Blenkinsopp Coulson fountain. The proposals will have no physical impact on either of these buildings. Given their relative locations, the new-build elements of the proposals will largely be out of sight and thus their setting will only be affected by the restoration of the Allan House façade, which is considered to be a beneficial change.

At a distance, there is the Grade II* Ouseburn School and neighbouring Grade II structures. The proposals for the post 1931 Garage/warehouse will be visible from these structures. The greater massing of the proposals will be much more evident and give greater precedence to the site in the landscape than is currently the case. This is, however, also considered to be beneficial given the sympathetic design of the proposals.

The design of the Ouse Street elevation takes account of the 1930s styling and thus maintains a clear link with the past streetscape at this point. The provision of pilasters and the pediment balances the gable of Allan House and breaks up what would otherwise be a bland elevation, and is thus considered to improve the building from across the Ouseburn.

Once a prominent building when viewed from the Tyne, Allan House is not as appreciable as it once was owing to being diminished by the modern residential development across City Road. By bulking-up the overall mass of the site, the proposals will re-establish the strength of the visual impact of Allan House when viewed from the Quayside. As this is one of the key lines of sight, this is considered as being a very real improvement in the character of the area.

Summary and Conclusions

This Assessment has considered the relative importance of the individual elements that make up the Site and considered how these may be affected by the proposals. It has also considered the effect on the wider issue of the Conservation Area and statutory Listed Buildings.

It has not identified any major adverse impacts to preclude redevelopment; nor any features of historic or architectural importance whose retention require substantive revision of the proposals. Indeed, the proposals actually seek to maintain more of the historic fabric than could reasonably be argued for on archaeological grounds.

The proposals are considered, on balance, to be a positive design that will improve the character of the Conservation Area, the setting of adjacent Listed Buildings; and improve the appreciation of Allan House itself. On this basis, they are considered to comply with the relevant plan policies and with guidance from central government.

Two modifications that might be considered, however, are:

• Since one key benefit of the proposals is strengthening the visual impact of Allan House when viewed from City Road and the Tyne; the design of the creative sail on the south elevation might be reconsidered as this interrupts the clear vertical and horizontal lines of the classically inspired façade.
• It is evident that the parapet wall is missing a cornice and finials at either end. Consideration should be given to re-establishing these details.

In conclusion, this assessment considers the proposals, on balance, to be a positive proposal and has found no fatal objections to their approval.

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