‘Windows and Doors in Historic Buildings (their repair and replacement)’ Adopt as Supplementary Planning Guidance Following Consultation.

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A decision made (30/06/2008) regarding: ‘Windows and Doors in Historic Buildings (their repair and replacement)’ Adopt as Supplementary Planning Guidance Following Consultation.

Decision Ref:	MD–PE–2008-0143
Subject:	‘Windows and Doors in Historic Buildings (their repair and replacement)’ Adopt as Supplementary Planning Guidance Following Consultation
Decision Summary Title:	DS - ‘Windows and Doors in Historic Buildings (their repair and replacement)’ Adopt as Supplementary Planning Guidance Following Consultation
DS Author:	Janet Dore – Principal Historic Buildings Advisor
DS Date:	13 June 2008	DS Status:	Public
Written Report Title:	WR – ‘Windows and Doors in Historic Buildings (their repair and replacement)’ Adopt as Supplementary Planning Guidance Following Consultation
WR Author:	Janet Dore – Principal Historic Buildings Advisor
WR Date	12 June 2008	WR Status:	Public/ Exempt
Oral Rapporteur:	Janet Dore – Principal Historic Buildings Advisor
Decision(s):	The Minister for Planning and Environment determined that; 1 The representations and subsequent minor changes to the consultation draft of the SGP on Windows and Doors in Historic Buildings be noted 2 The amended version as at appendix 2 of the report as be adopted as Supplementary Planning Guidance (PPN2) 3 The SPG be published
Reason(s) for Decision:	The minister has considered the representations received and made amendment to the proposed guidance where considered appropriate to do so. The revised document provides useful and up to date guidance and expands upon the policies within the Island Plan.
Legal and Resource Implications:	None
Action required:	Publish the SPG
Signature:
Position:	Minister for Planning and Environment
Date Signed:		Date of Decision (If different to Date Signed):

‘Windows and Doors in Historic Buildings (their repair and replacement)’ Adopt as Supplementary Planning Guidance Following Consultation.

		Item No:
		Date:

PLANNING AND ENVIRONMENT

Windows and Doors in Historic Buildings

(their repair and replacement)

Adopt as Supplementary Planning Guidance Following Consultation

Purpose of the Report

This report brings to the Minister the results of the 8 week consultation process on the SPG on Windows and Doors in Historic Buildings and proposes some minor amendments to the consultation draft as a result of representations received. It seeks the Minister’s approval for the adoption of the amended document as SPG.

Background and Discussion

Guidance on windows and doors in historic buildings was previously in two parts, a policy statement and an illustrated guide. The policy document had become obsolete in that it referred to documents no longer in use, put forward policies which were in fact statements rather than policies capable of implementation and did not reflect current practice in this area. The illustrated guide still has value and it is proposed that it be republished in association with this SPG.

The draft SPG and a White Paper containing 3 questions went out to public consultation opening on 29 January and closing on 21 March 2008 (Questions at Appendix 1). The responses are summarised at appendix 3 to this report and some minor changes are put forward as a result of comments received (Appendix 4). Copies of the full consultation responses are at appendix 5. These changes have been incorporated into the revised version of the SPG at appendix 2.

Legal and resource implications

Article 6 of the Planning and Building (Jersey) Law 2002 empowers the Minister to issue guidance. There are no resource implications arising from the adoption and publication of this guidance.

Recommendation

It is recommended that the Minister note the representations and subsequent minor changes to the consultation draft of the SGP on Windows and Doors in Historic Buildings and adopt and publish the amended version at Appendix 2 as Supplementary Planning Guidance (PPN2 ).

Reason(s) for Decision

The minister has considered the representations received and made amendment to the proposed guidance where considered appropriate to do so. The revised document provides useful and up to date guidance and expands upon the policies within the Island Plan.

Action Required

Publish SPG
Notify those who made representations

Written by:	Janet Dore: Principal Historic Buildings Advisor

Approved by:

Endorsed by:	Kevin Pilley: Assistant Director

Attachments:

Appendix 1 - White Paper questions
Appendix 2 – PPN 2 : Windows and Doors in Historic Buildings (their repair and replacement) (May 2008)
Appendix 3 - Summary of consultation responses
Appendix 4 – Amendments to the draft
Appendix 5 - Consultation responses

File ref 3/4/1/3

12 June 2008

Appendix 1

White Paper questions

Do you think that there is a need to review and revise policy and guidance about the change and replacement of windows and doors in historic buildings in Jersey?
Do you agree with the presumption against the replacement of windows and doors in historic buildings? If not, why not.
Do you think that this guidance note can become a useful tool for all those dealing with windows and doors in historic buildings?
Do you think these guidance notes will aid consistency of advice and decisions in respect of applications for windows and doors in historic buildings?

Appendix 2

Supplementary Planning Guidance

Planning Policy Note 2

Windows and doors in historic buildings

(their repair and replacement)

May 2008

About Supplementary Planning Guidance

Supplementary planning guidance builds upon the provisions of the Planning and Building (Jersey) Law 2002 and the policies in the Island Plan 2002 and provides more detailed advice on the way in which the provisions of the law and Island Plan policies are likely to be interpreted and applied. It can also provide clarification about how the planning system operates.

Guidance documents are prepared in consultation with interested parties and/or those who might use them and, in appropriate circumstances, will only be adopted following public consultation.

This guidance does not replace the law and does not have the same status as the policies in the Island Plan, which remains the first consideration when making decisions on development proposals. It will, however, be a material consideration in the determination of planning applications and can be given substantial weight.

This particular supplementary planning guidance supports and expands upon the policy provisions set out in Policy G13 of the Island Plan where it relates to Listed or Registered Buildings, and G11 where it relates solely to Sites of Special Interest. It also serves to provide the policy regime for the assessment of planning applications to replace windows and doors in other buildings which date from before 1920. (See also PAN 6 Managing Change in the Historic Built Environment, in particular sections 17 and 18)

For the avoidance of doubt, it supersedes the Planning and Environment Committee’s Traditional timber windows and external doors in historic buildings: policy statement (1999) and the policies and guidance therein. A history of timber windows and external doors in Jersey (1999), also published by the former Planning and Environment Committee remains valid as supplementary planning guidance, and serves to support and complement this policy note Windows and doors in historic buildings (their repair and replacement) (May 2008).

The current supplementary planning guidance is listed and can be viewed on the States of Jersey website www.gov.je/PlanningEnvironment/Planning. Documents which pre-date electronic production will be added to the website for viewing or downloading following review, as appropriate. Hard copies of all supplementary planning guidance can be obtained from Planning and Building Services, Planning and Environment Department, South Hill, St Helier, JE2 4US. Telephone: 01534 445508 email: planning@gov.je

Windows and doors in historic buildings

(their repair and replacement)

May 2008

Historic windows, doors and other external features are important because they form an integral part of the fabric of old buildings and add to their special character. A change to the style or appearance of one of these features can disrupt the overall appearance and harmony of a building. The impact of change can be dramatic and of detriment not only to the individual historic building but also to the character of a street or lane which can, cumulatively, serve to undermine the character, identity and distinctiveness of the Island.

The characteristics of historic windows and doors derives from a whole range of inter-related shapes, details, colours and materials and, therefore, it is often the fine detail that is important, and not just a broadly similar effect. The character of doors is reliant on the size and proportion of panels; the types of mouldings and the shape and details of glazed fanlights. The character of windows is similarly influenced by the shape and thickness of glazing bars; the dimensions of frames; the width and location of sash boxes; the size of cills; the materials used for the frames and even the quality of the glass. There is also a long tradition in Jersey of painting windows in two contrasting colours: one for the moving sashes and the other for the fixed boxes that contain them. These colour schemes are often extended to doors and shutters, creating a distinctive and identifiable individual and local character which is important to retain and encourage. Shutters are a particular feature of Jersey houses and they should be repaired or reinstated where possible where they exist or there is evidence that they did in the past.

It is important that the historic character and integrity of historic buildings is maintained throughout, and the approach to the repair and replacement of windows and external doors should extend to the whole of the property and not just the main or public façade. The protection of historic buildings extends at the very least to the whole of the building’s exterior and not, as has been suggested in the past, only to those parts visible from public vantage points or to the front elevation as some people suggest.

It is still not widely appreciated that if historic windows and doors are well maintained, they can last almost indefinitely. When carefully overhauled and draught-stripped, they can provide a level of performance, which in terms of noise reduction and air infiltration, compares well with many alternative products made from PVCu and aluminium. In terms of thermal insulation, single-glazed historic timber windows can be significantly improved by fitting draught strips and effective weather seals making them only slightly less efficient than many double-glazed alternatives. And where timber is well selected, well constructed and maintained new timber windows can, over the long-term provide a sustainable product that represents good value for money. (See also PAN 6 Managing Change in the Historic Built Environment, in particular sections 17 and 18)

In addition to the requirement for planning permission to be obtained for replacement windows in historic buildings and those from before 1920, there are requirements within the Building Byelaws for all replacement windows to achieve certain U-values in order to satisfy the building bye-law requirements relating to the conservation of fuel and power. Normally this means replacement windows will need to be double glazed. It is however recognised, that in the case of historic buildings it may not always be appropriate for double glazing to be introduced. In such cases secondary glazing may be an option that would improve insulation, draught proofing and noise control. In arriving at a balance between historic building conservation and energy efficiency improvements the aim will be to improve energy efficiency where and to the extent that is practically possible. It is recommended that advice is sought from the department’s historic building officer and building control surveyor at an early stage so that any apparent conflict can be resolved at the earliest possible opportunity.

It is only in relatively recent times that the regulation of the installation of modern, unsympathetic windows and doors to historic buildings has been introduced in response to the damage being done to the character and appearance of many of the Island’s older buildings, streets and rural lanes. Many properties have already lost their historic windows and doors and owners and occupiers of adjacent properties wishing to replace their own historic windows and doors often consider the need to have regard to issues of materials and detailed design as inconsistent and unfair: to ensure that the character of historic buildings and the character of a street or lane is not further eroded it is, however, important that each case is considered on its individual merits.

This ‘on merit’ consideration will also be applied to more recent extensions to buildings as individual judgements need to be made in respect of the period of the extension, its relationship to the original building and the proportion of the openings. There is little point in insisting on double hung sliding sashes in openings of a proportion which was not designed to take that style of window, so there is no clear rule here other then to have regard for the particular details of the property concerned.

In recognition of the importance of windows and doors in historic buildings, there is a requirement for planning permission to be sought for their replacement in all buildings which date before 1920; and for all Buildings of Local Interest, proposed Sites of Special Interest and Sites of Special Interest.

POLICY HE4: WINDOWS AND DOORS IN HISTORIC BUILDINGS (their repair and replacement)

All existing windows and doors in Listed or Registered buildings should be repaired, wherever possible, using materials and details to match the existing. The replacement of windows and doors in historic buildings which are Sites of Special Interest, proposed Sites of Special Interest or Buildings of Local Interest will not normally be approved unless there is clear justification to show that repair is not possible. Where repair is impracticable or where previous replacements are being replaced again, replacements that do not carefully replicate or restore the historic windows or doors in terms of materials, proportions, dimensions and decorative details will not normally be approved.

All existing pre-1920 windows and external doors should be repaired, wherever possible, using materials and details to match the original. Replacement will not normally be approved unless there is clear justification to show that repair is not possible. In considering proposals for replacement windows and doors in buildings dating before 1920, replacements will be expected to respect the character and design detailing of the building concerned in terms of the proportion of the window or door; the method of opening of windows; the visual weight and detail; and the finish.

Where previous replacements have failed to respect the original character, subsequent replacements will be expected to restore the original form wherever possible, with a minimum requirement of enhancing the character and appearance of the building.

Useful sources

Web sites

www.buildingconservation.com The Building Conservation Directory - a source of advice and advertisements covering a wide field. The list of useful contacts is very varied. The paper copy is published annually and the website updated regularly.

www.ihbc.org.uk The Institute for Historic Building Conservation, the professional body for those with a close involvement in the historic built environment. The list of competencies required for membership requires a broad spread of knowledge and experience in this field.

www.architecture.com The Royal Institute of British Architects who can advise on the selection of architects with specific areas of experience or expertise.

Publications

A history of timber windows and external doors in Jersey
Planning and Environment Committee (1999)

This Old House: how to look after your historic property
Jersey Heritage Trust

The Building Conservation Directory
Cathedral Publications Ltd

Useful contacts

Planning and Building Services

Planning and Environment Department, South Hill, St Helier, Jersey, JE2 4US

t. 01534 445508 f. 01534 445528

e: planning@gov.je w: www.gov.je/PlanningEnvironment/Planning

Jersey Heritage Trust

The Weighbridge, St Helier, Jersey, JE2 3NF

t. 01534 633300

e: info@jerseyheritagetrust.org w: www.jerseyheritagetrust.org

Appendix 3

Respondent	Representation	Response
M Jones (Development Control)	Guidance should be readily accessible and clear on what is / is not acceptable; owners should be made aware of responsibilities Suggests that specialist applications be handled by specialist officers Asks for glossary of specialist terms Suggests that only specialist joiners should work on historic buildings.	When adopted the SPG will be well publicised The availability of specialist staff is limited by expertise and resources The existing publication on timber windows does contain annotated illustrations which show the specialist terms. It is intended that the document be re-published to include this SPG The choice of contractor cannot rest with the department.
E Stables (Development Control)	Asks what advice would be for later extensions to historic buildings, also where Crittal metal windows were original Suggests that where not publicly visible control is less strict Expresses concern at inconsistent decisions.	If traditional, later extensions should generally have traditional windows; if of another architectural style then the windows should be appropriate to that style – wording amended to clarify point Whole buildings are protected, not just the parts which can be seen from the public realm – wording amended to clarify point This is not within the remit of the Historic Built Environment Team.
G Way (Development Control)	Suggests the word ‘materials’ be added in relation to control for pre 1920 properties as well as registered ones Notes that the Minister has approved uPVC windows at the rear of buildings at appeal.	‘Materials’ were deliberately omitted here as it is the appearance of pre 1920 buildings that is of concern, not their historic integrity – if the latter they would be registered / listed This guidance will assist with the consistency of decision making.
M Bravery (by Email)	Concern that Policy HE4 as drafted might block all change to windows and doors and should expanded to clarify this.	This policy relates to the repair and replacement of windows and doors – this has now been recognised in the title and body of the document. Where other changes such as those he mentions are proposed then the emerging guidance on ‘Managing Change in Historic Buildings’ will be relevant.
Daniel Wimberley (by Email)	Supports use of traditional materials as better lasting and more sustainable than plastic.	Noted.
P le Gresley (Development Control)	Supports the draft guidance.	Noted.
A Gibb (St Martin, Jersey)	Supports retention of historic windows and doors Notes that properly selected softwood performs as well as hardwood if well constructed and maintained Comments on the un-sustainability of PVC Supports the Ministers move to waive fees for replacement window applications.	Noted. Wording of guidance amended re the use of softwood. Noted Noted
M Renouf (Advocate – by Email)	Applauds document especially suggestion that already changed windows should go back to original form Suggests reference to retention / restoration of shutters be included.	Noted Wording of guidance amended re shutters.
C Tadier (Hartigans, St Saviour, Jersey)	Notes that revised guidance brings more clarity; supports presumption in favour of retention and repair; notes previous mistakes where replacements not accurate; decisions on such matters to be made by experts; encourages department to protect historic buildings using better understanding.	All noted.
Societe Jersiaise – Environment Section (R Anthony Chairman)	Supports draft guidance.	Noted.
K Shaw (St Helier, Jersey)	Suggests that owners ignore regulation and department does not enforce Asks for more publicity, survey, monitoring enforcement etc.	When adopted the SPG will be publicised Comments regarding a more proactive approach are accepted but are limited by resources.
Jersey Chamber of Commerce (J Poole – Chair, Building & Development Committee)	Supports the need for control of change Requests a joint policy between Planning and Byelaws to resolve conflicts and for clarity.	Noted Additional wording added in relation to Byelaws and this guidance.
R Schooling (Elegant Windows)	Has witnessed damage from upvc t/t windows Single glazing not equal to double glazing U values; refers to an experiment at St Peter which failed; cost of maintenance prohibitive; new windows save on energy Does not support proposed policy HE4; Minister should consider global warming; owners should have the right to do what they want Complains at length of time taken for determination of applications and inconsistent decisions.	Noted. Historic Building Team not involved in experiment at St Peter; wording amended in relation to performance of timber windows. Minister has a duty to protect heritage under the Law and international conventions and must balance this with sustainability issues. This is not within the remit of the Historic Built Environment Team.
Environment Scrutiny Panel	Applauds Minister’s attempts to protect heritage Single glazing not environmentally sustainable; sees no problem in replacing windows; supports increased sound and heat insulation; notes cost of maintenance and replacement of timber windows Should make financial assistance available .	Noted Minister has a duty to protect heritage under the Law and international conventions and must balance this with sustainability issues. Grants are currently available to assist with the additional cost of works such as this.
M Roscouet (Building Control)	Suggests some clarifications and additions in relation to thermal performance and issues relating to the Building Byelaws.	Text amended and additions made to take account of these comments.

Jd/12 June 2008