Proposal:
Proposal number 24/01481/FUL. Demolition of the existing cinema (use class sui generis) and erection of an aparthotel (use class C1) to include ground floor community use (use class F2). Provision of external landscaping, cycle parking and refuse storage.
Cinema, George Street, Oxford, Oxfordshire, OX1 2BL
Our Response:
Oxford Preservation Trust (‘OPT’) welcomes the opportunity to review the planning documents and submit comments on the above planning application.
OPT strongly objects to the planning application for the reasons set out below.
Whilst it is accepted that the current ‘Odeon’ building is nearing the end of its life as cinema, the scheme submitted fails to respond sensitively to its surroundings and misses an opportunity to deliver a high-quality building that would improve the visual appearance of this key site within the Conservation Area.
Site Context
The application site is an important location within the centre of the city, on a corner plot between George Street and Gloucester Green. Immediately to the south of the site, on the opposite side of Georeg Street, is the University of Oxford’s Faculty of History, which is a Grade II listed building. The site sits within the Oxford Central (University and City) Conservation Area and is highly visible within a number of elevated views within the city. As such, redevelopment of this site has great potential to harm a number of significant designated heritage assets.
Also, whilst not included on the national heritage list as a building of special architectural or historic interest, the Old Fire Station is of undoubted architectural interest in a local context and weight should be given to ensuring surrounding development does not harm its setting.
Sustainability
It is regrettable that the existing building is to be demolished. Demolition should be the last resort where it has been demonstrated that existing buildings cannot be reasonably retained and reused. The Energy Statement submitted suggests that a whole life carbon assessment has been carried out and details the sustainability measures proposed within the new building to try and mitigate the impacts of demolition. Officers will need to consider the information submitted, and whether a strong enough case has been put forward to justify the demolition of the existing building.
Impact on Views across the Oxford skyline
The main facade of the existing cinema building is approximately 15m in height, with smaller elements such as plant and a lift shaft sitting slighter taller at 18m. The existing building therefore sits below the historic 18.2m threshold referred to in the Local Plan 2001-2016. The proposed replacement building will be just under 20m, with the addition of a small area of roof plant enclosure which will sit even taller. This represents a significant increase in the height of the proposed development on this site.
Whilst OPT acknowledges that the 18.2m threshold was removed from the current Local Plan (2016 – 2036), but adopted Local Plan Policy DH2 still refers to it, as follows:
“Policy DH2: The area within a 1,200 metre radius of Carfax tower (the Historic Core Area) contains all the buildings that comprise the historic skyline, so new developments that exceed 18.2 m (60 ft) in height or ordnance datum (height above sea level) 79.3 m (260 ft) (whichever is the lower) are likely to intrude into the skyline. Development above this height should be limited in bulk and must be of the highest design quality. Applications for proposed development that exceeds that height will be required to provide extensive information so that the full impacts of any proposals can be understood and assessed.”
OPT considers the proposed building to be excessive in massing and height. The elevations are large and monotonous with little variation to add visual interest. Whilst dormer windows and gables are proposed on the elevations, these sit within the main facade leaving the roof line itself flat, with no detail to break up its overall bulk, and no articulation enabling elements of the roof to be set back.
The applicant’s own Visual Impact Assessment confirms that the additional height will result in a building which is more prominent in views across the Oxford skyline. Oxford is lucky in that it has a number of publicly accessible elevated viewpoints, such as St George’s Tower, Carfax, St Michael in the Northgate. These provide views across a varied skyline representing centuries of architectural development within a landscape setting. The height and massing of the proposed replacement building will result in a structure which stands above this tapestry of historic buildings, drawing the eye away from the rich roofscape which surrounds it.
One protected view that will be significantly harmed is the view from Castle Mound, a Scheduled Ancient Monument and so a designated heritage asset in its own right. The southern elevation of the existing (and proposed) building sits prominently in views from the Mound towards the north. The existing Odeon’s southern elevation sits within the foreground of this view and forms part of the patchwork of the buildings below the skyline, with the roofs and varied skyline of the buildings beyond still visible. The proposed development will significantly harm this view. Using the 4 visual tests as set out within the High Buildings Technical Advice Note 2018 (TAN), the introduction of a taller building, which does not break the skyline, but will change the character of the view. The proposed new development will act like a wall within the longer distance view, preventing any sight, appreciation or understanding of what lies beyond.
OPT believes that more thoughtful and sensitive design can be found to ensure that what is built preserves the views, rather than detracts from, the skyline of the city. OPT also asks the applicant to consider removal of the top floor. This would reduce the height of the building, lessening its impact on the longer distance views out across the skyline.
Impact on other designated heritage assets
Policy DH3 of the Oxford Local Plan (2036) states that planning permission will be granted for development that respects and draws inspiration from Oxford’s unique historic environment (above and below ground), responding positively to the significance character and distinctiveness of the heritage asset. In this case the heritage assets also affected are:
• a conservation area,
• the neighbouring listed building and its setting.
The application site is directly opposite the elegant Faculty of History building, which is set back from the road. The proposed development makes no reference to this building or its setting, and does not respond to this part of Oxford’s unique historic environment. Rather, the proposed building has the potential to dominate this section of George Street and dwarf the neighbouring History Faculty building. A more articulated façade, with some elements set back would help break down the massing of the building and soften its impact on the wider area.
As it currently stands the proposal therefore does not comply with local plan policy DH3. The redevelopment of the site will harm the setting of Faculty of History (Grade II, statutorily designated asset) and the character and appearance of the Oxford Central (City and University) Conservation Area.
Impact on the public realm
The high vertical George Street façade of the proposed building, with no set-backs and a very narrow pavement, will result in an area of poor quality public domain along this section of George Street.
OPT supports the improvement at street level of the ground floor community space and its accommodation within the building. The addition of windows, doors and an element of improved public realm along St Georges Place and within Gloucester Green is supported.
Further sections would be useful to show the building’s potential impact on both sides of George Street, and from both directions, showing the impact on both the Old Fire Station and the History Faculty.
Conclusion
OPT support the principle of an alternative use on this site, especially those elements which include a community use for the benefit of Oxford residents. The provision of a welcoming multi-functional space at ground fleer level, with improved areas of public realm onto Gloucester Green are positive aspects of the scheme. However, these positive aspects do not outweigh the harm caused by the proposed addition of a building which would be damages its surrounds by way of insensitive height, massing and detailing. OPT therefore strongly object to the redevelopment of the site with a building as currently proposed.
Due to its scale, height and design the replacement building would harm:
- views out across the city skyline;
- harm views from Castle Mound which is a designated heritage asset,
- the setting of a Grade II listed building
- the character and appearance of the surrounding Conservation Area.
The planning balance should weigh heavily in favour of protecting the unique characteristics of these heritage assets and as such OPT considers that the current scheme should not be supported. OPT urges the applicant to consider reducing the overall height and massing of the building and review the design to propose a scheme which can meet the criteria set out within the relevant local plan policies.
Outcome:
This application was approved at committee after making alterations following pre-application consultation with OPT.