Archaeology Guidance Note - Surrey Heath Borough Council

SURREY HEATH BOROUGH COUNCILPLANNING POLICY AND CONSERVATION DIVISIONSUPPLEMENTARY PLANNING GUIDANCESURREY HEATH LOCAL PLAN 2000Archaeology Guidance NoteThis Supplementary Planning Guidance has been the subject of consultation and wassubsequently approved for development control purposes by the Council on 24 April2002.April 2002Printed and published by Surrey Heath Borough Council

ContentsPage1. Introduction 12. Objectives of this guidance 13. Policy Background 14. Identification of Archaeological Remains 25. Assessment of Archaeological Matters 46. Planning Decisions 57. Planning Conditions 6Appendix 1: Further Information 8Appendix 2: Plans of Scheduled Ancient Monuments andAreas of High Archaeological Potential9Appendix 3: Results of the Consultation Exercise 22

ARCHAEOLOGY GUIDANCE NOTE1. Introduction1.1 This guidance note provides advice on how the Borough Council will deal withdevelopment proposals which may affect archaeological remains. The note clarifiesthe information which applicants will be expected to provide where archaeologicalremains may exist on a site and the procedure for assessing development proposalswhere archaeological remains may exist on a site.2. Objectives of this Guidance• Explain the policy background of archaeology and planning• Identify areas of the Borough where archaeological remains are known to exist ormay exist• Advise developers of the information that should be submitted with developmentproposals where archaeological remains may exist• Give examples of conditions that may be applied to planning decisions to protectand record archaeological remains• The Archaeology Guidance Note will be a material consideration forDevelopment Control purposes3. Policy BackgroundNational Policy3.1 Full guidance on archaeology and planning can be found in PPG16 (Nov 1990).PPG16 describes archaeological remains as “A finite and non-renewable resource, inmany cases highly fragile and vulnerable to damage and destruction. Appropriatemanagement is therefore essential to ensure that they survive in good condition."3.2 It may not always be possible to save all archaeological remains, but where nationallyimportant archaeological remains are affected by proposed development, there shouldbe a presumption in favour of their physical preservation. In cases of archaeologicalremains of lesser importance, a balance must be struck between the relativeimportance of the remains and the need for development. To enable such decisions tobe made, the archaeological aspects of a development site should be considered at anearly stage in the planning process.1

Strategic Policy3.3 Policy PE12 of the 1994 Surrey Structure Plan seeks to protect ancient monumentsand County Sites of Archaeological Importance from development which would havean adverse effect on them. Surrey County Council has also produced supplementaryplanning guidance “Archaeology and Historic Landscapes” (December 1994) and adevelopment control practice note “Archaeology and Planning in Surrey” (December1998).Local Plan Policy3.4 The Surrey Heath Local Plan 2000 identifies areas where important archaeologicalremains are known to exist or are likely to be present. Policies HE13 ScheduledAncient Monuments and County Sites of Archaeological Importance, HE14 Areas ofHigh Archaeological Potential and HE15 Sites Outside Areas of High ArchaeologicalPotential, give guidance on how archaeological considerations should be taken intoaccount when development proposals are submitted. Although it is possible to identifysites which should be preserved or which are of high potential, this does not mean thatsites outside designated areas may not prove to be of archaeological importance.4. Identification of Archaeological Remains4.1 Information about the location of important archaeological remains is contained onthe Sites and Monuments Record (SMR) which Surrey County Council maintains.The SMR has been used to select sites identified on the Surrey Heath Local Plan 2000proposals map as being of archaeological importance. The Local Plan identifies 3categories of sites where consideration of archaeological matters will be necessary indetermining planning applications.Scheduled Ancient Monuments and County Sites of ArchaeologicalImportance4.2 These are the most important sites, where there is a presumption in favour ofpreservation and management is encouraged. These sites are shown in Appendix 2.Scheduled ancient monuments are sites of national importance, designated by theSecretary of State for Culture, Media and Sport, which should be protected fromdevelopment. Consent is required from the Secretary of State for works toMonuments, and applications should be made to the Department for Culture, Mediaand Sport. The Secretary of State will consult with English Heritage beforedetermining such applications.Policy HE13There will be a presumption against any development, which willadversely affect scheduled ancient monuments including their site andsetting, and county sites of archaeological importance, as defined on theProposals Map. The Borough Council will encourage the managementand interpretation of such sites to develop their educational andrecreational potential.2

4.3 Within Surrey Heath there are 4 Scheduled Ancient Monuments.The Bee Garden, Albury Bottom, ChobhamEarthwork north west of Childown Farm, Chobham CommonBowl Barrow at New England, West End CommonFour Bowl Barrows, West End Common4.4 There are currently no County Sites of Archaeological Importance within SurreyHeath. The County Council, on advice from their Principal Archaeologist, maydesignate sites considered to be of county importance.Areas of High Archaeological Potential4.5 These areas have been selected using information on the SMR and are those wherethere is good reason to expect significant finds during any disturbance of the ground.These areas include historic town and village centres and are shown on the Local PlanProposals Map and in Appendix 2 of this document. Important remains will either berequired to remain in situ or properly recorded if the archaeological remains will beadversely affected by development.Policy HE14In considering proposals for development within areas of higharchaeological potential, as defined on the Proposals Map, the BoroughCouncil will, in consultation with Surrey County Council:a) Request that an initial assessment of the archaeological value ofthe site be submitted as part of any planning application; andb) Where as a result of the initial assessment importantarchaeological remains are considered to exist, request thedeveloper to arrange an archaeological field evaluation to becarried out prior to the determination of any planning application;andc) Where important archaeological remains are found to exist andpreservation of the remains in situ is not justified, seek agreementfor a full archaeological investigation of the site in accordance witha scheme of work, such scheme to be agreed in writing with thelocal planning authority prior to the granting of planningpermission; andd) Where remains are to be left in situ, impose conditions or seekagreement, where appropriate, to this effect and ensure thatdamage to the remains is minimal or will be avoided; ande) Require that the results of the investigation and any excavation bemade available for display at either the Surrey Heath Museum orother suitable location.3

Sites outside Areas of High Archaeological Potential4.6 Unexpected discoveries may be made on large sites that have not been previouslysurveyed for archaeological purposes. It is reasonable to assume that anydevelopment on a large scale is likely to affect something of archaeological interestunless the site has been destroyed in archaeological terms, for example by formergravel extraction. On development sites where development involves disturbance toland involving an area of more than 0.4ha, proper assessment, possibly to includefield evaluation, will be required to identify any areas of possible archaeologicalremains.Policy HE15Outside the areas of high archaeological potential, the Borough Councilmay request, where appropriate, that an initial assessment of the site forarchaeological potential be submitted as part of any planning application.Archaeological assessment and, where appropriate, field evaluation willbe required prior to development on sites of 0.4 ha or more. Whereevidence of significant archaeological remains is found then the criteriaset out in Policy HE14 will apply.4.7 Not all archaeological remains exist below ground. When proposals are submittedinvolving the alteration of historical structures, an initial assessment of the site forarchaeological purposes may be requested as part of any planning application, listedbuilding application, or application for conservation area consent. Field evaluationmay also be required prior to development taking place.5. Assessment of Archaeological MattersPre-Application5.1 PPG16 emphasises the need for discussions to take place at an early stage in thedevelopment process so that the needs of archaeology and development can bereconciled. Appendix 1 gives a list of contacts from whom further information can begained. Pre-application discussion of archaeological matters in areas of recognisedarchaeological importance, or on large development sites, can avoid the need to redrawproposed layouts to protect known archaeological remains.5.2 Developers should undertake an initial assessment of whether the site is known orlikely to contain archaeological remains. This assessment is a desk-based evaluationof existing information, using records of previous finds or local archives and historicmaps, and should be carried out by a professionally qualified archaeologist. Theadvice of the county Principal Archaeologist will be sought by the planning authorityto assess the likely effect of development on the archaeological aspects of the site.4

Submission of a Planning Application5.3 Applications for works to Scheduled Ancient Monuments should be made to theSecretary of State for Culture, Media and Sport.5.4 Planning applications for development proposals within County Sites ofArchaeological Importance, Areas of High Archaeological Potential and ondevelopment sites of 0.4 hectares and above should be accompanied by an initialassessment of the archaeological value of the site. As set out above, this shouldideally be prepared as part of the pre-application procedures. The principalarchaeologist will be consulted by the planning authority to ensure sufficientinformation has been provided to consider the planning application.5.5 Where an initial assessment of a site indicates that important archaeological remainsmay exist, an archaeological field evaluation may be requested before the applicationis determined. This evaluation should involve ground survey and small scale trialtrenching, and should be carried out by a qualified archaeologist to acceptedprofessional standards. This evaluation will enable the character and extent ofarchaeological remains that exist in the area of the proposed development to beassessed, and indicate the weight that should be given to their preservation.6. Planning Decisions6.1 The results of archaeological assessments and field evaluations should be submitted tothe local authority before a decision is made on a planning application. If suchinformation is not made available on sites where there is good reason to believe thereare remains of archaeological importance, PPG16 makes it clear that the planningauthority may be able to consider refusing permission for proposals which areinadequately documented (para. 22 of PPG16).6.2 Where archaeological assessment or field evaluations indicate that importantarchaeological remains survive on a development site, then discussions should takeplace with developers to seek to achieve the preservation of remains in situ. Thiscould involve changes to the proposed layout or measures such as covering remains toensure they are not damaged during the development. Preservation of remains is thepreferred solution, since archaeological remains are irreplaceable and provideimportant information about our past.6.3 There will be a presumption against development that adversely affects a scheduledancient monument or county site of archaeological importance. On sites in areas ofhigh archaeological potential or large development sites, development may be grantedwith conditions to secure appropriate measures to safeguard or record any findings orto allow an archaeologist to maintain a “watching brief” on a site to record anyfindings during development of the site.6.4 Preserving remains in situ is always the preferred option, however the relativeimportance of the remains and the need for the development will influence thedecision taken on preserving the remains in situ or allowing excavation and recordingof remains. Planning permission may be refused if remains cannot be preserved in situand where appropriate arrangements cannot be made for the excavation and recordingof remains.5

7. Planning ConditionsPreservation of remains7.1 Where development is to go ahead with remains preserved in situ, a planningcondition may be required to ensure that sensitive areas of the site are not damagedduring development.ConditionNo development shall take place until fencing has been erected, in a manner tobe agreed in writing with the local planning authority, about (insert name ofmonument or site); and no works shall take place within the area inside thatfencing without the consent of the local planning authority.ReasonTo ensure that no damage is caused to the monument in the course ofdevelopment.Disturbance of remains7.2 In the course of development it is possible that features of archaeological interest willbe disturbed, so a condition may be imposed on any consent permitting a nominatedarchaeologist to hold a “watching brief” during the construction period so that ifsignificant archaeological remains are disturbed they can be recorded.ConditionThe developer shall afford access at all reasonable times to any qualified personnominated by the local planning authority, so that he or she shall have theopportunity to observe any works involving the disturbance of the ground oralteration of the building and record any item or features of archaeologicalinterest.ReasonIt is possible that minor items or features of archaeological interest will bedisturbed in the course of development and they should be rescued or recordedbefore they are lost.6

Excavation of remains7.3 Where planning permission is to be granted and archaeological excavation is to takeplace, the implementation of a suitable archaeological scheme of working should besecured by means of a condition on the consent. Any recording of excavated remainsshould be to a high standard, as rescue archaeological work is not finished until theresults are prepared for publication. Following publication, finds should be offered toa suitable local museum.ConditionNo development shall take place until the applicant has secured theimplementation of a programme of archaeological work in accordance with awritten scheme of investigation which has been submitted by the applicant andapproved by the planning authority.ReasonThe site is within an area of high archaeological potential and it is important thatthe archaeological information should be preserved as a record before it isdestroyed by the developmentor ReasonThe development proposed covers a large surface area and it is considered likelythat it will affect currently unknown archaeological information. It is importantthat the site is surveyed and work is carried out as necessary in order to preserveas a record any such information before it is destroyed by the development.or ReasonThe building/site is of archaeological importance and detailed records should bemade of the fabric to be altered or destroyed by the development.or ReasonThe work which is the subject of this permission may reveal or destroy hiddenfeatures of archaeological interest and adequate arrangements should be made toensure that they are retained or recorded.7

Appendix 1: Further InformationMargaret McEvit Tel: 01276 707212Planning Policy and Conservation Division email: margaret.mcevit@surreyheath.gov.ukSurrey Heath Borough CouncilKnoll RoadCamberleySurreyGU15 3HDEnglish Heritage - Head Office Tel: 020 7973 200023 Savile RowLondonW1X 1ABEnglish Heritage - Regional Office Tel: 01483 252000Eastgate Court195-205 High StreetGuildfordGU1 3EHDr D Bird Tel: 020 8541 8991Principal Archaeologistemail: david.bird@surreycc.gov.ukSurrey County CouncilConservation GroupCounty HallKingston upon ThamesKT1 2DY8

Appendix 2: Plans of Scheduled Ancient Monuments andAreas of High Archaeological PotentialTHE BEE GARDEN, ALBURY BOTTOM, CHOBHAM9

EARTHWORK NORTHWEST OF CHILDOWN FARM, CHOBHAM COMMON10

FOUR BOWL BARROWS, AND BOWL BARROW AT NEW ENGLAND, WESTEND, COMMON11

BAGSHOT VILLAGE CENTRE12

HOLY WELL OF ST JOHNTHE BAPTIST, CLEWS LNE & ST.JOHN THE BAPTISTCHURCH CHURCH LNE BISLEY13

EAST OF SCHOOL CLOSE, BISLEY14

CHOBHAM VILLAGE15

CHOBHAM PARK HOUSE, CHOBHAM PARK LANE, CHOBHAM16

NORTH OF BUTTS HILL, GRACIOUS POND ROAD, CHOBHAM17

NORTH OF ALMA GARDENS, ALMA-DETTINGEN BARRACKS, DEEPCUT18

FRIMLEY CENTRE19

NORTH EAST OF LIGHTWATER20

CHURCH ROAD, WINDLESHAM21

Appendix 3: Results of the Consultation ExerciseThis Appendix includes the report considered by the Borough Council’s EnvironmentCommittee at its meeting on 14 March 2002. This sets out the representations made on thisGuidance in the consultation exercise, and the Borough Council response to theserepresentations.AGENDA ITEM 11SUPPLEMENTARY PLANNING GUIDANCE ON ARCHAEOLOGYPurposeTo consider consultation responses on the draft Supplementary Planning Guidance onArchaeology and to consider the adoption of the Archaeology Guidance Note fordevelopment control purposes.Background1. On 8 th November 2001, the Committee approved an Archaeology Guidance Note forconsultation purposes (minute 0380 refers).Current Position2. Consultation on the Draft Archaeology Guidance Note has taken place, with tworesponses being received to the document.Proposal3. A summary of the responses received and the action taken is included at Annex A.The supplementary planning guidance is included as Annex B. The Committee isinvited to approve the Archaeology Guidance Note for development control purposes.Corporate Policy4. The Council recognises the importance of managing the built and naturalenvironment.Resources5. Printing of the Guidance Note will incur only modest costs which can be met from theLocal Plans budget.Recommendation6. The Committee is asked to RESOLVE that the Archaeology Guidance Note attachedat Annex B to the agenda report be approved for development control purposes.Attachments:Background Papers:Originator:Annex A – Consultation responseAnnex B – Archaeology Guidance NoteForward Planning File UC4.1Forward Planning DivisionContact: Miss M McEvit Tel: 01276 70721222

ANNEX AConsultee Response ActionSurrey County Council –Archaeological OfficerSurrey Heath Archaeologicaland Heritage Trustpara 4.2 remove word“authorities”para 5.5 amend sentence toread “…carried out by aqualified archaeologist, toaccepted professionalstandards”There is little within theguidance on the protection ofstanding archaeology,particularly buildings. It maybe necessary to request priorassessment, archaeologicalevaluation and subsequentmitigation proposals onprojects which involve thealteration of historic structures.Supports draft guidance notebut lacked coverage in respectof industrial and architecturalmatters e.g. buildingsGuidance note amendedGuidance note amendedPara 4.7 added requiring aninitial assessment of the site tobe made for archaeologicalpurposes when listed buildingor conservation area consentare submitted for the alterationof historical structures.See comments to SCCresponse. Para 4.7 added tocover assessment of sites wherebuildings to be lost.23