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North Yorkshire Council Scarborough and Whitby Area Planning Committee 13 August 2026 SCAZF25/01164/LB - Repair, restoration and replacement of Museum Steps including works to retaining walls and metal work at Museum Terrace, Scarborough, on behalf of North Yorkshire Council Report of the Head of Development Management – Community Development Services
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1.0 Purpose of the report
1.1 To determine an application for Listed Building Consent that proposes remedial works to repair, restore and replace Museum Steps along with associated works to the adjoining retaining wall and metal work.
1.2 The proposal is being considered by the Scarborough and Whitby Planning Committee as Listed Building Consent has been submitted by North Yorkshire Council to undertake works on land within the Council’s ownership.
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2.0 SUMMARY
RECOMMENDATION:That listed building consent be APPROVED subject to the conditions listed at the end of the report.
2.1 This application seeks Listed Building Consent to restore, repair and where required, replace the stone steps known as ‘Museum Steps’ within Museum Terrace. Works are also required to remediate the north and south walls, a structural beam and handrails.
2.2 Museum Steps are part of a group listing that includes; 1 – 6 Museum Terrace and wall and steps up to Cliff Bridge Terrace. The steps are Grade II listed and are closely related and part of the setting to the Grade II* listed Rotunda Museum also within Museum Terrace.
2.3 Museum Steps comprise two sections, a lower and main set of steps providing an important and popular thoroughfare for pedestrians from Scarborough Town Centre to South Sands/Foreshore Road connecting Museum Terrace to Spa Bridge and Cliff Bridge Terrace situated above. The access route has been closed to the public for some time due to significant movement to the steps rendering them unsafe for public use. The Council, therefore, seeks consent to undertake necessary remediation works to reinstate this historic and well used thoroughfare.
2.4 Key considerations relate to whether the proposed works are in accordance with S.16(2) of the Planning (Listed Buildings and Conservation Areas) Act 1990 that requires, the LPA to have special regard to the desirability of preserving listed buildings or their setting or any features of special architectural or historic interest which they possess. In doing so, your Officers have assessed, the level of intervention required to make good the steps and retaining wall, the impact upon the original fabric; as well as ensuring that works are fully justified using an appropriate method and choice of material to meet the statutory requirements.
2.5 The works are considered substantive, involving the insertion of a frame to support the steps with issues of drainage and subsidence noted but were not adequately assessed within the original submission. As such, following consultation with the Council’s Principal Conservation Officer (PCO), it was determined necessary for a further inspection to be undertaken by a conservation accredited structural engineer and the results presented within a report by them along with an appropriately revised Heritage Statement to support the application.
2.6 The report by Structural and Civil Consultants Limited has subsequently been received and upon their advice, the remedial work to support the steps has been revised. Principally, the scheme no longer seeks the use of a concrete frame and padstone support to bear the load of the main step; a less invasive solution is now proposed that seeks the installation of steel frame anchored to the side walls.
2.7 Upon reconsulting with the Council’s PCO, the proposed alternative methodology set out withing the aforementioned structural report has been agreed. However, some detail remains outstanding and therefore, your Officers in agreement with the Council’s PCO consider the use of pre-commencement conditions to be appropriate in this case to ensure appropriate heritage protection and vital details (technique and methodology) are approved ahead of works taking place.
2.8 While the Town and Country Planning Act regulations require applicants to formally agree to the pre-commencement conditions for planning permissions, this specific restriction does not apply to Listed Building Consent. Notwithstanding, the Agent has had sight of the pre-commencement conditions and agreed to their imposition.
2.9 Following further inspection, supporting reports and a revised scheme, your Officers recommend Listed Building Consent be approved, subject to the conditions specified at the end of this report.
3.0 Preliminary Matters
3.1 A valid application was received by North Yorkshire Council on 4th November 2025. The scheme was publicised by 2 No. Site Notices positioned along Cliff Bridge Terrace and the lower section of Museum Terrace. The consultation period expired 7th December 2025. An extension of time has been sought to allow the necessary investigations, revised plans and additional information to be submitted and also for the scheme to be presented to Members of the Area Planning Committee.
3.2 Relevant Planning History
SCA05/00843/FL - Environmental improvements to garden and public open space at Valley Gardens, north and south of Valley Road, and the roundabout associated with the Rotunda development. Permission granted May 2005.
3.3 Access to the case file on Public Access can be found here SCAZF25/01164/LB | Repair, restoration and replacement of Museum Steps including works to retaining walls and metal work | STREET RECORD Museum Terrace Scarborough North Yorkshire
4.0 Site and Surroundings
4.1 Museum Steps forms part of a terrace, wall and steps included with an Historic England Grade II list entry. The steps include the main upper set, approximately 10 metres long and 3 metres wide, consisting of two flights and a small landing area and a small set of lower steps and retaining wall to the south.
4.2 The steps adjoin and are integrated, both physically and historically with Cliff Bridge Spa (also Grade II listed). The bridge and steps are located within close proximity to Scarborough Town Centre. Cliff Bridge, provides a pedestrian and cycle route from South Cliff Gardens over Valley Road/Valley Gardens below, whilst Museum Steps lead up to Cliff Bridge/St Nicholas Cliff via Museum Terrace providing a route south from the Town Centre to the South Sands/Foreshore area.
4.3 There are several landmark buildings within the vicinity of Museum Steps, namely the Rotunda Museum (1829 Grade II* listed), Cliff Bridge Terrace – now Bike and Boot Hotel (circa 1840 Grade II listed), Cliff End House (late C18 Grade II* listed) and The Grand Hotel (1863-1867 Grade II* listed).
4.4 Valley Gardens and The Crescent lie to the west of the site, Scarborough Town Centre to the north, South Sands/Foreshore Road to the east and Valley Road/Aquarium Top roundabout to the south.
4.5 The site lies within the designated Scarborough Conservation Area.
5.0 Description of Proposal
5.1 The works seek to remediate Museum Steps through their repair, restoration and, where required, reinstatement. The steps comprise a set of steps south of the main staircase and the main staircase itself, along with the adjoining retaining and abutment walls. Both sets of steps and adjoining walls are stone constructed.
5.2 During the course of the application revised documents were received that superseded the original submission. The up-to-date list of plans and documents are as follows:
Design and Heritage Statement ref. HW2306.01-APS-XX-XX-DAS Rev 4 received 1st July 2026;
Location Plan and Extent of Works ref. HW2306.01-APS-XX-XX-DR-S-000003 received 15th April 2026;
Proposed Remedial Work ref. HW2306.01-APS-XX-XX-DR-S-000001 P04 received 15th April 2026;
Structural Notes ref. HW2306.01-APS-XX-XX-DR-S-000001 P03 received 15th April 2026;
Conservation Engineers Report ref. A3559 by Structural and Civil Consultants Ltd received 15th April 2026.
5.3 The following works are detailed within the revised submission:
Upper Main Staircase
Works include:
(a) Removal of the stone steps (numbered and stored for reinstatement);
(b) Make good any defects to the stonework at the bearings;
(c) Removal of stones to the central wall to allow beam installation;
(d) Installation of steel brackets fixed with steel bolts into joints in the stonework to the side walls;
(e) Installation of galvanised steel beams;
(f) Replacement of both upper and lower stone steps onto new beams, re-bedding and repointing with lime mortar as required.
Remedial Work to the North and South Wall
Works include:
(a) Repoint following removal of cement pointing (NHL 2 or hot lime mix tbc)
(b) Corrosion cleaned from the steel beams bearing into the south wall and new coasting applied.
Lower Steps and Retaining Wall
Works include:
(a) Pointing of open joints at the coping stones and cracks to corner joints
(b) Introduction of weepholes to reduce water pressure and staining.
5.4 Repair and repointing is also proposed to the parapet and coping stones to better secure the wrought iron railings upon the Cliff Bridge retaining walls and adjoining walls to the lower steps.
5.5 Prior to works taking place, the information supplied indicates that a stone mason specialising in historic buildings/structures will be enlisted to inspect and advise accordingly before any work is undertaken.
6.0 Planning Policy and Guidance
6.1 Section 16(2) of the Planning (Listed Buildings and Conservation Areas) Act 1990 requires that, in considering whether to grant Listed Building consent for any works the local authority shall have special regard to the desirability of preserving the building or its setting or any features of special architectural or historic interest which it possesses. The following contains policy and guidance pertinent to the making of such an assessment.
Adopted Development Plan
6.2 The adopted development plan (ADP) for this application site is the Scarborough Borough Local Plan 2011 - 2032 adopted 2017.
Emerging Development Plan
6.3 The North Yorkshire Plan is the emerging development plan for this site though no weight should be applied in respect of this document at the current time as it is at an early stage of preparation.
Guidance - Material Considerations
- National Planning Policy Framework
- National Planning Practice Guidance
7.0 Consultation Responses
7.1 An initial round of consultation relating to the original submission took place in November 2025. Following the advice of the Council’s Principal Conservation Officer, Align Property Services instructed a conservation accredited engineer to undertake an inspection and survey. Subsequently, revised plans and structural survey were received in April 2026. The re-consultation on the revised scheme to consultees was carried out in May 2026. A summary of the comments received in response are as follows:
7.2 Historic England – There is no statutory requirement for Historic England to be consulted on this application.
7.3 Principal Conservation Officer NYC in responding to the original submission comment; whilst I have no objection in principle to the restoration of Museum Steps, from a heritage perspective there is important documentation required to support and explain the extent of the intrusive works. I advise a suitably qualified structural engineer who has significant experience dealing with listed and historic buildings/structures is engaged before determining what works and the extent of intrusive works are required.
The works are substantive, which along with issues of drainage and subsidence from previous concrete support work is mentioned but not assessed.
I cannot offer support at this time.
The PCO was subsequently reconsulted upon the receipt of the revisions and commented that there is potential for full support to the amendments following receipt of additional information as set out within the recommended pre-commencement conditions.
An updated Design, Access and Heritage Statement (DAHS) was submitted on 15 April 2026. The HS section of the DAHS does not meet the requirements of para 207 of the National Planning Policy Framework (NPPF).
The Heritage Statement should include the legislation related to designated heritage assets, making reference to NPPF (with ref to Chapter 16), the Planning (Listed Buildings and Conservation Areas) Act 1990 and relevant policy within the Scarborough Local Plan.
A structural survey undertaken by a CARE (conservation) - accredited structural engineer recommends an appropriate repair solution for the steps. The report provides a sufficient assessment of the condition and proposes a suitable repair scheme. However, there remain certain elements for which further information is required. Should this information not be submitted prior to the determination of this application, it could be secured through pre commencement conditions.
Further information is sought for proposed works affecting the wrought iron handrail and railings, stone repairs and any replacement stone, lime mortar and pointing.
Subject to the approval of the details, it is considered that the proposals would sustain the significance of the heritage assets in accordance with para. 210 of the NPPF and provide clear and convincing justification as required by para. 212 of the NPPF.
7.4 Principal Archaeologist (NYC) – The area has a history for the discovery of human remains from a cemetery associated with the former Medieval hospital of St Nicholas, which was established around 1297 AD for those suffering with leprosy.
Whilst it is likely, any human remains would already be displaced, it has been known that Victorian builders would place remains in voids, either as a macabre joke for future builders to find or for superstitious purposes.
Therefore, an advisory note is considered sufficient to highlight that should remains be found, then works must stop until the requisite license from the Ministry of Justice has been sought for their removal and that this should be undertaken archaeologically.
7.5 Scarborough Town Council – Support the proposed works, noting a detailed heritage consultation.
7.6 The Garden Trust – The listing entry describes South Cliff and Valley Gardens, a Grade II Registered Park and Garden (RPG) as “comprising a series of seaside walks and gardens, laid out as a publicly and privately owned features from the mid C19 to the 1930s, including work by Joseph Paxton in the 1850s. The Museum Steps are just outside of the RPG and provide access to it from the upper levels of the town.
We neither approve nor disapprove of the proposal.
7.7 Scarborough Town Council – Support the application.
Local Representations
7.8 There has been 1no representation received in response to the application. A summary of the comment is as follows:
- The steps have been closed for some time;
- They are an important town centre pathway providing access to Museum Terrace and the Rotunda Museum;
- Local residents have raised concerns with the Highway Authority, local councillors and MPs over the years;
- Concern over the proposed use of concrete and weight of this given apparent subsidence.
- The proposal appears over-engineered/excessive.
8.0 Environmental Impact Assessment
8.1 The development proposed does not fall within Schedule 1 or 2 of the Environmental Impact Assessment Regulations 2017 (as amended). No Environmental Statement is therefore required.
9.0 Main Issues
9.1 Museum Terrace (Nos 1 – 6 consec) and rail and steps up to Cliff Bridge Terrace are Grade II listed as a whole. Museum Steps and the adjoining retaining and abutment walls forming part of the group listing and status.
9.2 In line with the point of law set out at section 6, the first consideration for the Committee is whether the proposed works preserve the Listed Building or its setting or any features of special architectural or historic interest which it possesses.
10.0 Assessment
10.1 The main consideration in relation to this listed building consent application is the impact of the proposals on the listed building itself, as a designated heritage asset. In determining the application, the LPA needs to take account of its statutory duty under S.16(2) of the Planning (Listed Buildings and Conservation Areas) Act 1990 to have special regard to the desirability of preserving listed buildings or their setting or any features of special architectural or historic interest which they possess. Guidance in Section 16 of the National Planning Policy Framework sets out advice on the conservation of the historic environment and includes a number of paragraphs against which the proposals need to be assessed. In addition, Policy DEC5 of the Scarborough Borough Local Plan requires that proposals affecting a designated heritage asset should conserve those elements that contribute to its significance and states that harm to such elements will only be permitted where this is outweighed by the public benefits of the proposals.
10.2 Museum Steps form part of an important pedestrian thoroughfare between Scarborough Town Centre and South Sands, connecting a small parade of commercial properties and the Rotunda Museum along Museum Terrace. The steps have been deemed unsafe and cordoned off to the public for a considerable time. North Yorkshire Council therefore, seek to undertake appropriate remedial works to repair Museum Steps so that they can re-open to the public.
10.3 The application seeks Listed Building Consent (LBC) as Museum Steps and the adjoining walls feature within the group Listed Entry for Museum Terrace as a whole and provide a valuable contribution to the appearance and setting of Museum Terrace and Rotunda Museum (Grade II* Listed); an in views from Valley Gardens and Spa Bridge where the stone terrace is part of the wider ‘townscape’. The curved stone retaining wall and steps leading up to Cliff Bridge Terrace continuing the line of buildings to the east and in the foreground of Cliff Bridge Terrace and the Grand Hotel (Grade II* Listed).
10.4 The proposal therefore seeks to undertake remedial works to Museum Steps and its adjoining structures and features, including the retaining and abutment walls, a structural beam and handrails in order reinstate this feature.
10.5 In order to verify the substantive work required, the application is supported by an engineer’s report that outlines the overall condition of the steps and walls. Describing the structures as ‘extremely poor’ with, amongst other things, large gaps between treads, steps cracked and visibly sagging, copings missing or to have moved and weathered stonework. Further, this has been compounded by persistent water seepage and movement to the walls. The report provides evidence of this, including several photographs detailing the extent of the damage.
10.6 Following the Council’s Principal Conservation Officer’s (PCO) concern regarding the intrusive work as proposed within the original submission, your Officers engaged with Align Property Services to request specialist input necessitating further investigation and for the results to be presented in a supporting survey. This resulted in a revised scheme of works and, principally, the omission of the original proposal that sought to implement a concrete frame. The use of a steel support system is proposed alternatively, in order to remediate the steps.
10.7 The engineer’s report outlined that the chosen method of repair/remediation is considered to be the optimum approach and sympathetic to the listed structure. The proposed works, minimises intrusive intervention whist seeking to preserve existing stonework by employing a steel beam and anchor technique to strengthen the staircase without necessitating extensive dismantling or removal. The original stonework will be preserved where no losses to have occurred, with planned repointing using an appropriate mortar (composition and technique to be approved by condition).
10.8 Whilst the PCO is satisfied that the revised scheme can be supported, as intimated above there remains key detailing which has not been documented, and your Officers require further assurance that the works can be undertaken appropriately. Therefore, the use of pre-commencement conditions is recommended, confirming the details for the wrought iron railings, handrails, stone and mortar repairs.
10.9 Paragraph 212 of the NPPF requires great weight to the given to the (heritage) asset’s conservation. Paragraph 213 seeks to ensure that any harm to, or loss of, the significance of a designated heritage asset (from its alteration or destruction, or from development), should require clear and convincing justification. The works are considered vital to preserve the structure, as outlined within the allied Heritage Statement, to not intervene would result in further deterioration.
10.10 As a result of the deviation from the original construction method, with the insertion of the steel frame and use of replacement stone, where the original is beyond repair, your Officers conclude that the works would result in less than substantial harm, albeit limited, noting that the frame would be concealed and the works, as highlighted above appropriately justified by the conservation accredited engineer.
10.11 Where a development will lead to less than substantial harm to the significance of a heritage asset, this harm should be weighed against the benefits of the proposal including, where appropriate, securing its optimum viable use. Not only will the works ensure the long-term preservation of the heritage asset, the re-opening of the steps upon completion will provide significant public benefit reinstating the access along Museum Terrace and Spa Bridge allowing a direct route to the Cliff Bridge residences, commercial premises and Rotunda Museum, who have been inconvenienced for some time, and more widely the town centre and South Sands and encouraging pedestrian movement in general.
10.12 Accordingly, as set out within LPP DEC 5 and paragraphs 212, 213 and 215 of the NPPF, the works seek to conserve the historic and architectural significance of the Listed Buildings and associated structures. To conclude, the proposed works are clearly justified and considered essential to the longevity, as well as the functionality of the structures; thereby, preserving their historic fabric and significance. The limited, less than substantial harm identified would be outweighed by the public benefits of the proposal.
11.0 PLANNING BALANCE AND CONCLUSION
11.1 The main issue is whether or not the proposed works will preserve the special interest of the Listed Building comprising Museum Terrace as a whole.
11.2 Your Officers have given the proposal careful consideration, being mindful of the duties imposed by Section 16 of the Planning (Listed Buildings and Conservation Areas) Act 1990. Whilst there would be some limited ‘less than substantial harm’ accrued by the development, the harm has been clearly justified and the identified public benefit in the restoration and reinstatement of the steps and associated structures, would outweigh the harm.
11.3 Considerable importance and weight is given to the desirability of preserving the Listed Building when carrying out the balancing exercise, and in doing so your Officers consider that the proposal preserves the special interest and significance of the listed building in accordance with policy DEC5 of the Local Plan and the overarching objectives of Section 16 of the NPPF.
12.0 RECOMMENDATION
That Listed Building Consent is APPROVED, subject to the conditions listed below.
Compliance Conditions
Condition 1
The works hereby permitted shall be begun on or before three years from the date of this permission.
Reason: To ensure compliance with Section 18 of the Planning (Listed Building and Conservation Area) Act 1990.
Condition 2 – Approved Plans
The works hereby permitted shall be carried out in accordance with the approved plans and documents listed as follows:
Design and Heritage Statement ref. HW2306.01-APS-XX-XX-DAS Rev 4 received 1st July 2026;
Location Plan and Extent of Works ref. HW2306.01-APS-XX-XX-DR-S-000003 received 15th April 2026;
Proposed Remedial Work ref. HW2306.01-APS-XX-XX-DR-S-000001 P04 received 15th April 2026;
Structural Notes ref. HW2306.01-APS-XX-XX-DR-S-000001 P03 received 15th April 2026;
Conservation Engineers Report ref. A3559 by Structural and Civil Consultants Ltd received 15th April 2026.
Reason: For the avoidance of doubt.
Pre-commencement Conditions
Condition 3
Prior to commencement of works, a methodology statement shall be submitted to the Local Planning Authority for the following works:
• the method of cleaning the wrought-iron handrail and railings
• the method of cleaning the steel beam (underneath the viewing platform)
• the methodology for wrought-iron work repairs (whether forge welding or Arc welding).
• Scaled drawings at a scale of 1:20 for any replacement or new sections of handrail proposed and their fixings to the masonry.
The works shall be undertaken strictly in accordance with the approved details.
Reason: To ensure that the appropriate methodology, techniques and materials are employed in the undertaking of the restoration works in the interests of the preservation and enhancement of the listed structure in accordance with Policy DEC 5 of the Scarborough Borough Local Plan.
Condition 4
Prior to commencement of works, the following shall be submitted to the Local Planning Authority for written approval:
1. a methodology
a) for the retrieval, removal, numbering and storing of the upper and lower stones of the
steps for their subsequent re-instatement, inclusive of where and how the steps will be
stored.
b) outlining the cleaning and repair process and the source for any new stonework. A
sample of new stonework shall be provided on site for inspection.
2. a detailed plan indicating a) all areas (exact locations) of stone to be replaced / repaired
3. Samples of new stonework provided on site for inspection, with details submitted to the local authority for approval in writing.
The works shall be undertaken strictly in accordance with the detailed plan and methodology.
Reason: To ensure that the appropriate methodology, techniques and materials are employed in the undertaking of the restoration works in the interests of the preservation and enhancement of the listed structure in accordance with Policy DEC 5 of the Scarborough Borough Local Plan.
Condition 5
Prior to commencement of works, the details for the new mortar mix shall be provided for works to the steps, external and internal retaining walls and spine beam and for the lime render mix for the rendered strip at the base of the southern stair well shall be submitted to and approved in writing by the Local Planning Authority. This shall also include sample areas of the re-pointing which shall be made available for inspection and be subject to written approval.
Reason: To ensure that the appropriate methodology, techniques and materials are employed in the undertaking of the restoration works in the interests of the preservation and enhancement of the listed structure in accordance with Policy DEC 5 of the Scarborough Borough Local Plan.
Informatives
In the event that human remains relating to the Medieval hospital of St Nicholas are discovered, then works should stop immediately and the contractor is advised that a Ministry of Justice Licence under the Buriel Act 1854 must be obtained. Thereafter any works should only take place in accordance with the conditions of that licence.
Target Determination Date: 20th August 2026
Case Officer: Mrs Amy Harrap