Pannier Market listed building works at Pannier Market Union Square, Torquay

What was proposed

The application sought listed building consent for demolition, internal fixture removal, new arched openings and emergency escape doors at the market.

“This application for Listed Building Consent proposes the demolition and associated works to adjoining structures to the south and west elevations of the Pannier Market including the removal of internal fixtures. The proposal includes the formation of arched openings and new emergency escape doors to south and west elevations of the Pannier Market.”

Officer report

The site and its heritage

The Pannier Market was built in 1852, altered in 1865 and 1909, and is a Grade II listed building in Torquay town centre.

“The Pannier Market (also known as ‘Torquay Market’) was built in 1852 and was altered in 1865 to incorporate shops. Further alterations took place in 1909.”

“The building is designated with a Grade II Listed status. This site is also located: • Within Torquay Town Centre • Within Torquay Town Centre Community Investment Area • Within 15 metres of Upton Conservation Area • Adjacent to The Old Sessions House (Grade II listed building) • Within Flood Zone 1, Critical Drainage Area, and an area susceptible to surface water flooding…”

Officer report

Related planning history

A major redevelopment application for the wider shopping centre and market was pending, while two earlier alteration applications had been approved.

“P/2025/0173: Partial demolition of existing shopping centre, demolition of 9 no. commercial units fronting on Union Street and Market Street and partial demolition of modern additions to Pannier Market.”

“P/2006/0164: Internal Alterations To Form New Mezzanine Level And Shop Units. Approved 08/03/2006. • P/2003/0073: Alterations To Shop Front And Formation Of Ramp For Disabled Persons. Approved 24/02/2003.”

Officer report

What officers recommended

Officers recommended approval because the works would support continued market use and wider regeneration, with public benefits outweighing identified heritage harm.

“Harm: The proposed openings in both the south and west elevations of the Pannier Market would represent a considerable loss of historic fabric dating from the building’s original construction. The resulting harm would be caused to its architectural, historic values and evidential values and its significance. The Council’s Conservation and Urban Design Officer considers that the proposed works would result in less than substantial harm, to a minor to moderate degree.”

“However, based on the restorative benefits of the scheme and the investment proposed into the wider regeneration scheme for the Union Square Shopping Centre, the building will be able to maintain its continued optimum viable use as a Pannier Market, along with the associated social and economic benefits there is deemed to be a significant public benefit to outweigh the identified minor to moderate level of less than substantial harm.”

Officer report

Consultation and written views

Historic Buildings and Places raised no objection in principle, while the conservation officer supported revised information but identified harm and required detailed conditions.

“Historic Buildings and Places (response received 8 th May 2025): HB&P have no objections to the principle of the alterations to the Pannier Market and the separation of the building from the development to the rear will enable the building to once again be appreciated as a single structure, as it was originally constructed. We are content to defer to the advice of your conservation team to secure the necessary details and materials.”

“The removal of the existing later extensions is likely to better reveal the building’s significance resulting in significant enhancements. However, it is also likely to unearth a host of design challenges, as the building appears not to be fully understood at this stage. This may impact the ability to implement future aspirational proposals which are likely to be beneficial to the wider scheme.”

Officer report

Residents’ views

The application received four letters of support, thirteen objections from the Torbay Heritage Trust and one other representation.

“1no. letter of representation, 4no. letters of support and 13no. letters of objection have been received. It should be noted that the 13no. letters of objection are from the Torbay Heritage Trust.”

“Note: Full responses are available to view on the public access system (https://publicaccess.torbay.gov.uk/view/).”

Officer report

Who spoke

A speaker addressed the Committee against the application, while two speakers supported it and Councillor Long supported the principle but wanted more homes.

The committee’s decision

The Committee unanimously approved the application, subject to a revised stone cleaning condition, the recommended conditions, Natural England’s response and delegated further matters.

“Approval subject to: 1. planning condition 5 to be revised to provide a stone cleaning strategy for the Pannier Market; 2. the planning conditions outlined in the submitted report, with the final drafting of planning conditions delegated to the Divisional Director of Planning, Housing and Climate Emergency; 3. receiving a consultation response from Natural England to confirm no objection to the Council’s Appropriate Assessment; and 4.”

Minutes