Memorandum by Inland Waterways Amenity
Advisory Committee (IWAAC) (HIS 22)
SUMMARY
1. IWAAC is the statutory advisory body
to the Secretary of State at the Department for Environment, Food
and Rural Affairs and the Board of British Waterways on the amenity
and use of the inland waterways in England and Wales (in Scotland
the Council advises the Scottish Executive). The Council also
advises the Secretary of State on inland waterways generally operated
by BW and other navigation authorities.
2. Based on our experience, the inland waterways
demonstrate the strong contribution made by historic buildings
and structures. Many have been at the heart of and been instrumental
in the success of regeneration projects throughout the country.
British Waterways (BW) among the numerous navigation authorities
have in the main taken the lead in such initiatives. The majority
of buildings owned by BW have now been put to modern income-generating
uses but a few important examples remain to be conserved and to
take their place in the modern world. Many more remain in private
ownership and a limited number with the other navigation authorities.
In order that the best use is made of these buildings while maintaining
their historic integrity we believe that a number of issues need
addressing. We would argue for
— More and stronger local partnerships
between the navigation authorities, local authorities and the
strong voluntary sector active in waterway conservation and development.
— New approaches by the navigation
authorities to educate users in this important heritage sector
(which facilitated the industrial revolution) through a limited
number of important historic buildings which can demonstrate their
original function by being conserved in their working form.
— Local authorities more effectively
exercising their regulatory role in maintaining the historic nature
of conservation areas and preserving the integrity of listed buildings.
INTRODUCTION
3. The inland waterways are a virtually
complete surviving historic transport system much of which is
capable of demonstrating the working practices of its cargo transporting
days. They are enjoyed by millions of people each year, through
many activities including boating, walking, cycling and fishing.
British Waterways alone own 2,800 listed buildings and structures
and 130 scheduled ancient monuments and over 500 miles of waterways
have been designated as conservation areas. The other navigation
authorities, local authorities, private companies and individuals
own many more, all of which add interest and character to the
waterways.
— To what extent do the inland waterways
owe their success to historic buildings?
— What is being done locally to secure
that success?
— What can be done in the future, locally
and nationally, to ensure sustainable regeneration?
THE CONTRIBUTION
OF HISTORIC
BUILDINGS TO
URBAN REGENERATION
4. Historic buildings and structures are
at the heart of many of the regeneration projects based on waterways
in many of our cities, towns, urban and rural areas. The Castlefields
area in Manchester is one outstanding example.
5. Historic buildings are fundamental to
the waterways. If they were to be taken away, many areas around
the waterways would lose most of their character and sense of
being a special place.
6. They provide a historic context for modem
life and a practical method of educating future generations in
the history of this country's unique waterway system that facilitated
the industrial revolution.
7. Listed buildings have been successfully
recycled alongside many waterways. They are able to accept new
lives whilst retaining their historical significance. We believe
that developers and building professionals are sometimes "scared"
of historic buildings and we also understand, for example, that
they are generally excluded from PFI schemes.
8. The important point is that historic
buildings are not historic baggage. These assets, in our view,
are just what make the waterways such a welcome place for:
— tourism and tourism services;
— residential development;
— small and medium enterprises (SME);
and
— incoming businesses including multi-nationals.
THE ROLE
AND EFFECTIVENESS
OF THE
PUBLIC AGENCIES
IN ENCOURAGING
URBAN REGENERATION
9. In our view, this is a key issue: historic
buildings can become a dead asset without positive and imaginative
action in the first instance by local authorities to provide a
framework within which public and private enterprise and trade
can flourish.
10. Foremost is the provision of Area Development
Briefs that look at specific parts of the area surrounding waterways
and Identify their distinctive qualities and guide developments
to make sure they meet the needs of the Local Plan while providing
a clear policy context for buildings of historic interest and
of national and international importance.
11. We believe a major national issue affecting
many waterside areas is the severe under- funding of planning
departments that has led to a weakening of their conservation
role and is in danger of undoing a lot of the valuable active
conservation work undertaken by local authorities in particular
in the 1970s and 80s when they allocated proportionally more resources
funding to the task. This problem of resources and status needs
to change in order to meet new needs and new circumstances.
WHETHER ORGANISATIONS
GIVE SUFFICIENT
REGARD TO
HISTORIC BUILDINGS
12. Many historic buildings have been successfully
conserved with varying levels of modification to fit them for
their new use, but few have been conserved so as to accurately
demonstrate their original function. This has in the main been
for commercial reasons, the need to generate a commercial return
for their owners. This is natural and necessary if all but a few
buildings are to be conserved.
13. Such buildings that have not been altered
too far to enable them to be "frozen in time" are now
very rare. It is therefore vitally important that they are quickly
identified and for them to be afforded sufficient protection for
research, plans, organisation to operate and maintain them. At
the same time the funding necessary for their conservation and
long term sustainability must be obtained.
14. Examples once common on the waterways
and now rare that immediately come to mind are stables, boatyards,
warehouses and toll offices. Such projects will complement local
and national museums and lead to an improved and more accurate
knowledge in future generation of the original function of our
inland waterways.
15. In the past it is arguable that for
at least the last decade that government, central and local, has
not given sufficient regard to the importance of historic buildings
to the local environment. The current under funding of the planning
activity as stated above squeezes resources out of conservation,
environmental action and even forward planning into the "fire
fighting role" of development control in order to meet the
national targets related to processing applications.
16. We believe the role of conservation
needs to change, to reflect a concern that goes wider than individual
buildings. The issues are about:
— The condition and potential of specific
zones and areas around an inland waterway, creating the setting
for a thriving community—socially, culturally and economically.
— The distinctive nature of the inland
waterways and how they can be maintained and improved.
— Making sure that community plans
recognise the importance of our historic environment and are not
subsumed by other pressing priorities. In general, we believe
that creating a quality environment should be a national target.
— The quality and diversity of historic
assets need to be fully understood by all involved with their
future.
— The historic environment is often
seen as a constraint but should be seen as a key opportunity for
regeneration and employment.
— Creative industries and tourism thrive
in areas of historic, cultural and geographical diversity. Water,
in particular where there are regular movements of boats, adds
a further attraction for locals and other visitors.
17. For these reasons, conservation and
development should go hand-in-hand.
18. This is as much about people as about
organizations. We understand English Heritage has confirmed through
research that "Conservation Officers" are a scarce and
dwindling breed. There is also a serious shortage of design skills
in Local Planning offices. As local authority architects departments
have died out, there is often no architectural design resource
at all. Without in-house skills, the efforts of CABE and others
are unlikely to have a great impact.
19. Elected Members in councils play an
important role. Many places do not have architect councillors
to champion good design.
WHETHER THE
PLANNING SYSTEM
AND LISTING
OF HISTORIC
BUILDINGS AID
OR HINDER
REGENERATION
20. We would not support any weakening of
the protection that listing provides. For example we would not
wish buildings to be moved onto a "Local List" without
full assurance that the protection they currently enjoy would
transfer with them.
21. Good design of alteration to listed
buildings, based on decisions made with a clear understanding
of the significance of the listed building, will facilitate regeneration.
The notion that listed buildings cannot alter or be changed is
widespread and false.
22. One issue is the way in which listing
is defined nationally in a statutory and precise way as being
appropriate for a specific building or monument. Locally, the
definition of heritage is more usually related, not to the precise
historic definition of a property, but more to the sense of the
general environment and the way the building contributes to the
environment, or not. By extension, the way a building could
contribute to regeneration is an opportunity for the local community
to engage in regeneration planning.
WHETHER ALL
GOVERNMENT DEPARTMENTS
TAKE ADEQUATE
ACCOUNT OF
THE HISTORIC
ENVIRONMENT
23. Government should lead by example, first
of all in assessing and then realizing the potential to develop
new uses in the historic buildings they own.
WHETHER FISCAL
AND LEGISLATIVE
CHANGES SHOULD
BE MADE
24. The issue of VAT is complex, currently
in some cases because it is charged on conservation and not on
new work it deters conservation and re-use of buildings. We would
encourage an approach that equalizes the tax burden between new
build and conservation, repair and maintenance of existing buildings
whilst recognizing that the overall tax take would need to be
maintained.
IN CONCLUSION
25. Whatever this Inquiry concludes, we
believe a successful outcome needs new partnerships that deal
with:
— improving the Image of the localities
around inland waterways;
— improving the quality of life;
— improving learning about the environment
though education and skills development;
— marketing "quality" of
environment to the commercial sector.
The Viscountess Knollys DL
Chairman
Inland Waterways Amenity Advisory Council
City Road Lock
38 Graham Street
London N1 8JX
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