Memorandum by the Office of the Deputy
Prime Minister (HIS 50)
INTRODUCTION
1. This memorandum aims to provide the Committee
with information relevant to its inquiry into the Role of Historic
Buildings in Urban Regeneration. The note comprises general background
information, followed by information on the specific points highlighted
by the Committee as issues it wishes to address. Although it has
been submitted by the Office of the Deputy Prime Minister, it
reflects inputs from the Department for Culture, Media and Sport
(DCMS) who share policy responsibility for the historic environment.
BACKGROUND
2. The historic environment, a term that
extends beyond but encompasses historic buildings, makes a vital
contribution to the quality of everyone's life and is central
to our sense of local, regional and national identity. It plays
a key role in delivering broader Government objectives for sustainable
development by promoting economic prosperity, environmental protection
and enhancement, as well as social inclusion and community cohesion.
3. Conservation can play a crucial role
in promoting economic prosperity by ensuring that an area offers
attractive and distinctive living and working conditions which
fosters existing businesses and encourages both internal and inward
investment. By acting as a focus for regeneration schemes, the
historic environment can help revitalise areas by celebrating
local identity and encouraging more sustainable patterns of living.
Conservation has an important role to play in regenerating run
down areas. The conservation approach to regeneration means retaining
the special qualities of an area, re-using vacant buildings and
floor space, enhancing the public realm with well-considered streetworks,
introducing high quality new development and involving local communities
in planning places for people.
4. The planning system provides the mechanism
for enabling historic buildings to play a part in urban regeneration.
Planning Policy Guidance Note 15 Planning and the Historic
Environment provides a full statement of Government policies
for the protection and use of historic buildings and other elements
of the historic environment. It recognises that historic buildings
are a valuable material resource that can be put to good economic
use, either as individual assets or as part of a regeneration
scheme.
5. The Government's Urban White Paper, launched
in November 2001—which built on the recommendations of the
Urban Task Force report Towards an Urban Renaissance—recognises
the contribution that historic buildings make to the character,
diversity and sense of identity of urban areas. It notes that
even small scale improvements to the historic fabric of an area
can help generate a market-led return to urban living, supporting
existing communities and adding to the economic base.
6. The White Paper sets out the Government's
policy for ensuring that historic buildings play the role envisaged,
and identified two delivery bodies, English Heritage, and the
Heritage Lottery Fund.
— English Heritage is the Government's
adviser on all matters concerning the conservation of England's
historic environment. Operating on a regional basis, it advises
owners, developers and government on matters relating to the historic
environment.
— Urban regeneration is also a key
objective of the Heritage Lottery Fund, particularly in
its Urban Parks and Townscape Heritage Initiatives. By the end
of 2002, the Urban Parks Initiative had provided £255 million
to restore and improve parks and gardens in the UK. The Townscape
Heritage Initiative has already allocated £62 million for
the regeneration of historic towns and cities across the UK including
many in deprived areas.
7. The contribution of the historic environment
to regeneration and in optimising economic potential was a key
feature of the Government's statement of policy on the future
of the historic environment The Historic Environment: A Force
for Our Future (AFFOF), published in December 2001. This strengthened
the vision of the historic environment as a force for the revival
of towns and cities going beyond the previous understanding relating
to the role of formal planning guidance and traditional statutory
funding, to embrace an emphasis on education, social inclusion
and access. This has led to the publication of annual state of
the historic environment reports by the sector. The 2003 report
Heritage Counts was published on 26 November. These reports
are mapping for the first time data and trends relating to the
historic environment. This year's report has published new research
on the contribution the historic environment makes to sustainable
development and regeneration.
8. The Planning Green Paper Planning:
Delivering a Fundamental Change, published in December 2001,
announced a package of proposals for improving the present planning
system. The Green Paper was a response to Government concerns
that the present system was no longer appropriate for the twenty-first
century. The current arrangements were seen as too complicated,
too slow and they engaged insufficiently with local people. The
proposals outlined in the Green Paper were aimed at producing
a better, simpler, faster and more accessible system that served
the interests of local communities and business alike, one that
would be able to deliver more effectively both urban and rural
regeneration.
9. Following an analysis of responses to
the Planning Green Paper, the Government announced in Sustainable
Communities—Delivering through Planning in July 2002
the package of proposals it was proposing to take forward to reform
the current planning system. Primary legislation is required for
the implementation of some of these proposals, and these are being
taken forward through the Planning and Compulsory Purchase Bill
currently proceeding through Parliament. The Commons Committee
stage of the Bill was completed in October 2003 and the remaining
stages are expected to be completed soon, with Royal Assent expected
in March 2004.
10. The Sustainable Communities Plan Sustainable
Communities: building for the future published in January
2003 set out the Government's plan for transforming communities.
The Plan recognised the need to tackle the legacy of neglect in
existing towns and cities, and to do this it placed better standards
of urban design at the heart of policy. In particular, the Plan
expanded the role of the Commission for Architecture and the Built
Environment (CABE). CABE will work closely with English Heritage
to ensure a more considered approach to how historic buildings
and townscape might play a part in the regeneration process. The
Plan recognised a shortage of the type of skills and experience
needed to ensure the success of this approach. It prioritised
raising standards by improving the urban design skills of professionals
working right across the built environment sector ensuring wider
recognition of the role of historic buildings.
11. The Government has also announced that there
should be a review to improve and refocus the way in which England's
historic assets receive statutory protection. This Review of Heritage
Protection is being led by the Department for Culture, Media and
Sport in partnership with English Heritage in close consultation
with ODPM and a range of other stakeholders. This is the subject
of a separate DCMS memorandum and is looking at the existing systems
for listing and scheduling. It is also considering other elements
of the historic environment such as World Heritage Sites, conservation
areas, historic parks and gardens and battlefields.
12. The aim of the Review is to deliver
a positive approach to managing the historic environment and to
come up with a legal framework which provides for the management
and enabling of change, rather than its prevention. The Review
will consider the way in which the present arrangements for designating
historic assets impact on urban regeneration.
13. In July 2003, the Government issued
a consultation paper Protecting our historic environment: making
the system work better. The period for making comments on
the proposals set out in the consultation paper ended on 31 October.
The Government is currently considering the responses with a view
to preparing a Government White Paper in Spring 2004 detailing
how the Review should be taken forward.
ISSUE 1: THE CONTRIBUTION OF HISTORIC BUILDINGS
TO URBAN REGENERATION
1.1 Historic buildings and public spaces
are often key to regeneration schemes. Individually they can be
centrepieces, landmarks, or symbols of an area. Collectively they
set a framework, a context, or an architectural standard.
1.2 Some historic areas are based on the
local vernacular building tradition, using materials locally available.
This often makes them unique and helps to define the image of
an area. Other historic areas incorporate buildings in a variety
of architectural styles, and materials, and are constructed over
several centuries; here their richness and complexity can be equally
image-defining.
1.3 A well-conserved historic environment
can be used to develop heritage and culture based tourism. It
contributes to social engagement and quality of life. Even those
areas not associated with high quality historic environments often
have individual buildings and small areas with attractions which
are highly valued by their residents.
1.4 There are a number of highly successful
urban regeneration schemes in historic areas, such as Grainger
Town in Newcastle. Evidence from those developing such plans is
that they worked because they have placed heritage at the heart
of their regeneration schemes. Emphasising the value of heritage
assets means they can be used as a positive driving force. This
could be wider than listed buildings and include archaeology,
streetscapes, built form, traditions and communities. Putting
heritage at the heart of such development additionally contributes
to the sustainability agenda.
1.5 It is not just in town centres that
use is being made of historic buildings. Building for Life, sponsored
by CABE, The Civic Trust and the Housebuilders Federation, recently
awarded a Gold Standard to a development at Ingress Park, Greenhithe
in Kent. This acclaimed housing development responds to the context
of the grade II listed Ingress Abbey. The Building for Life Standard
represents the drive for increasing the national standard for
housing and neighbourhoods. It is awarded only to new housing
projects that demonstrate a commitment to high design standards
and good place making.
1.6 The developer Urban Splash has also
pioneered the use of historic buildings and brownfield sites to
create new mixed-use urban spaces—and in doing so have stimulated
the broader regeneration of our urban communities. Their conversion
of former Victorian mill buildings into award winning loft style
apartments in the Castlefields area of central Manchester, for
example, has helped bring new life to a previously derelict historic
area and created a new market for city centre living.
1.7 Among the important factors needed to
maximise the role of historic buildings in regeneration are:
— The relationship of the historic
building(s) to a wider regeneration strategy. Regeneration
of historic buildings should take place as part of a wider area
regeneration strategy and demonstrate direct or indirect benefits
to the strategic aims. These benefits might range from local amenity
gains to contributing to the long-term commercial viability of
a renewal initiative.
— Community support. Heritage
projects and the regeneration of historic buildings should take
place with full and active local support. Consulting and engaging
with the local community is particularly important in relation
to heritage buildings which are central to local history and community
identity.
— Emphasis on design and quality
of built form—these are key to regeneration. Promoting
good planning and design is central to Government policies to
deliver sustainable communities. PPG1 General Policy and Principles
states that: "Good design should be the aim of all those
involved in the development process and should be encouraged everywhere"
and that particular weight should be given to the impact of development
on areas of "townscape value." By Design, the
companion guide to PPG1, encourages greater thought and attention
to the use of historic buildings in the regeneration of our towns
and cities to create places that communities will live and work
in, and can enjoy. Chapter 2 of English Partnership's Urban
Design Compendium also includes the role of the historic environment
as a key part of the context for creating a sense of place.
1.8 Investment in the historic environment
can often lever in other resources to help regenerate areas. English
Heritage's publication The Heritage Dividend 2002 demonstrates
clearly the way that refurbishment of the historic fabric can
act as a catalyst for wider regeneration, tackling social exclusion
and building communities. It estimates that, for every £10,000
spent, £46,000 of match funding is levered in from other
private and public sources, generating and safeguarding jobs,
creating new homes and improving other facilities.
1.9 Heritage Economic Regeneration Schemes
(HERS) were launched in 1999 as English Heritage's primary area-based
funding programme. HERS are run in partnership with local authorities
and encourage investment from public and private sources. The
focus of HERS is on commercial and mixed-use areas. Some
250 HERS have been set up covering a diverse range of areas, including
seaside resorts, markets towns, district shopping centres, local
urban shopping centres, and farm buildings.
1.10 Urban regeneration is also assisted
through a range of Heritage Lottery Fund (HLF) programmes; the
HLF is a NDPB whose work is overseen by DCMS. Since the HLF began
making grants in 1995:
— 6,751 projects have been funded in
Scotland, Wales, Northern Ireland and the nine English regions,
worth a total of £2.534 billion
— £684 million (27% of the total)
has been targeted at 1,483 regeneration projects (22% of the UK
total) in local authorities defined as deprived.
1.11 The Townscape Heritage Initiative
is for projects to regenerate the historic environment in towns
and cities, led by partnerships of local, regional and national
interests. It seeks to repair the buildings which make up the
special architectural character of historic urban areas, with
a view to bringing derelict and under-used historic buildings
back into practical use. Projects should involve and benefit the
wider community as well as those directly concerned with grant-aided
properties. HLF treats as a priority applications for townscapes
in areas of social and economic deprivation.
1.12 The Public Parks Initiative
helps with the restoration and regeneration of historic parks
and gardens, including urban squares and cemeteries. Projects
should also enhance public access and may involve improving facilities.
HLF will continue to give priority to applications which serve
socially and economically deprived communities. The initiative
helps promote heritage conservation as a necessary part of urban
and rural regeneration, and to open up heritage resources and
sites to the widest possible audience.
1.13 Under the Heritage Grants programme,
grants of £50,000 or more are offered to organisations seeking
to look after and enhance the UK's heritage, to increase participation
in heritage activities, and to improve access to and enjoyment
of heritage. It caters for a wide range of projects, including
the very largest and most complex. Project Planning Grants are
also available to help in the early planning of projects which
may lead to an application for a Heritage Grant.
1.14 Grants of between £5,000 and £50,000
are available under the Your Heritage programme for projects
which either care for heritage or increase people's understanding
and enjoyment of it. Projects should also make it easier for people
to gain access to heritage and be of benefit to the community
and the wider public.
1.15 A good example of how HLF investment
has helped in regenerating an area is in Nottingham where HLF
funds has led to the conversion of a grade II listed former textile
factory into a campus for New College, with around 3,000 students.
Funding has also resulted in the conversion of the former Shire
Hall into the Galleries of Justice, home to the National Centre
for Citizenship and the Law which works with the Youth Justice
Board to help young offenders and children excluded from school.
HLF funding for these two buildings is widely acknowledged to
have been the starting point for the urban renewal of the Lace
Market district, today known as the city's creative and cultural
quarter.
1.16 HLF funding has also enabled the restoration
of the physical fabric of Birmingham's Cathedral Square in the
heart of the city, providing a high-quality open space for all.
These improvements have acted as the catalyst for the regeneration
of the surrounding area; around 1,200 jobs are estimated to have
been created by firms relocating to this area of the city.
1.17 Urban regeneration policy is not just
about improving the built fabric of an area but, as the Urban
White Paper emphasises, about addressing economic, environmental
and social needs together in an integrated way. Heritage-based
schemes are being used in imaginative ways to meet social needs
in disadvantaged areas.
1.18 Historic Royal Palaces, for example,
recognise that the Tower of London has a significant part to play
in the regeneration of its locality and can contribute to outreach
work in the local community. Over the last few years, they have
devised a broad programme of inclusive activities and events designed
to break down the barriers to access. These fall into different
categories aimed at a diversity of audiences including children
and adults with special needs, the elderly, local minority ethnic
and special needs groups.
1.19 Outreach activities cover organising
free themed workshops in partnership with schools, further and
higher educational institutions, offering work experience and
mentoring opportunities, a reading partnership and special weekend
activities exploring environmental and architectural themes. Ongoing
community consultation is taking place to find new and culturally
appropriate ways of engaging ethnic minority and specials needs
groups with the Tower of London and British heritage.
ISSUE 2: THE ROLE AND EFFECTIVENESS OF THOSE
ORGANISATIONS RESPONSIBLE FOR THE BUILT AND HISTORIC ENVIRONMENT
IN ENCOURAGING URBAN REGENERATION
LOCAL PLANNING
AUTHORITIES
2.1 Local authorities have a crucial role
to play in urban regeneration. They must be responsive and accountable
to their local communities as well as developing a vision for
their area and a strategy to deliver it within the framework set
out in the Urban White Paper. By helping to set up and lead local
partnerships and networks with the public and private sectors
and local people, they can help ensure that the historic environment
is properly maintained and improved as part of initiatives to
make towns and cities more attractive places to live and work.
2.2 As part of their role in preparing development
plans for their areas, local authorities are required to include
land use policies on a range of different topics, including the
conservation and improvement of the natural and built environment,
and policies to promote better urban design.
2.3 The performance and effectiveness of
local authorities varies considerably from region to region, and
even within regions. Some local authorities have the in-house
expertise and the financial resources to be both effective and
proactive in encouraging heritage-related urban regeneration.
Others, particularly those with limited numbers of historic buildings
or environments, and social and economic problems, consider heritage
issues to be of less priority and to have less potential as a
focus for regeneration.
2.4 Research undertaken in 2002 by Oxford
Brookes University, English Heritage and the Institute of Historic
Building Conservation argued for greater resources for local authority
conservation services. The researchers considered that an increased
role for conservation specialists in regeneration activity would
bring benefits, and that an increased ability to undertake more
proactive work was only likely to be achieved through greater
resources from within local authorities and central Government,
improved training for officers and councillors and better procedural
advice. Whilst central Government does not prescribe to local
authorities how much they should spend on conservation services,
the Government has recognised that planning services are generally
under funded and that there is more that needs to be done to support
skills development.
RESOURCES
2.5 The Government has increased overall
funding to local authorities and extra resources are being made
available to local planning authorities through the Planning Delivery
Grant (PDG). The grant will provide an extra £350 million
to local planning authorities between 2003-06. The grant is not
ring-fenced, and authorities are free to spend PDG resources as
they wish. Interim findings of research that is currently underway
to assess how the PDG is being spent have shown that some resources
are being directed towards enhancing conservation services.
SKILLS
2.6 The Government is aware of the need
to tackle the shortage of people with the skills, knowledge and
experience to be able to integrate our valued historic buildings
with creative good quality new design, and that new qualified
personnel are required to safeguard quality through the planning
process.
2.7 The Urban Design Skills Working Group
was set up in 2000 at the request of DCMS and ODPM to consider
how to improve the urban design capacity of local authorities,
at both elected representative and officer levels; surveys show
that less than half of authorities have people with design qualifications.
The Sir John Egan Review of Skills announced in April will inform
the action we need to take to address the shortage of skilled
people and to improve the level of skills and expertise of existing
personnel.
2.8 As part of this process, ODPM and DCMS
are currently working with English Heritage on the development
of a training package aimed at local authority officers and members
involved in decisions affecting the historic environment.
BEACON COUNCIL
SCHEME
2.9 The importance of design and quality
in regeneration, including the role that historic buildings can
play, is recognised in the Government's Beacon Council Scheme,
whose aim is to identify centres of excellence in local government
from which other councils can learn. Round 4, the results of which
were announced in April, included a theme `Quality of the Built
Environment'; Cambridge City Council, West Dorset District Council
and Chelmsford Borough Council have been awarded Beacon status
under this theme.
2.10 The theme illustrates how well designed
buildings, streets and public spaces contribute positive social,
economic and environmental benefits, which in turn help to improve
the quality of life for all communities. Authorities have a key
role to play in investing in high quality new public buildings
and facilities; administering the planning system in a way that
promotes high design standards; and adopting an investment and
management strategy that leads to an improvement in the quality
of streetscapes and public spaces.
2.11 The authorities awarded Beacon status
are working in partnership with the community and local business
in developing their design policies and standards, and are able
to show examples of best practice in good design that can inspire
others.
ENGLISH HERITAGE
English Heritage Quinquennial Review and Modernisation
Programme
2.12 The efficiency and effectiveness of
the way English Heritage (EH) delivers its services to its users
were considered as part of a quinquennial review (QQR) undertaken
between October 2001 and May 2002. The review also looked at the
role and functions of EH and how those functions should be carried
out.
2.13 In June 2002, EH launched a major programme
of organisational change under the title of Modernising English
Heritage. Many of the QQR recommendations are being implemented
as part of this programme.
2.14 The first stage involved a comprehensive
reorganisation of EH's structure to provide a more explicit alignment
of resources and senior management responsibility. Under the new
structure, five operational groups, each led by a board-level
director, are responsible for research and standards, properties
and outreach, planning and development, policy and communications,
and resources.
2.15 The second stage saw EH's Commissioners
and new Executive Board complete a comprehensive review of the
organisation's functions with a view to re-focusing them towards
the needs of the organisation's external customers and stakeholders.
The outcome was "Coming of Age"—a 2-year work
programme to transform the organisation into an outward looking
customer-focussed organisation. This includes 20 Beacon Projects
through which EH plans to showcase what it does, and develop examples
of best practice. A new suite of internal business plans and risk-management
strategies underpins this.
2.16 The third stage is ongoing. A new and
innovative Funding Agreement has been drawn up, co-sponsored by
DCMS, ODPM and Defra. This recognises for the first time the contribution
EH makes to the delivery of wider Government targets, as well
as those of the DCMS. Key Performance Indicators identify what
EH is expected to achieve under each of a number of headings including,
for example, improved response times for commenting on applications
for planning permission and listed building consent; constructive
working with ODPM, CABE and others to develop a co-ordinated approach
supporting sustainable communities; and the development of policy
expertise in regeneration and the development of partnerships
with other regeneration funding bodies.
2.17 English Heritage is using the £1.5
million it has received from NDPB reform funds for 2003-04 to
streamline its front-line customer services and the supporting
internal business processes. This includes upgrading EH's outdated
computer and management information systems and a new suite of
training and development programmes for managers.
2.18 In June 2003, English Heritage—in
collaboration with CABE, the Environment Agency, the Commission
for Integrated Transport and the Sustainable Development Commission—produced
Building Sustainable Communities: Actions for Housing Market
Renewal.
2.19 This document includes advice on the
heritage and outlines how Market Renewal Pathfinders can positively
address heritage as an asset. It explains how heritage can be
used as a driver for recovery, or how historic environments can
be used as an attraction for potential investors. Pathfinders
are encouraged to consider the historic environment as early as
possible and to integrate it in the design of new sustainable
communities where people want to live. English Heritage have started
to work with both the Merseyside and Birmingham and Sandwell Pathfinders
in a collaborative approach with the pathfinders and local authorities
to carry out first-stage characterisation work.
2.20 The RDAs have found English Heritage
to be a very effective partner in a number of successful projects
where their representative has been embedded in the project team.
The aim of the modernisation programme is to ensure that English
Heritage, working in partnership, contributes to the management
of change in a positive way.
REGIONAL DEVELOPMENT
AGENCIES
2.21 Regional Development Agencies (RDAs)
were set up to with the aim of driving forward economic and physical
change and, together with other regional bodies, providing the
strategic context for making better towns and cities. They are
increasingly 'setting the tone' for economic and physical regeneration
that will be delivered by local strategic partnerships and local
authorities. They recognise the importance of achieving an urban
renaissance in line with the recommendations of the Urban White
Paper, by improving the quality of architecture, design and the
public realm. This is necessary to attract and retain investment
in urban areas.
2.22 It is widely recognised that the built
heritage has a crucial part to play in this; the retention and
re-use of key buildings underpin the cultural uniqueness of a
place, and public spaces constructed in line with sound principles
of urban design will help engage local people and potential investors.
The public statements on the importance of good design and retention
of the built heritage by RDAs such as the North west Development
Agency (NWDA), the South West Regional Development Agency (SWRDA)
and Yorkshire Forward, and their adoption by their regeneration
partners, are good examples of a growing realisation of the advantages
of conservation-based regeneration. The RDAs' task is to ensure
that their advice is followed in their own investments, and more
widely within their regions.
2.23 Regeneration projects undertaken by
RDAs seek to address physical and economic regeneration where
the market alone is unable to deliver solutions. As public bodies
they are expected to achieve objectives in addition to profit.
This can enable them to support or promote schemes that lead to
the reuse of an historic building and/or improve its setting through
carrying out their statutory objectives focussed on economic development
and regeneration. Such impacts on historic buildings are, therefore,
often a subsidiary or additional effect of their programmes rather
than the prime motivation.
2.24 Projects and developments involving
historic buildings and environments are, however, often more expensive,
more complicated and more time-consuming which can make it more
difficult to get some regeneration schemes off the ground. It
is important, therefore, to consider how to address or minimise
these issues. The London Development Agency (LDA), for example,
has over the years developed a working relationship with English
Heritage, the Heritage Lottery Fund, and other agencies concerned
with historic assets. This has worked well and helped to improve
understanding and enabled the heritage and regeneration agencies
to complement each other's work.
ENGLISH PARTNERSHIPS
2.25 English Partnerships (EP) is responsible
for taking forward the Government's national strategy for brownfield
land with the aim of bringing more derelict land into use. It
also now has a key role in ensuring the best use of surplus public
sector land. Brownfield sites can include a legacy of redundant
historic buildings which offer both opportunities and challenges
to regeneration projects.
2.26 EP has considerable experience of tackling
historic buildings as part of the regeneration mix through its
management and delivery of the Partnership Investment Programme.
Many of the major area based regeneration strategies EP developed
centred on historic buildings or areas, including Grainger Town
in Newcastle, Woolwich Arsenal, or investment in individual buildings
as part of a wider strategy, for example Felaw Maltings in Ipswich
and the Joshua Hoyle/Malmaison Building, Manchester. Although
ownership of the Royal William Yard in Plymouth was passed to
SWRDA in 1999, EP continues to provide funding for the phased
mix-use development and has been very successful in getting high
quality residential sales purchased off-plan at this once intractable
site.
2.27 EP is now able to take this experience
forward into its urban renaissance delivery remit, most notably
in its partnership in the Urban Regeneration Companies (URCs)
and the Housing Market Renewal Pathfinder areas and its involvement
in the practical delivery of urban design policy through work
in coalfield regeneration programmes, the New Towns and Millennium
Communities.
2.28 Some city centres where EP is active
in regeneration partnerships, especially with the URCs, have major
stocks of listed buildings. Liverpool URC, for example, is working
in the context of an urban area with over 60% of all buildings
at either grade II or above. Several projects in which EP is active—either
as the master developer or as funder—are Scheduled Ancient
Monuments.
2.29 EP has a relationship with a number
of voluntary sector organisations working on heritage issues,
notably the Phoenix Trust and Regeneration through Heritage. In
both cases the collaboration is on a project by project basis
to bring forward historic buildings for regeneration where they
contribute to the wider regeneration strategy.
CABE
2.30 The Commission for Architecture and
the Built Environment (CABE) act on behalf of Government as the
nation's champion for better places. They have played an important
role in raising the profile of the role of good architecture and
urban design in the social and economic improvement of our towns
and cities. CABE works across a range of different types and ages
of buildings including those from the 20th century—an example
is the refurbishment of Parkhill flats in Sheffield which has
contributed to the wider regeneration of the area, acting as a
landmark within the city
2.31 In Spring 2002 CABE jointly published
with English Heritage the highly successful Building in Context
which targeted improving standards of design where new developments
are taking place in sensitive or historic areas. It showed how
new buildings could draw intelligent inspiration from their historic
surrounds. By respecting scale and materials of neighbouring buildings
and the geography, history and vistas of the area, new buildings
can blend with existing development and thus reinforce the value
of an historic area. Building in Context was followed by
a successful series of seminars attended by a range of interests—planners,
architects, developers, Councillors and community groups—underlining
the scope for greater community engagement in the regeneration
process by stimulating interest in the historic buildings of the
area.
2.32 CABE are currently working closely
with English Heritage across the Housing Market Renewal Pathfinder
areas, developing programmes to meet the specific circumstances
of the localities. By thinking about the historic environment
early in the design process, classification studies can be used
to identify historically or culturally significant buildings that
can enhance regeneration.
2.33 CABE has set up a Design Task Group
to enable issues and experience relating to design quality to
be explored and shared by key stakeholders. The Design Task Group
will also review housing typologies within the Pathfinder areas,
including historic stock, to assess the scope for adaptation to
meet current and future housing needs.
2.34 CABE are also working in the Housing
Growth Areas. They are, for example, advising on the Greater Ashford
Development Framework and starting to define work with Harlow
and in Milton Keynes.
ISSUE 3: WHETHER THOSE ORGANISATIONS CARRYING
OUT REGENERATION PROJECTS GIVE SUFFICIENT REGARD TO HISTORIC BUILDINGS
REGIONAL DEVELOPMENT
AGENCIES
3.1 The RDAs, in partnership with other
Government Departments and local authorities, have been successful
in developing heritage-based regeneration projects. In all these
cases, the historic setting has been secured through careful design
and skilled advice.
3.2 There are a number of initiatives designed
to reinforce this approach. For instance, the NWDA is sponsoring
English Heritage to produce a design guide to aid creating and
restoring good townscape. They are developing an urban design
led approach to small town, and area regeneration, which will
have a strong emphasis on conservation of the historic environment,
and establishing a design review panel.
3.3 RDAs involved in partnerships with local
government and private sector partners in regenerating historic
areas ensure that the brief for the project reflects their value,
and the project team incorporates appropriate expertise. These
safeguards have resulted in a number of very successful schemes,
economically viable, architecturally sensitive, and valued by
those who use them.
3.4 The RDAs consider that developers don't
always see the opportunities offered by historic settings. They
are concerned about the costs of alteration, adaptation, and long-term
maintenance of historic buildings. They fear that, once they start
working on historic buildings, they will find a myriad of expensive
repairs that must be undertaken. Developers are often more comfortable
working on a cleared site, where project costs can be accurately
predicted. Conversely there have been occasions where developers
have started ambitious projects within historic environments without
being aware of the likely true costs, and have abandoned the work
half completed.
3.5 Developers and designers, as well as
planning officers and committees, are targeted in the joint CABE
and English Heritage publication Building in Context which
uses case study examples to illustrate a successful approach to
improving design standards where new development is proposed in
an historic setting (see para 2.31). This joint approach has also
been successful in the Housing Market Renewal Pathfinder areas.
Identifying how to positively address heritage as an asset rather
than an obstacle is an important part of the jointly published
Building Sustainable Communities: Actions for Housing Market
Renewal document (2.18-19). CABE has also set up a Design
Task Group to ensure these issues are explored and shared by all
the key stakeholders (para 2.33).
ENGLISH PARTNERSHIPS
(EP)
3.6 Although EP is not closely involved
in the use or re-use of historic buildings per se, it does play
an important role when they form part of other regeneration projects
such as part of Coalfield Regeneration project, or as a major
scheme like the regeneration of the Royal William Yard in Plymouth.
3.7 EP recognises that heritage can be a
major asset in the drive to encourage regeneration and is keen
where appropriate to encourage the restoration, conversion and
re-use of historic buildings. EP sees potential additional benefits
from enhanced co-ordination between regeneration and heritage
bodies.
ISSUE 4: WHETHER THE PLANNING SYSTEM AND
THE LISTING OF HISTORIC BUILDINGS AID OR HINDER URBAN REGENERATION
THE ROLE
OF THE
PLANNING SYSTEM
4.1 The proposed development plan system
changes, and in particular the establishment of Regional Spatial
Strategies (RSS) and Local Development Frameworks (LDF), should
facilitate a more responsive system better able to develop the
necessary policies and programmes on a tighter time-frame to secure
the contribution of historic buildings to urban regeneration.
4.2 In any region there is a wealth of archaeological
and built heritage which may range from being of local to even
international significance, such as World Heritage Sites. Those
assets of sub-regional importance and above should be considered
as part of an overview of environmental constraints and opportunities
for improvement of the region. Current Regional Planning Guidance—and
in future the RSS which is intended to replace it—should
complement the regional cultural strategy in preserving and enhancing
those assets of regional or sub-regional importance and consider
whether there is a regional planning dimension to managing, for
example, their tourism potential. In doing so regional planning
bodies (RPBs) should have regard to PPG15 Planning and the
Historic Environment and PPG16 Archaeology and Planning.
RPBs should also consider whether there are appropriate opportunities
to be taken forward in development plans, in conjunction with
the RDA economic strategies, for the sensitive exploitation of
the built heritage to assist in sub-regional regeneration.
4.3 The proposed Local Development Framework
(LDF) will comprise a folder of documents for delivering the spatial
strategy for the area. This will include a core strategy, site
specific policies, and detailed area action plans. The proposed
LDF documents should set out clear policies for the preservation
and enhancement of the historic environment, in general conformity
with the RSS. They should contain a strategy for the economic
regeneration of rundown areas, and in particular seek to identify
opportunities where conservation of the historic fabric of an
area can offer a focus or act as a catalyst for regeneration.
4.4 Local planning authorities are encouraged
to consult English Heritage, the National Amenity Societies and
other appropriate bodies at an early stage in preparing policies
for protecting and enhancing the historic environment.
4.5 The Government believes that the planning
system when used positively and creatively can provide focus and
stimulus to urban regeneration. There is an increasing number
of excellent examples of heritage-related regeneration throughout
the country which testifies to this. But local authorities need
to make available the right level of resources and to provide
the training and skills to ensure that they are well placed to
identify and respond creatively to opportunities. Their capacity
to do so varies considerably with some authorities giving high
priority to conservation and exploiting the potential it creates
for urban regeneration. Other authorities see it as a lesser priority.
Evidence from the research study undertaken by Oxford Brookes,
which is supported by the views of RDAs, is that some areas have
not made the most of regeneration opportunities due to lack of
expertise and resources in conservation. The absence of informed,
timely advice—both generic and specific—from planning
authorities can make it difficult for developers to assess the
risk of engaging in an historic building project. Delays can also
occur where there are slow responses by those organisations which
local planning authorities consult.
4.6 The Government recognises concerns about
the lack of resources and delays in the provision of advice from
local planning authorities and statutory consultees. The Government
is addressing these concerns in a number of ways. Additional resources
are being made available to local planning authorities through
the Planning Delivery Grant (para 2.5 above) and a training package
for local authority officers and members is being developed by
English Heritage (para 2.8). We are introducing a statutory deadline
of 21 days for statutory consultees to respond to requests for
advice from local planning authorities in respect of particular
planning applications. We are also encouraging the use of standing
advice by statutory consultees in order to help speed up the process
further. Other measures proposed in the Planning and Compulsory
Purchase Bill—those related to twin tracking and repeat
applications, for example—will help streamline the system
and enable planning authorities to focus resources more effectively.
ROLE OF
THE LISTING
SYSTEM
4.7 There is perhaps a greater perception
that the listing of historic buildings interferes with urban regeneration
plans than is in fact the case.
4.8 At present, the designation of historic
buildings is undertaken by the Secretary of State for Culture,
Media and Sport. This establishes the significance of the asset.
She is constrained by law to make her decision on strict architectural
or historic criteria; it is an assessment of the significance
of the individual building, and all buildings meeting these criteria
are placed on the list. There are around 1,900 spotlisting applications
each year, of which some 35% result in listing.
4.9 Following designation, the future and
management of the building is considered through the planning
system. This regulation phase enables wider consideration of issues
such as regeneration. It is an opportunity to debate plans for
buildings in the context of their settings.
4.10 In the vast majority of cases the local
planning authority will decide whether to grant listed building
consent for the alteration, extension or demolition of listed
buildings. However, there are a small number of cases in which
an application for spot-listing is submitted at a late stage in
a planning inquiry being considered by the First Secretary of
State. This can be contentious and add cost and delay to the decision-making
process. Although the number of such cases is extremely small
(less than 1% of spot-listing cases), they have a disproportionate
effect on public perception.
4.11 In these circumstances, the listing
of buildings can be perceived as a hindrance to urban regeneration.
However, listing is a marker of significance, and indicates that
special consideration needs to be given to the future of that
building because of its special nature. It does not mean that
a building is frozen in time.
4.12 The public consultation paper on the
Heritage Protection Review published in July invited views on
whether the listing criteria should be limited to historical or
architectural significance, and whether there should be discretion
to decide whether a site or building should be added to the list,
if it is felt that some other protection such as development control
would more appropriate. The consultation period ended on 31 October,
and the responses to the consultation exercise are currently being
assessed.
4.13 In addition, one of the main thrusts
of the planning reforms outlined in the July 2002 Planning Statement
is that there should be greater stakeholder involvement at an
earlier stage in the planning process. English Heritage is routinely
consulted over the preparation of development plan documents and
this will continue under the new arrangements being proposed in
the Planning Bill. They can also expect to be consulted over the
preparation of the proposed Area Action Plans for Regeneration
and Conservation. Engaging English Heritage at these early, pre-planning
application, stages should give them sufficient opportunity to
identify early on those buildings that are likely to form part
of development schemes and which they may wish to consider adding
to the new List.
ISSUE 5: WHETHER ALL GOVERNMENT DEPARTMENTS
TAKE ADEQUATE ACCOUNT OF THE HISTORIC ENVIRONMENT
GREEN MINISTERS
5.1 The Government has an extensive historic
estate encompassing buildings and landscapes, buried remains and
historic areas and is committed to setting a good example in the
care of its estate.
5.2 Following the publication of A Force
for Our Future, the historic environment became part of the
remit of Ministers responsible for green issues ("Green Ministers").
As a result, the annual report on the state of Sustainable Development
in Government now contains information about the historic buildings
looked after by Departments across Government.
5.3 These Ministers are supported in this
work by the Biennial Conservation Report, which is published by
English Heritage's Government Historic Buildings Advisory Unit
(GHBAU). This provides a comprehensive overview of the condition
and prospects for historic buildings owned and managed by Government
and highlights when a building may be at risk. The GHBAU has also
published this year Protocol for the Care of the Government
Historic Estate 2003 to further support Government Departments
in the care of their historic estate by providing a model of good
practice.
ISSUE 6: WHAT FISCAL AND LEGISLATIVE CHANGES
SHOULD BE MADE?
FISCAL CHANGES
State Aid and the Historic Environment
6.1 The Directorate General Competition
of the European Commission approved this summer (13 May 2003),
under its State aid rules, our Historic Environment Regeneration
Scheme. The approval is intended to secure the repair, restoration
and rehabilitation of designated historic buildings, conservation
areas, ancient monuments and historic parks and gardens where
this would otherwise not happen through market forces alone.
6.2 This approval allows the RDAs, English
Heritage and local authorities to support the historic conservation
and repair of heritage assets by providing up to the full amount
of the additional heritage-related costs involved in carrying
out such repair, anywhere in the country. Beneficiaries of the
scheme may receive direct grant for the repair, restoration and
rehabilitation of an eligible heritage asset of up to 100% of
the eligible costs.
6.3 We are currently in the process of developing
guidance on the use of this approval, with assistance from English
Heritage, the RDAs and local authorities.
"Flat VAT": Vat and Repairs to Listed
Buildings
6.4 Currently, repairs and maintenance to
listed buildings attract VAT at 17.5%, while alterations requiring
listed building consent are zero-rated. English Heritage, on behalf
of the historic environment sector, has been lobbying Government
to seek an amendment to Annex H of the Sixth VAT Directive to
permit a reduced rate of VAT to be applied to repairs and maintenance
to all listed buildings. While the Government keeps all taxes
under review, we would need to see evidence that a reduced-rate
of VAT for all listed buildings would be the best-targeted and
most efficient way of providing support for the areas of built
heritage in greatest need.
Listed Places of Worship Grant Scheme
6.5 In 2001, the Chancellor of the Exchequer
introduced an interim grant scheme that returns in grant aid the
difference between a 5% VAT rate and the actual amount spent on
VAT on eligible repairs and maintenance to listed places of worship.
He announced in his 10 December pre-budget report that funding
is now in place until March 2006.
Legislative changes
6.6 Legislative changes are already being
taken forward in the Planning and Compulsory Purchase Bill currently
completing its passage through Parliament; these include proposals
for the introduction of Regional Spatial Strategies and Local
Development Frameworks (see paras 4.1-4.3). The current Review
of Heritage Protection being taken forward by DCMS may give rise
to further legislative changes.
Culture and Regeneration
6.7 The DCMS is also working on a project
to promote the contribution of culture, including the historic
environment, to regeneration. The aim is to identify how we can
better measure and demonstrate its effectiveness in the future.
6.8 We have plenty of anecdotal evidence
that culture contributes to economic, social and environmental
regeneration, but it is not generally recognised in the Government's
social policy and quality of life indicators. The DCMS will be
publishing a policy document early next year, promoting culture
led regeneration and setting out how to we will ensure our successes
are better measured in future.
6.9 It's about showing that we are no longer
preserving the past just for its own sake, but because of its
value in making people feel better about themselves and where
they live, because of its worth in creating sustainable communities
in which people enjoy living and working.
| 
