Memorandum submitted by Wessex Archaeology
INTRODUCTION
1. Wessex Archaeology is a multi-disciplinary
charitable company working across the heritage sector, one of
the largest practices in Europe. Provision of a comprehensive
range of heritage services to local, national and international
clients, including Governments, across the UK and abroad enables
us to fund our educational objects "to promote the education
of the public in the subjects of arts, culture, heritage and science
through the pursuit of archaeology". In addition to providing
heritage and education services, we also participate in, amongst
other areas, the development of sector policy, strategic development
and standards, through supporting and leading national cultural
and heritage organisations (such as the Institute of Field Archaeologists
and the UK National Commission for UNESCO Culture Committee).
2. We warmly welcome the CMS Select Committee
Inquiry on our nation's heritage, which offers the first opportunity
for independent review of Government, and sector, performance
on the actions outlined in The Historic Environment: A Force for
our Future—(published in 2001) which remains the current
Government policy. The scope of the Inquiry, covering management
of the historic environment, roles, skills & resources, museums
and most importantly access and public engagement, is particularly
welcome.
3. The UK has a very rich and diverse cultural
heritage which needs protection balanced with public accessibility
and sound management of change. Much of our heritage is of international
significance, as well as of great importance to individual local
communities. A key issue is the promotion of a practicable and
integrated approach to our heritage across Government and the
sector. We look for better and more widespread recognition of
the value of heritage across Government and better recognition
of the public benefit of heritage in society today.
4. As a final general introductory comment,
we would encourage the Inquiry to include consideration of the
UK's international responsibilities to heritage and its leadership
role, and the importance of UK expertise abroad. The UK is, and
is recognised as a key player in international heritage matters
and has much to offer globally in the sustainable management of
cultural heritage, including capacity-building and standard-setting.
WHAT THE
DEPARTMENT FOR
CULTURE, MEDIA
AND SPORT
SHOULD IDENTIFY
AS PRIORITIES
IN THE
FORTHCOMING HERITAGE
WHITE PAPER
5. A key priority is the reform of the present
regimes for protection of our nation's heritage, from various
forms of registers of historic assets into a unified system encompassing
scheduled monuments and listed buildings. Such a unified system
would better reflect the need for an holistic approach to understanding,
protecting and managing the historic environment and provide more
clarity and transparency. The reform should include consideration
of the system of class consents, where flaws include the continuing
damage to important archaeological sites such as Verulamium through
inappropriate agricultural practice,
6. The White Paper provides an opportunity
for the enhancement of existing national and local registers—Sites
and Monuments Records—to a more comprehensive system of
Historic Environment Records (HER), reflecting the need for holistic
management of the historic environment in which we live and providing
a greater degree of public benefit, including public access. These
HERs should be made statutory, and conform to a standard level
of content and accessibility across the country. These facilities
form a critical foundation for decision-making in the planning
process and as a portal for public access.
7. The timing of the White Paper is important
in terms of the review of non-statutory Planning Policy Guidance,
which can provide a framework to ensure best practice in the quality
of design, delivery and communication of development-lead historic
environment investigations. The present guidance (PPG 15 and PPG
16) works reasonably well, but there is an opportunity to ensure
greater public benefit through:
— requirements for better public access
and involvement, where practicable and safe in fieldwork, and
including for example the provision of more "popular"
literature and web-based information;
— clearer requirements for the storage,
conservation and display (or access to) material recovered and
lodged;
— encouraging local planning authorities,
and national bodies, to specify a better and more consistent quality
of archaeological work carried out in accordance with accredited
standards and lead by accredited organisations or individuals.
This approach (investigation, recording and accessibility) should
apply equally to investigations of below-ground remains and to
historic buildings and landscapes;
— encouraging a more integrated approach
to the designation of Conservation Areas;
— encouraging and resourcing the synthesis
of the results of development-lead work (which are primarily descriptive
and site focused) to feed back into the management system and
to make general information more readily accessible.
The above measures, and any system of managing
development with protection of the historic environment and our
heritage must provide for a balanced approach which is reasonable,
robust and sustainable.
8. The White Paper should also address the
critical matter of resourcing, (financial and skills) the implementation
of reformed legislation and the planning system, at both national
and local levels, which is a cause for concern. A reformed approach,
in the public interest, will require strengthened skills in community
involvement and participation by local authorities and building
capacity of heritage groups. It is also an opportunity to review
the role, contribution and capacity of the voluntary sector in
an inclusive approach to managing our heritage.
THE REMIT
AND EFFECTIVENESS
OF DCMS, ENGLISH
HERITAGE AND
OTHER RELEVANT
ORGANISATIONS IN
REPRESENTING HERITAGE
INTERESTS INSIDE
AND OUTSIDE
GOVERNMENT
9. Our cultural heritage, and the historic
environment which is part of it, are central to the social and
economic fabric of our nation, in providing, for example, community
identity and cohesion, enhancing quality of life, and contributing
to the economy through cultural tourism. Heritage should be at
the centre of government policy, local and national, and represent
a positive driver for change, and should not be seen as an impediment.
10. Heritage is central to many aspects
of our life and hence to many Government Departments. It is imperative
that it is championed more effectively and more consistently across
all sectors, and the role of DCMS is critical in this respect.
Whilst there have been many positive changes, for example within
DEFRA, there is a strong case for some form of high-level Inter-Departmental
Committee on the stewardship of heritage and historic environment,
to support an integrated approach to management.
11. The role and remit of the DCMS is wide,
appropriately reflecting the diverse nature of our heritage and
social fabric. But we would look for a more effective and more
public role as champion within Government, and a more effective
engagement with the professional and voluntary sectors on policy
and implementation. There is much support for the work of DCMS,
and more advantage could be taken of the expertise within the
wider sector. We would look for a more inclusive approach and
more consultation with the wider heritage sector, to provide support
and initiative. The DCMS, in liaison with other bodies such as
the UK National Commission for UNESCO, also has a key role to
play in the recognition of the importance of the intangible heritage,
and recent projects such as those by Culture Online are to be
welcomed in this respect.
12. English Heritage appears over recent
times to have been distracted by internal reform and re-structuring,
and its reputation has suffered accordingly, which is unfortunate.
It has a key role in policy, co-ordination and standard-setting,
as well as in public education and access, but there is some confusion
about the new structures, the relationship between the centre
and the regions. As a result the organisation is not seen as a
strong sector leader, particularly in relation to engaging the
professional and voluntary sectors. One recent example was the
lack of consultation in the development of the recently-published
Research Strategy, which was launched in late 2005. There appears
to have been little or no preliminary consultation, and there
was a strong emphasis on a somewhat inward-looking approach for
the future, giving little cognisance to the expertise and strengths
of the wider professional, commercial and voluntary sectors, which
can support English Heritage and Government in achieving their
goals.
13. We would look for a stronger approach
from English Heritage in supporting the wider sector, encouraging
its development and contribution to policy development. This could
include more open meetings and seminars, and more presentation
of policy proposals in regional meetings (such as the recent presentations
on the Heritage Protection Review). In summary we seek a more
inclusive approach to policy development and research strategy,
which benefits from a wide participation particularly from those
working at "grassroots" level.
THE BALANCE
BETWEEN HERITAGE
AND DEVELOPMENT
NEEDS IN
PLANNING POLICY
14. Our main concern is the apparent ongoing
tension between preserving and protecting our heritage assets
and promoting development and social regeneration, where heritage
is seen as a barrier to change, not as a central driver for change.
Broadly the current system for balancing the needs of protection
and preservation with development works, though there is potential
to improve the system with the new Planning Policy Statement for
the Historic Environment. The system fails where there are extreme
views (on either side) which are inflexible, or inconsistent approaches.
15. There needs to be a more mature debate
and promotion of understanding of the benefits of heritage and
historic assets to social and economic regeneration. For example
adaptive uses of historic assets provide a sense of stability
and continuity for communities as well as providing new resources
for their use. This brings us back to the point of heritage as
central to change rather than peripheral as it can sometimes be
seen.
ACCESS TO
HERITAGE AND
THE POSITION
OF HERITAGE
AS A
CULTURAL ASSET
IN THE
COMMUNITY
16. Wessex Archaeology is a charitable company,
working to promote the education of the public in arts, culture,
heritage and science through the process of archaeology. Public
access to heritage and historic assets and information are critical
in our activities. Archaeological investigations and research
are only valid if its results are made available to a wider public
audience and public benefits flow from it clearly and transparently.
The widespread interest in our heritage, promoted by significant
media coverage reflects its importance to the public.
19. The planning system should promote better
public access to local (and national) discoveries, and the new
PPS should provide strong guidance on the critical importance
of communicating results to the public. It should require practitioners
and developers to make information accessible at the appropriate
time and emphasise the benefits of this approach, of constructive
partnerships, between heritage conservation and development.
20. Archaeology—the process of understanding
about past peoples and their landscapes, of our current (and future)
environment—has much to contribute to individual and community
identity and social cohesion. We strongly support moves to promote
learning outside the classroom, and would also urge a greater
use of heritage and historic assets within the curriculum. The
sensitisation of young people and also immigrants to the heritage
around them is key to the protection and appreciation of our heritage
and environment in the future. But the provision of continuing
access through life-long learning is also important, and the apparent
decline of archaeology and heritage courses for adults is a matter
of concern.
21. Government needs to promote and support
heritage communities in providing training for teachers on how
the heritage and historic environment can be used as a key resource
for learning and enhancing quality of life. It should also continue
to emphasise the economic, social, educative, community and regenerative
impacts which heritage projects can deliver.
FUNDING, WITH
PARTICULAR REFERENCE
TO THE
ADEQUACY OF
THE BUDGET
FOR ENGLISH
HERITAGE AND
FOR MUSEUMS
AND GALLERIES,
THE IMPACT
OF THE
LONDON 2012 OLYMPICS
ON LOTTERY
FUNDING FOR
HERITAGE PROJECTS,
AND FORTHCOMING
DECISIONS ON
THE SHARING
OF FUNDS
FROM LOTTERY
SOURCES BETWEEN
GOOD CAUSES
22. Funding remains a central issue for
the whole sector. We are concerned to find solutions to alleviate
pressure on funding including that of the Heritage Lottery Fund,
and the potential diversion of funds from heritage to the Olympics.
The HLF has been fundamental in promoting community access to
heritage and has provide great public benefit. To this end the
HLF share of funds for heritage projects should be protected,
as should direct Government funding for heritage matters. Consideration
should be given to resources for capacity-building as a priority
for maintaining standards in policy making and practice.
23. Funding for museums (local and national)
is critical and stretched. The impacts of the planning guidance
on museums have not been fully appreciated, and there is a substantive
issue of the costs of storage on both museums and heritage service
providers. Such material also needs to be accessible to the public.
It would be an appropriate time for an independent review of the
state of public collections and their relationship to historic
environment stewardship in contemporary society.
WHAT THE
ROLES AND
RESPONSIBILITIES SHOULD
BE FOR
ENGLISH HERITAGE,
THE HERITAGE
LOTTERY FUND,
LOCAL AUTHORITIES,
MUSEUMS AND
GALLERIES, CHARITABLE
AND OTHER
NON-GOVERNMENTAL
ORGANISATIONS IN
MAINTAINING THE
NATION'S
HERITAGE
24. Having restructured and recently published
its strategic plan, it is important for English Heritage to have
a period of stability to deliver its core strategic objectives
with adequate resources in place to do so. English Heritage's
key roles are in policy-making, advice to Government and standard-setting
as well as providing education and access for the public. English
Heritage has a good reputation for leadership in the international
field, which should be maintained (though not at a cost to its
national responsibility), and which should also promote the expertise
available in England and the UK generally. It should take advantage
of the range of sector skills in developing policy and practice
using an inclusive consultative approach. It should provide support
to the profession and voluntary sector in developing those skills
and sector capacity.
25. The Heritage Lottery should retain its
separate identity and share of the Lottery fund for heritage projects,
where it has a very sound track record and has successfully engaged
public participation through supporting archaeology and historic
environment works.
26. The voluntary sector and private sector
have crucial roles to play in complementing the work of English
Heritage and the HLF, not least in engaging with a modernised
planning and heritage management system. These sectors operate
at grassroots level and are sensitive to public opinion and engagement
with heritage matters. They are key links between Government policy
and implementation, and should be encouraged and supported by
Government, English Heritage and the HLF. A more inclusive working
environment needs to be established.
27. The role of owners of historic assets
should also be considered. A substantial amount of the nation's
built heritage is owned and managed by them and they also need
to be engaged with a modernised system, through participation
in policy development and by promoting understanding of the benefits
of active and sustainable management.
WHETHER THERE
IS AN
ADEQUATE SUPPLY
OF PROFESSIONALS
WITH CONSERVATION
SKILLS; THE
PRIORITY PLACED
BY PLANNING
AUTHORITIES ON
CONSERVATION; AND
MEANS OF
MAKING CONSERVATION
EXPERTISE MORE
ACCESSIBLE TO
PLANNING OFFICERS,
COUNCILLORS AND
THE GENERAL
PUBLIC
28. This is an issue which is equally applicable
to the whole heritage sector, not just to those directly concerned
with the management of built heritage. There are shortfalls in
capacity and skills deficits across the sector, particularly at
local authority level, as recent surveys have shown (Heritage
Links 2005). Bodies such as the Archaeology Training Forum, the
Institute of Field Archaeologists, English Heritage, and the Sector
Skills Council have begun to address this, but the demands of
new standards of delivery for local services will make this shortfall
more acute.
29. Careers in the heritage sector are seen
to be hampered by poor pay and conditions and lack of status,
which could be seen at least in part as reflecting the importance
placed on heritage in policy-making. Some form of effective and
robust continuing professional development programme for all those
working in the heritage and historic environment sectors could
be considered as a matter of urgency. Skills' building in local
communities is also an essential complementary move, and may be
best achieved by local professional and voluntary sector groups.
The support of the national agencies will be essential to the
work of professional bodies and the voluntary sector in achieving
these aims.
18 January 2006
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