Memorandum submitted by the Borough of
Telford & Wrekin
SUMMARY
This paper is a submission by the Borough of
Telford & Wrekin to the above Inquiry by the Culture, Media
and Sport Committee. The views submitted relate only to World
Heritage matters.
In summary, the Council's view is that nationally
and locally much more can and should be done to fulfil the obligations
placed upon the Government by its ratification of the 1972 UNESCO
World Heritage Convention. By definition, World Heritage Sites
are the most important natural and cultural sites within the world
and their protection, management and promotion should reflect
this.
The paper suggests that steps should be taken
to give WHSs in the UK statutory protection and also to address
with urgency major risks which threaten the long term future of
Sites, for example land instability. It is also suggested that
the respective roles of Government, Site owners, local authorities
and other stakeholders are more clearly identified and recognised
and that the necessary resources are made available to enable
those roles to be undertaken effectively.
Finally, much more can be done to increase public
awareness and appreciation of World Heritage Sites and, this in
turn, will help to enhance the contribution of local communities
to the protection of the Sites.
INTRODUCTION
1. The Borough of Telford & Wrekin welcomes
the Culture, Media and Sport Select Committee inquiry into Protecting,
Preserving and Making Accessible Our Nation's Heritage. The Borough
incorporates one of Britain's major heritage sites, the World
Heritage Site of the Ironbridge Gorge, the cradle of the Industrial
Revolution. Our submission reflects our concerns about the management
of World Heritage Sites and the need for greater support and funding
from the Government in recognition of the national contribution
that these Sites make. The submission also highlights the importance
of increasing the statutory recognition of World Heritage within
legislation. World Heritage Sites are an important contributor
to the national economy, to education and to creativity across
Britain and should be recognised as such through greater national
support.
BACKGROUND
2. The Borough of Telford and Wrekin is
a unitary local authority, located in the West Midlands, which
covers the New Town of Telford, including the Ironbridge Gorge
and a number of other settlements. The Ironbridge Gorge was designated
a World Heritage Site (WHS) in 1986 and encloses 550 hectares.
The Site was recognised for its significance in the development
of the Industrial Revolution, particularly in the iron and coal
industries. The WHS boundary is shared with the Severn Gorge Conservation
Area, which was designated in 1980. As with World Heritage Sites
in Edinburgh and Bath, Ironbridge Gorge is a living, working
community, home to some 4,000 residents (in the villages of Coalbrookdale,
Ironbridge, Coalport and Jackfield), small businesses and a vibrant
hotel and restaurant sector. The Site, which incorporates a large
number of museums, is a major economic driver for the area and
is one of the West Midland's leading visitor attractions.
3. The landscape of the Ironbridge Gorge
is rich in evidence of the Industrial Revolution. These sites
are carefully preserved, along with supplementary documentary
and oral sources, which are held within the Ironbridge Gorge Museums.
A number of collections are also held within the WHS. The Site's
townscape has also been sympathetically restored, along with the
preservation of the Gorge's natural heritage. The Site sustains
hundreds of jobs in the area and attracts some 750,000 visitors
per annum. The Site is also an important teaching tool for a range
of subjects including history, geography, science, design and
citizenship and it has become an important National Education
Centre.
4. Management of the WHS is divided between
a range of organisations, though the Borough of Telford and Wrekin
has taken the lead in terms of the sustainable development and
management of the WHS. The key stakeholder agencies and organisations
involved in the management of the Site include:
— The Environment Agency;
— Borough of Telford & Wrekin;
— Shropshire County Council;
— Bridgnorth District Council;
— The Ironbridge Gorge Museum Trust;
— The Ironbridge Institute;
— Severn Gorge Countryside Trust;
— Ironbridge Chamber of Trade.
5. The WHS has a Management Plan and also
has a designated officer to oversee the implementation of the
Plan. The multiple nature of the agencies involved brings strengths
and weaknesses to the management of the Site and we wish to address
some of these issues in this submission.
The Role of Government Agencies
6. There are a number of Government departments
and agencies with an interest in heritage and World Heritage Site
issues—particularly those Sites in an urban or post-industrial
setting. However, the input from the Government in terms of resources
and guidance is limited, and in practice, it often falls to local
authorities and the local community to take the lead role in terms
of resourcing the management and protection of WHSs. The Borough
of Telford & Wrekin would much rather see the Government recognising
the huge contribution that World Heritage Sites play in terms
of tourism, education, economic benefits and shaping the very
landscape of Britain and therefore to take a far more strategic
and practical view regarding how it can contribute to the protection,
management and promotion of WHSs.
7. The Borough of Telford & Wrekin would
advocate that, as in other countries, DCMS should take a lead
role and have a more realistic budget for this work. This would
recognise that local authorities do not have the financial resources
(and sometimes do not have access to the necessary skills) to
deliver major conservation and protection measures. In the case
of Ironbridge Gorge, this includes flood defence and land slippage
remediation measures, which would cost in excess of £33 million.
Roles and Responsibilities for Local Government
and Other Stakeholders
8. World Heritage Sites, particularly those
in an urban or semi-urban environment, often involve large numbers
of statutory bodies, as well as strong community and heritage
bodies. It is important that Management Plans reflect this diversity
and acknowledge the benefits that each can bring to sustaining
the WHS. As we have indicated above, we believe that central Government
could and should play a stronger role than they have done so to
date.
9. In the case of the Borough of Telford
& Wrekin, the local authority is responsible for the full
range of functions and services within the Ironbridge Gorge World
Heritage Site. In order to ensure that the site functions as a
sustainable community and can also accommodate large numbers of
visitors as well as preserving the site's archaeology and townscape,
the local authority has had to divert a considerable level of
resource to the management of the WHS.
The Forthcoming Heritage White Paper
10. The publication of a White Paper by
DCMS affords an important opportunity for the Government to address
the funding and management of World Heritage Sites. We would hope
that the Government would take this opportunity to set out a clear
management and funding structure for World Heritage Sites across
England, with corresponding policies in Scotland, Wales and Northern
Ireland.
11. We request also that the White Paper
should introduce a new statutory designation for World Heritage
Sites which would reinforce the significance of such sites and
the importance of ensuring their protection. By definition, World
Heritage Sites are of Outstanding Universal Value, that is, their
value is for humankind rather than a single nation, region or
community. These sites therefore sit at the top of the "heritage
hierarchy". Despite this, within the UK, at present, World
Heritage Sites have no statutory recognition within legislation,
unlike for example, National Parks or Areas of Outstanding Natural
Beauty.
Planning Policy
12. WHS areas in England are covered by
a multitude of Planning Policy Guidance Notes (PPGs). In the case
of Ironbridge Gorge, these include PPG9 (Nature Conservation),
PPG13 (Transport), PPG15 (Planning and the Historic Environment),
PPG16 (Archaeology) and PPG21 (Tourism). PPG15 sets out the role
of local authorities in a planning context and instructs them
to develop specific policies to protect World Heritage Sites.
The WHS is also covered by Local Plans and Regional Plans for
the area. With such a multitude of Plans and Guidance covering
relatively small areas, clearer guidance and a rationalisation
of guidance would assist in the delivery of site management plans.
Planning policy should give special protection to World Heritage
Sites, but also recognise that many operate as functioning, sustainable
communities. It is important that local authorities have the capacity
and finances to ensure these planning criteria are being met.
As already stated, the forthcoming Heritage White Paper presents
an opportunity to clarify the statutory status of WHSs.
Conservation Skills
13. In view of the unique historical significance
of WHSs, it is vital that the highest conservation standards are
applied to the sites both in relation to the preservation and
protection of existing features and also in relation to new development
within the sites. Local authorities often do not have the full
range of conservation skills and resources required to maintain
World Heritage Sites to this standard. Buying such skills in can
be costly and we would welcome greater acknowledgement of the
costs involved to local authorities and other bodies to undertake
this work.
Funding
14. The Government should recognise the
national value placed on World Heritage Sites and their contribution
to national economy, learning, consciousness and creativity. The
Borough of Telford & Wrekin believes that DCMS, as the lead
Department for the management and oversight of World Heritage
Sites, should make finance available to bodies implementing WHS
Management Plans. This would ensure that their work is not hindered
by short term budget issues and can deliver costly major infrastructure
or preservation work.
Access
15. Access is an important element of World
Heritage Sites. We believe that it is vital that, in co-ordination
with local communities and subject to the protection of the heritage,
World Heritage Sites remain as accessible (physically and intellectually)
as possible, and moreover, should function as thriving, sustainable
communities wherever practicable.
WHS Awareness Raising
16. Within the UK, World Heritage is not
a well known or widely recognised concept or "brand".
It is one of the obligations of the WH Convention to present WHS
and to inform and educate communities about the concept of World
Heritage. This Council is of the view that more could be done
at national, regional and local levels to achieve this. Locally,
the Borough of Telford & Wrekin seeks to raise awareness through
a variety of means, including newsletters, events, schools work
etc. This work would be assisted and strengthened by more high
profile promotional activity at national level. It is considered
that if more people understood the concept of World Heritage and
the importance of World Heritage Sites, this would stimulate greater
civic pride in these areas and then, in turn, better standards
of care and protection.
World Heritage Sites at risk
17. There are a number of WHSs within the
UK where the long term future of the Sites is under threat. For
example, the affects of land instability, coastal erosion, flooding
etc. Dealing with these threats is generally beyond the means
of the local communities within which these Sites are located.
The State Party (national government) has accepted the responsibility
for ensuring the ongoing protection of World Heritage within its
territory and therefore the primary responsibility for ensuring
the protection of these Sites should rest with the State Party,
working closely with Site owners, local authorities and local
organisations.
18. The Ironbridge Gorge WHS is at risk
because of the inter-related threats of flooding and land instability.
This Council is working with national, regional and local partners
to assemble a funding package to provide a long-term solution
to these problems. It is considered that the DCMS, the Government
Department with primary responsibility for WH, could be more proactive
in working with other Government Departments to seek and identify
a solution to the threats facing the Ironbridge Gorge.
CONCLUSION
19. World Heritage Sites are unique, irreplaceable
assets. Protecting their long term future for the benefit and
enjoyment of present and future generations is a national responsibility.
The cost of such protection will be considerable—but so
will the benefits, including the protection of unique historical
environments and vibrant tourist industries, as well as the development
of sustainable communities within their boundaries. The Borough
believes that the Government should recognise its role as national
champion of World Heritage Sites and facilitate their protection
with additional resources and by playing a more active role in
safeguarding their future.
19 January 2006
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