Supplementary Planning Document
Date:October 2013
Table of Contents
1.Introduction:
2.Policy Context
3.Document Status
4.Consultation under Regulations 12(a) and 35
5.Selection Criteria
6.Methodology for Assessing Assets
7.Process
8.Implications for Development Management
9.Implications for Building Control
Appendix A: The Character of the Borough of Wellingborough
A1. Materials
Stone
Brick
Other Materials
Roofing
A2. Boot & Shoe Industries:
The boot and shoe factory building
A3. 19th century urban development
A4. The Wells of Wellingborough
APPENDIX B: LOCAL LIST NOMINATION FORM
Appendix C : Advisory Panel Terms of Reference
Appendix D – List of Consultees
1.Introduction:
1.1This Supplementary Planning Document (SPD) provides guidance on the Borough of Wellingborough’s Local List of Heritage Assets.
1.2This document is being formulated in order to recognise local heritage assets in the Borough of Wellingborough. This will help inform planning decisions and related policy documents including Conservation Area Appraisals.
1.3Grade III listings were a non-statutory local list of heritage assets that was abolished during the 1970’s.This document aims tofill that role with a Local List of Heritage Assets to identify and record the value of local heritage assets within the Borough.
1.4The Local List provides an opportunity for a community and a local authority to jointly identify heritage assets that are valued as a distinctive element of the local historic environment, contributing to its character and appearance and local interest.
1.5It provides clarity on the location and significance of the assetsso that the desirability of their conservation and enhancement can be taken into account.
1.6The local list also aims to provide the basis for a positive strategy for the conservation and enjoyment of the historic environment, including heritage assets most at risk through neglect, decay or other threats.
The Value of Heritage
1.7Heritage Assets are an irreplaceable resource which should be conserved in a manner appropriate to their significance.
1.8The National Planning Policy Framework establishes a presumption in favour of sustainable development. English Heritage states that heritage assets are at the heart of sustainable development;[1] that heritage can help the UK economy grow faster, can make significant contribution to existing economic activity and is not a barrier to growth.[2]
Economic Value
1.9Heritage is a key driver to the tourism economy, which has grown from 675 million visits in 1990 to 940 million in 2011 with over half visiting a heritage site.[3] Heritage tourism is also a popular pursuit for residents, with 80% of visits to heritage assets being made by domestic tourists.[4]
1.10It is estimated that UK Heritage tourism directly accounts for £7.4bn of GDP and creates employment for 113,000 people.[5] This is larger than the UK film industry (£3.3bn) and motor vehicle manufacturing industry (£5.5bn). Research shows that historic visitor attractions support as many jobs in the surrounding economy as they do on site.[6]
1.11Restoration also supports local skilled jobs to restore fabric rather than import new materials, with investment in repair and maintenance producing 55% more direct construction labour input than new-build.[7]
1.12Refurbishing a building can save money, avoid waste and reduce the need for new building materials. These savings can help provide affordable space for small to medium sized enterprises in commercial zones. Heritage-led regeneration of the Jewellery Quarter in Birmingham has,for example helped protect 6,000 jobsand 1,500 businesses. Research shows that one in four businesses agree that the historic environment is an important factor in deciding where to locate.[8]
1.13Re-use can also protect workmanship and architecture of a quality no longer available to house builders. Research shows, as a result, that historic homes can attract an average of 20% premium versus new build equivalents[9].
Local Belonging / Sense of Place
1.14In 2009, English Heritage commissioned NewcastleUniversity and the Centre of Urban and Regional Studies to undertake a study exploring the impact of living in historic areas on people’s sense of local belonging or sense of place.[10]
1.15The study found that adults living in historic areas had a significantly stronger sense of place than those that do not, even after controlling for other socio-economic factors known to impact on sense of belonging. It showed a positive impact of the historic environment for adults regardless of their demographics, demonstrating a universal value of heritage, and distinctive architecture is an important factor which skilled workers consider when choosing where to work and live.[11]
PRIDE Objectives
1.16The Local List will contribute to the Borough Council’s Mission Statement ‘Making Wellingborough a place to be proud of and the associated P.R.I.D.E. objectives by encouraging a planning service responsive to local heritage priorities, promotion of high quality growth alongside protecting andenhancing the environment.
1.17It is hoped that recognition of the unique qualities of a heritage asset and inclusion on the Local List will encourage owners to take pride in the care of their property.
2.Policy Context
National Policies
2.1Government policy for heritage protection is contained in the National Planning Policy Planning Framework (NPPF).[12] It states that local planning authorities should set out in their Local Plan a positive strategy for heritage assets most at risk through neglect, decay or other threats, recognising that heritage assets are irreplaceable and should be conserved in a manner appropriate to their significance. The creation of a local list is consistent with that aim.
2.2Heritage assets are defined in Annexe 2 of the NPPF as:
“A building, monument, site, place, area or landscape identified as having a degree of significance meriting consideration in planning decisions, because of its heritage interest. Heritage assets include designated heritage assets and assets identified by the local planning authority (including local listing)”.
2.3The significance of a heritage asset can be wider than the traditional focus on historic and architectural interest and character and appearance.
2.4Assets may also gain their significance from economic, social and environmental factors, which may include culture, social history, patterns of settlement and local figures.
Local Policies
2.5The North Northamptonshire Core Spatial Strategy (CSS) is the principal Development Planning Document guiding development within the Borough. This sets out a vision for the delivery of high quality development and the protection and enhancement of valuable built and natural resources. It also seeks to enhance and manage the built and natural resources of the area, retaining and enhancing local character and distinctiveness. The SPD, once adopted, will supplement CSS Policy 13 (specifically parts (h), (i)and (o).
2.6The 2008 CSS is currently under review. The pre-submission draft Core Strategy review is likely to be published for formal statutory consultation during early2014. This will be followed by an Independent Examination and it is anticipated that the Core Strategy review will be adopted by the end of 2014.
3.Document Status
3.1This SPD has been prepared under the 2004 Planning and Compulsory Purchase Act (the “2004 Act”).[13] The Local List SPD covers the whole of the Borough of Wellingborough.
3.2The Local List SPD was prepared in accordance with the Town and Country Planning (Local Planning) (England) Regulations 2012 (Statutory Instrument 2012 No. 767) (the “2012 Regulations”)[14], which sets out the minimum requirements for the preparation of an SPD. It is essential for these requirements to be met in order for this document to be classified as an SPD, thereby supplementing the statutory Local Plans for the Borough of Wellingborough.The specific preparation process for the Local List SPD is directed by 2012 Regulations 12-14 and 35. The process also needs to have regard to the North Northamptonshire Statement of Community Involvement (SCI), adopted October 2006.[15]
3.3This SPD will supplement policies within the North Northamptonshire Core Spatial Strategy (CSS), adopted June 2008,[16].andwill be a material consideration in planning decisions.
4.Consultation under Regulations 12(a) and 35
4.1.The Consultation Draft was approved for a 6-week period of public consultation by the Development Committee on 11th June 2013. The consultation period was from 5th July to 16th August 2013. A list of Consultees (consultation bodies and individuals) is set out in Appendix C.A summary of the representations received from the six weeks consultation and the Council’s responses to these are set out in a separate consultation statement available on the website together with the adoption statement.
5.Selection Criteria
5.1.The following criteria shall have been compiled to reflect the Department of Culture, Media and Sport’s“Principles of Selection for Listing Buildings”[17]and English Heritage guidance for local lists.[18]
5.2.The criteria are:Age, Design, History, Archaeology and Condition.In addition to these, guidance for selecting specific types of building is published by English Heritage[19]and Appendix A comprises a general overview of the Borough’s characteristics.
5.3.Inclusion within the Local List may be justified by satisfaction of at least one of the following criteria. The satisfaction of multiple criteria will lend weight to listing.
Age
5.4The age of an asset may be an important criterion because it is indicative of the asset’s rarity, and the older an asset is, and the fewer surviving examples of its kind, the more likely it is to have localhistoric interest.
5.5The weight attributed to an age range can be adjusted to take into account distinctive local characteristics.
5.6The following chronology is meant as a guide to assessment; the dates are indications of likely periods of interest and are not absolute. The relevance of age and rarity will vary according to the particular type of asset because for some types, dates, other than those outlined below are of significance. However, the general principles used are the following:
Age criteria for historic buildings:
- before 1700, all buildings that contain a significant proportion of their original fabric are listed;
- from 1700 to 1840, most buildings are listed that contain a significant proportion of their original fabric;
- after 1840, because of the greatly increased number of buildings erected and the much larger numbers that have survived, progressively greater selection is necessary and assets should be of excellent quality;
- particularly careful selection is required for buildings from the period after 1945. Assets should be of outstanding quality;
- buildings of less than 30 years old are normally listed only if they are of outstanding quality and under threat.
Age Criteria for Landscape Features
- Sites formed before 1750 where at least a proportion of the original layout is still in evidence
- Sites laid out between 1750 and 1840 where enough of the layout survives to reflect the original design
- Sites with a main phase of development post-1840 which are of localinterest and relatively intact, the degree of required localinterest rising as the site becomes closer in time
- Particularly careful selection is required for sites from the period after 1945
- Sites of less than 30 years old are normally registered only if they are of outstanding quality and under threat
5.7For many people, the mention of the words ‘landscape’ or ‘garden’ conjures a vision of floral beauty or culinary possibilities. Whilst we appreciate good gardening, when compiling the list, we look at the more permanent elements in the landscape such as landform, built structures, walks and rides, water features, structural shrubberies, hedges and trees. We do not focus on the shorter-lived plantings of herbaceous perennials, annuals, roses and most shrubs.
Design
5.8To be of localdesign interest, a heritage asset must be of importance in its architectural, landscape or artistic design and decoration and craftsmanship.Localinterest may also apply to locally important examples of particular heritage asset types and techniques, including the local vernacular and technological innovation or virtuosity.
5.9The appearance of an asset both its intrinsic design merit and any group value, i.e. grouping of assets with a clear visual, design or historic relationship is a key consideration in judging listing proposals, and the intrinsic design value of an asset will be considered in relation to local styles, materials or any other distinctive local characteristic.
5.10The localinterest of a heritage asset will not always be reflected in obvious external visual quality. Assets can be important for reasons of technological innovation, or as illustrating historic interest which may or may not have external visual quality.
History
5.11To be of localhistoric interest, an asset must illustrate important aspects of the local social, economic, cultural or military history. They may have close historic associations with important people, events or customs or by reason of being a local landmark
5.12They should be perceived as a source of local identity, distinctiveness, social interaction and coherence, often residing in intangible aspects of heritage contributing to the “collective memory” of a place.
5.13There should normally be some quality of interest in the physical fabric of the asset to justify listing.
Archaeology
5.14Archaeological assets of local significance may be considered for the local list if the evidence base is sufficiently compelling and if a distinct area can be identified. However, only deliberately created structures, features and remains can be listed, as is the case with Scheduled Ancient Monuments.
5.15The majority of archaeological sites and landscapes remain undesignated. Even in cases where they are added to a local heritage list, their interest and significance may be of national or regional importance.
5.16When assessing the local value of archaeological sites, regard shall be paid to the selection guides from the Department of Culture Media and Sport (DCMS)[20].
5.17The criteria, shown below (not in any order of ranking) isadapted from DCMS selection criteria for Scheduled Ancient Monuments[21]. It should be used for assessing the local importance of a monument and considering whether listing is appropriate. They should not be regarded as definitive; but as indicators which contribute to a wider judgment based on the individual circumstances of a case.
5.18Criteria for listing locally important archaeology
- Period: all types of monuments that characterise a category or period should be considered for preservation.
- Rarity: there are some monument categories which are so scarce that all surviving examples which still retain some archaeological potential should be preserved. In general, however, a selection must be made which portrays the typical and commonplace as well as the rare. This process should take account of all aspects ofthe distribution of a particular class of monument, both in a national, regional and localcontext.
- Documentation: the significance of a monument may be enhanced by the existence of records of previous investigation or, in the case of more recent monuments, by the supporting evidence of contemporary written or drawn records. Conversely, the absence of documentation can make the potential of a monument more important as the only means of developing our understanding.
- Group Value: the value of a single monument (such as a field system) may be greatly enhanced by its association with related contemporary monuments (such as a settlement and cemetery) or with monuments of different periods. In some cases, it is preferable to protect the complete group of monuments, including associated and adjacent land, rather than to protect isolated monuments within the group.
- Survival / Condition: the survival of a monument's archaeological potential both above and below ground is a particularly important consideration and should be assessed in relation to its present condition and surviving features.
- Fragility / Vulnerability: highly important archaeological evidence from some field monuments can be destroyed by a single ploughing or unsympathetic treatment; vulnerable monuments of this nature would particularly benefit from designation. There are also existing standing structures of particular form or complexity whose value can again be severely reduced by neglect or careless treatment, and which are similarly well suited forlisting.
- Diversity: some monuments may be selected because they possess a combination of high quality features, others because of a single important attribute.
- Potential: on occasion, the nature of the evidence cannot be specified precisely, but it may still be possible to document reasons anticipating its existence and importance and so to demonstrate the justification for listing. The greater the likelihood thatsuch evidence will be revealed through archaeological investigation, the stronger will be the justification for listing.
6.Methodology for Assessing Assets
Condition
6.1The condition and state of repair of a heritage asset is not a relevant consideration when deciding whether a heritage asset meets the test of local interest. Repair issues should however be noted to inform potential management proposals. Assets shall be considered in poor, acceptable or good condition. Those assets at danger of further deterioration may be considered to be at risk. Lack of occupancy can contribute to whether an asset is considered at risk.
Alterations
6.2Modern interventions can be sympathetic, neutral or detract from the localinterest of a heritage asset. Alterations should be noted.A value judgement should then be made as to whether enough of the asset’s local interest remains to justify listing.
Selectivity
6.3Where a heritage asset qualifies for listing primarily on the strength of its localinterest, the fact that there are other heritage assets of similar quality elsewhere is not likely to be a major consideration. However, a heritage asset may be listed primarily because it represents a particular historical type in order to ensure that examples of such a type are preserved.
6.4Listing in these circumstances is largely a comparative exercise and needs to be selective where a substantial number of heritage assets of a similar type and quality survive.
6.5Selection of buildings should also be led by benchmarking against the quality of those heritage assets previously considered worthy of Grade III listing by English Heritage. Previous Grade III heritage assets retaining their local interest are part of the first phase of list proposals for this purpose.
Evidence
6.6The significance of a local heritage asset of any kind may be enhanced by a significant contemporary or historic record. Examples include written and oral histories and historic photographs or drawings.
7.Process
Phasing
7.1The Borough covers an area of 16,315ha with 20 settlements of varying sizes.
7.2To manage the compilation of the Local List more effectively the survey will be conducted in phases:
7.3Phase one will include a selection of the Borough’s previous Grade III listed buildings, as a benchmarking exercise. Earls Barton, Wollaston and Irchester will then follow (as they are currently compiling Neighborhood Plans). Ecton and Finedon will also be included as they are scheduled for Conservation Area Appraisals.