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THE INSTITUTE OF HISTORIC BUILDING CONSERVATION http:/ /www.ihbc.org.uk Context and /HBC News Editor Bob Kindred (Ipswich Borough Council. Tel: 01473 262934, Fax: 01473 262974), 4 Henley Road, Ipswich !Pl 3FS, Tel: 01473 259441 e-mail: editor@ihbc.org.uk or bobkindred@hotmail.com IHBC Officers Chairman: Dr Malcolm Airs (Department of Continuing Education, Oxford University, Tel: 01865 270395), 39 High Street, Dorchester-on-Thames, Oxon OXl0 7HN, Tel: 01865 340075, e-mail: malcolmairs@conted.ox.ac.uk Vice-Chairman: Alan Taylor (Staffordshire County Council, Tel: 01785 277282, Fax: 01785 277364), 15 Village Gardens, Walton on the Hill, Stafford ST17 0LL, Tel: 01785 664473, e-mail:alan.g.caylor@btinternet.com Secretary: Dr Richard Morrice (English Heritage, Tel: 0171-973 3132), 3 Stafford Terrace, Tunbridge Wells, Kent TN2 4QZ, e-mail: secretary@ihbc.org.uk Treasurer.· Robert Parkinson (West Oxfordshire District Council, Tel: 01993 770247), The Old Priory, Prio1y Lane, Bicester, Oxon OX6 7BG, e-mail: treasurer@ihbc.org.uk Membership Secretary: Gus Astley (Bath & North East Somerset Council, Fax: 01225 477674), Manor House, Wells Road, Hallatrow, Bristol BS39 6EJ, Tel/Answerphone: 01761 453047, e-mail: membership@ihbc.org.uk Branches Co-ordi,zator: Julia Smith (Milton Keynes Council, Tel: 01908 252501), 49 Chaucer Drive, Aylesbury HP21 7LH, Tel: 01296 435187, e-mail: branches@ihbc.org.uk Co,zsultatio11s Co-ordinator: Graham Arnold (Sefton Borough Council, Tel: 0151-934 3574), 13 Sefton Drive, Liverpool LS 3SD Education Co-ordinator: Philip Grover (Oxford Brookes University, Tel: 01865 483425), 7 Palmer Road, Sutton-on-Trent, Notes NG23 6PP, Tel: 01636 822089, e-mail: prgrover@brookes.ac.uk Technical Panel Co-ordinator: Marion Brinton (Basingstoke & Deane Borough Council, Tel: 01256 844844), Development Department, Civic Offices, London Road, Basingstoke, Hanes RG21 4AH, e-mail: planbn@hantsnet.gov.uk Publicity Ojficer: David Davidson, Flat 2, 15 Southwood Avenue, Highgate, London N6 5RY, Tel: 0181-348 3145, e-mail: publicity@ihbc.org.uk Branch Officers Nortb: Ian Goodman, Tel: 01670 519391 North West: Sheila Stones, Tel: 0161-793 3770 Yorkshire: Stephen Bateman, Tel: 01274 754551 \Vesl Midlands: David Baxter, Tel: 01432 261950 East Midlands: Michael Taylor, Tel: 0116-252 7296 Soutb: Manin Andrew, Tel: 01494 421578 South \Vest: David Stirling, Tel: 01249 760670, e-mail: dstirling@northwilts.gov.uk East A11glia: vacant South East: Nigel Barker, Tel: 0181-541 9417 London: Rosemarie MacQueen, Tel: 0171-641 2455 Scotland: Ronnie Robertson, Tel: 01343 563287 \Vales: Neil Sumner, Tel: 01656 643159 Nortbern Ireland: Laurence Manogue, Tel: 01232 671114, e-mail: ahp.belfast@dnet.co.uk Registered as a Charity Number 1061593. Company Limited by Guarantee. Registered in England Number 3333780. Registered Office: 3 Stafford Terrace, Tunbridge Wells, Kent TN24QZ Context62June1999 Context News 4 Letters to the Editor 5 LOTS - turning the good intentions into reality. Ann Petherick 7 The Architectural Heritage Fund: an update. Hilary Weir 9 The Engineering Building, University of Leicester - fire safety works. Melanie Smith 13 Supporting Columns: An innocent church. Brian Morton 15 Some statistucs on the SPAB telephone technical enquiry service Alan Gardner 18 The Aiud Conservation and Trans-National Training Project. Dave Baxter 20 Enabling development. Charles Mynors (M'Learned Friend) 22 Re-instatement of a Joseph Paxton Conservatory. Angela Dudley 24 ICOMOS - a forum for 5,500 conservation professionals worldwide. Philip Whitbourn 25 S/NVQ Level 5: Conservation Consultancy. Ingval Maxwell 28 Churches Conservation Trust in the North East. Alexandra Faulkner 29 Sir Titus: Paris in the Spring. Dave Morton 31 Chemical treatments and treatment residues in historic buildings. David Watt 32 Reshaping English Heritage. Michael Brainsby 34 More World Heritage Sites for Scotland. Jack Gillon and Damian McAfee 36 Exhibition report: L N Cottingham 1787-1847: architect of the Gothic revival. Christine Jordan 38 IHBC News 40 Books 42 Illustrations in this issue 39 Editorial UNITEDANDDIVIDED By the time this issue of Context appears, the results of the Scottish and Welsh parliamentary elections will be known, and perhaps there will have been further progress on the governing of Ulster. Irrespective of the balance of power after these elections, in one way they reflect the wider UKagenda which has been evident since the General Election -no time for and no affirmative, positive policy towards resources for the historic environment. In Scotland, it seems that no thought has been given in the consultation document outlining the procedures for the Scottish Parliament, to create an equivalent to the DoETR. Further, there seems to be worrying uncertainty about the status and funding of Historic Scotland after the elections. A freeze on historic building grants is apparently already in place until 2003. In Wales, where the general perception for may years was one of a Principality entirely out of tune with a conservation ethos, the position is even less clear, especially where Cadw though ve1y positive in its approach does not carry the same authority as its counterpart in Edinburgh. This seeming fragmentation comes at a time when a number of professional bodies are aiming to forge much stronger links between countries. IHBC is assisting this by holding its Annual School in Cardiff this month and allied organisations such as AHF/APThave been working in a UK context to assist their Scottish and Welsh members with conferences and seminars. IHBC is also positively encouraging the development of a formal relationship with conservation professionals and institutions in Eire. IHBC will therefore follow closely the recent political events in the Home Countries and maintain its vigilance to ensure that the historic environment remains fully integrated into government policy in and beyond Westminster. As for England, and English Regional Farums (no Assembly for them), the DCMSproposals for supporting integrating historic building and area conservation into regional cultural forums are awaited with foreboding. 3
4 Context Editor: Bob Kindred 4 Henley Road, Ipswich IPl 3FS, Tel: 01473 259441 (Ipswich Borough Council, Tel: 01473 262934, Fax: 01473 262974) e-mail: editor@ihbc.org.uk or bobkindred@hotmail.com Production Editor: Jonathan David, Tel: 01582 763415, Fax: 01582 467480 Context is published quarterly and is distributed to all members of the Institute of Historic Building Conservation. © Institute of Historic Building Conservation 1999 ISSN: 0958-2746 Published for the Institute of Historic Building Conservation by Hall-McCartney Ltd, Heritage House, PO Box 21, BALDOCK, Herts SG7 SSH. Tel: 01462 896688 Fax: 01462 896677 e-mail: hallmccartney@compuserve.com Nonmember subscriptions to Context Context is available to nonmembers of the IHBC at an annual subscription rate, including postage, of: United Kingdon Elsewhere: £40.00 US$113.00 Subscription orders, together with remittances payable to Hall-McCartney Ltd, should be sent to the address shown above. The views expressed in Context are not necessarily those held by the IHBC or the publishers. Neither the publishers nor the IHBC shall be under any liability whatsoever in respect of contributed articles. The products and services advertised in this publication are not necessarily endorsed by the Institute. COVERSTORY A carved corbel at Battle Abbey in Sussex, Its matching pair (not illustrated) shows a figure (IHBC member?) wielding a very large toilet brush. What can this mean? Answers on a postcard ... NEWS AREYOUUSING PPGS 15 & 16 TOSECUREINFORMATION & RECORDSFORHISTORICBUILDINGS? One of the aims of the Association of Local Government Archaeological Officers Buildings Sub-Committee is to disseminate information on the assessment and recording of historic buildings and structures, Working in association with IHBC, the Sub-Committee would welcome examples of recording briefs from Conservation Officers; these will then be used to provide an assessment of the content and format culminating in an article in Context and The Archaeologist. The article will provide further guidance to those involved in the management of historic buildings on the role of the 'recording brief' by drawing together examples of best practice. Examples may be for both listed and/or unlisted buildings and written in order to obtain further information prior to determining an application or to secure records through ENDOFTHEROADFORTHECUL-DE-SACS? Why do we create new environments, which are devoid of richness, variety, human scale and a sense of place' Are even essential qualities of safety and sustainability being achieved;> The cul-de-sac plays an important role in the answer to these questions and has yet not been recognised as a fundamental problem. A key aim of sustainable development is to encourage people to walk, cycle and use public transport. This will only happen if new development is well integrated into its surroundings creating a permeable environment with direct, safe and attractive routes. Cul-cle-sacs create long tonuous routes through a maze of dead encl streets. They orientate dwellings to face one another, which inevitably means roads, paths and public areas within and beyond are enclosed by back gardens lined by high fences providing no sense of security or safety. A layout based upon the use of cul-de-sacs effectively disconnects that environment from its surroundings. Why then do cul-de-sacs dominate new housing developments? DB32 provides government guidance on this issue and initially acknowledges that grid layouts incorporating through routes provide the ideal solution. However, the overwhelming aim of traffic engineers is to prevent accidents. Trough routes create choice and hence uncertainty of traffic flows. Hierarchical, tree like layouts relying on the use of cul-desacs create certainty of traffic flows making calculations and decisions straightforward. Through route layouts obviously can provide safe trafficked environments; unfortunately the methods by which we assess risk have historically developed from hierarchical traffic flow calculations and segregation of road users. This needs to change. Developers aim to maximise profit while minimising risk. A scheme which turns its back on the existing environment and community usually allows the developer to retain more control; allowing the recreation of a sales package with a track record. Access into a site is expensive and possibly controversial, the use of cul-de-sac layouts makes sense of limiting the number of access points. Phasing and marketing processes are also made easier through the creation of a disconnected environment. Developers would probably say that people want to live in cul-cle-sacs. This is misleading; what people want is quiet safe and attractive homes. Through routes can provide this. However, a through route at present collects traffic from numerous cul-de-sacs which gives a distorted image of this type of road. Design usually focuses on architectural issues. Ironically, even if new housing superficially looks like it fits into an area it will never feel or function within the existing community as if it belongs. The cul-de-sac may well be considered, alongside the tower block, in thi1ty years time an unfortunate folly. New housing developments which incorporate cul-cle-sacs are only a short step away from the American Gated Community concept where access is strictly controlled. We, as yet, just haven't erected the gates. Karl Cooper works for Derbyshire County Council and is the current Chaii-nian of the East Midlands Branch of the !HBC. the use of negative condition. It would be helpful if each brief could clearly be marked 'PPG 15', 'PPG 16', 'Pre-determination Impact Assessment' or 'Recording by negative condition'. Please feel free to acid any further comments if you feel these may be helpful. Copies should be sent to: Shane Gould, Heritage Conservation, Planning Division, Essex County Council, County Hall, Chelmsford, Essex CMJ lQH. OBITUARY George W. Rennie (19471999) It is with great sadness that I have to report the sudden death of George Rennie, on 26 February 1999, at the early age of 51. George was head of the Urban Design and Conservation Section at Derby City Council, a post he had held for almost 20 years. I worked with George from the time he arrived in Derby from his native Aberdeen in 1979. A small, but striking figure, with beard and shoulder length hair, he proved to be a forceful character with forthright views, which he often expressed in somewhat colourful language! He was passionately concerned about the built environment of the city in general, and its historic buildings in particular, and found it difficult to be tolerant of those who appeared not to share his views. He was involved in numerous conservation projects over the years, and was a member of the technical panel of the Derbyshire Historic Buildings Trust, dedicated to the acquisition and restoration of historic buildings throughout the county. Currently he was engaged in work aimed at achieving the restoration of the North Midland Railway Workshop complex, buildings of national importance, listed Grade II* and including the impressive engine shed known as the 'Rou nclhouse'. Another scheme of major importance in which he was involved, although still at a comparatively early stage, was the restoration and conversion to student accommodation of the early 19th century Rykneld Mill, also listed Grade II*, and possibly the earliest fireproof silk mill in England. It Context62June1999
is tragic that he will not be here to see the results of his efforts on both of these projects. George was a sociable man, a member of CAMRA and, in spite of his nationality, he acknowledged the excellence of English real ale! He was a photographer of considerable skill, possessing his own darkroom, and he produced some superb black and white studies of different aspects of the county of Derbyshire which he adopted as his own. Initially he lived near the centre of Derby, but later he moved to the village of Bonsall, which he loved. He immersed himself in village life and worked on the restoration of his 19th centu1y house, conveniently located close to the village pub. Sadly he suffered from a debilitating lung disorder which slowly deteriorated, but with characteristic determination he carried on working, arriving at the office at 7:30 am eve1y morning. I don't think any of us knew what a tremendous effort it must have been. His funeral at Bonsall village church was attended by friends and colleagues not only from Derby and Bonsall, but also from his home city of Aberdeen, together with City Councillors and the MP for Derby North. An impressive tribute to a remarkable man. He will be missed. David Cottrell FORTHCOMING ISSUES-DEADLINES ANDTHEMES Copy deadline for the Autumn issue will be 20th July. ele_as_e ad.he.re to_this...deadline. This will cover the Institute's Annual School in Cardiff as well as the general range or articles normally expected in Context. Other contributions, experiences, technical notes, or case studies are welcome (space permitting). Articles under 2,000 words are much preferred. If you have copy longer than this please discuss it in advance with the Editor. If you submit copy, please do so either on 3.5 inch floppy disk in Windows 95 format or by email text to the Editor at: bobkindred@hotmail.com or editor@ihbc.org.uk noting the exact way e-mail the addresses are formed. Context62June 1999 NEWS/LETTERS LETTERS LOCAL DISTINCTIVENESS AGAIN Sir: What a pity that Michael Munt has given up and thinks that Conservation Officers should not devote valuable time to the improvement of new housing proposals (Local Distinctiveness, A Response, Context 61, March 1999). Government policy from John Gummer's Quality in Town & Country Initiative onwards has stressed the need for all those involved in the process of delivering new housing development to raise the present abysmal quality level, and because of the minimal design input that most developers contribute, the burden falls on the planning authority, whether in the form of urban-designer-trained development control staff or the hard-pressed Conservation Officer. The planning authority's involvement should go considerably further than "dressing up the boring shells" devised by developers. The new Essex Design Guide, for example, indicates not only how to improve layout, but also to devise house types that group together and are composed of built forms of the right scale and proportion, as admired by Michael Munt at the Dutch Quarter, Colchester and elsewhere. Considerable' progress has already been made in persuading developers to change their house types and come up with more coherent schemes. This design-policy-based approach has to be more fruitful in the context of the speculative nature of the house-building industry in East Anglia than attempting to draw inspiration from high density rental housing in inner-city Holland. Alan Stones Head of Historic Buildings & Design, Essex County Council. MORESPACE BETWEENBUILDINGS Sir: Between the old ACO and the new Institute, there does seem to be a noticeable swing away from the holistic approach, towards pure building concerns. HISTORIC BUILDING CONSULTANTS We have a good understanding of old buildings and materials and can provide the following specialities:- ❖ Building surveys and inspections ❖ Drawings, specifications and schedules of repair ❖ Feasibility studies ❖ Historic building analysis and recording under PPG 15 and PPG 16 ❖ Project management of conservation works ❖ Grant aid and Lottery applications ❖ Planning and listed building applications ❖ Liaison with English Heritage and Conservation Officers ❖ Party Wall etc, Act legislation We undertake work throughout the U.K. for further advice contact:- GEOFFREY W. MAYBANK Dip. Vern, F.S.V.A., Dip.Bldg.Cons.(RICS) 111 Windsor Road Oldham Lancashire OL8 IRQ Tel: 0161-622 1864 Fax: 0161-622 1866 ■ TRADITIONAL, BUILDINGS need to "breathe" We supply the finest quality lime putty, lime mortars, plasters and limewashes at UNBEATABLE prices. Recent projects supplied include the Royal Opera House, Ashton Court & Spitalfields Historic Trust. We pride ourselves on our service and offer full technical support and friendly advice. We stock a comprehensive range of coloured limewahes made with natural pigments such as ochres and umbers, bound with raw linseed oil. We are a principal supplier of Metastar, a very effective pozzolan used to achieve an hydraulic set. Lime putty ~ 33kg ~ £ 7.20 Lime plaster ~ 18kg ~ £ 4.00 Lime mortar ~ 20kg ~ £ 3.10 Limewash ~ 201ts ~ £10.00 Lime mortar ~ tonne ~ £102.00 Metastar ~ 25kg ~ £ 8.00 excluding delivery & VAT we also supply oak lintels, oak lath, cob blocks PRACTICAL COURSES USING TRADITIONAL LIME MORTARS We run regular one day courses covering the traditional skills for rebuiWing, rendering, plastering, pointing and limewashing. Now in our fourth year we've had an enthusiastic response from owners, builders, architects and surveyors from all over the U.K. Courses cost £47 including lunch & VAT. . MIKE WYE & Associates Giel>!, Bouse,BucklandFtlleigh,Beaworthy,DevonE.X21SHY Phone/Fax: 01409 - 281644 5
·------------------------------------~- 6 LETTERS Whether this has been gradually happening without us noticing, or whether it is a more sudden occurrence is open to debate, but Paul Dadson's observations 0oined-Up Conservation: The Space between buildings, Context 61, March 1999) raise valid points which we should all heed. Buildings are important certainly, but without the spaces around them it is impossible to have proper places, and a sense of place is one of the most sought after elements in the consideration of our built areas -cities to hamlets - in the professions to which most IHBC members relate in their everyday work. Buildings must be considered in their context, and it is that context to which Paul draws our attention, though I would suggest that not only is the floorsca pe important, but all the other elements which added together form the setting for our buildings. The EHTF working group on Conservation Area Management published "A Practical Guide" in the summer of 1998 dealing with many aspects which affect the context of our historic towns and which can be applied widely to other settlements. That document includes topic papers on Economic Vitality and Regeneration; Participation and Promotion; Enhancing the Street Scene; Traffic Management and Lighting; Trees, Open Space and Landscape; and lastly, but possibly of greatest importance, The Corporate Approach to Conservation Area Management. (There are more papers to come in the future.) All of these are important to the future of our historic buildings and settlements -the buildings cannot survive in a vacuum. They are dealt with by members of different professions, and the EHTF as an organisation has representatives from many professions in its ranks and can therefore put fo1ward expert opinion in many areas of concern to those working in historic settlements. This holistic approach is one which I would commend to you. Paul's plea for "professionals to be joined up" is one which we try to practise, and which we support strongly. Widen your horizons and think about the contextin which your historic buildings are set, and equally important, the context into which new buildings in historic area will be placed. Janet Dore MA, MRTPI, !HBC Vice Chair of the EHTF Conservation Areas Management Working Group MOREON MAINTENANCE Sir: Contributions in the last issue of Context concentrated once again on how to ensure that historic buildings were cared for and kept in good repair. Grant aiding buildings at risk can be a wasteful way of dealing with restricted budgets and The Conservation Portfolio In the June 1999 edition of the Portfolio are: Carden & Godfrey Specialists in traditional and classical architecture Conservation Studio Planning and architecture for the historic built environment Metal Window Company Narrow rooflight types based on replica range of low profile Conservation Rooflight often rewards neglectful owners. However, there seems absolutely no way in which the state is willing to accept that listed buildings usually require more of their owners, resources than others houses and that financial help or incentives are needed up-front. You are all familiar with the governmental response to the wretched VAT question (sorry, it is the European Union's doing and therefore cannot be changed unilaterally) and despair like me, every time you have to explain to an unbelieving owner, that repairs to their old windows are not VAT zero rated, but yes new treble-glazed units would be! You may be interested to hear that some European Union member states have found a way around this. Whilst the VAT remains untouched, in Germany, and more particularly in the Bundesland Berlin, owners of listed buildings enjoy a whole raft of tax incentives to keep their building in good heart. Not only repairs but also ordinary maintenance bills are deductible from taxes (i.e. income tax, property tax). Land tax can be waived if the income from the property falls below the annual cost of maintenance -this applies particularly to rented properties, of which there are many in Berlin. Even the inheritance and gift tax recognises the financial burden of maintaining part of the country's heritage; for inheritance valuation purposes the value of the LB is reduced by 40% or in some cases reduced to nothing (I am not sure where this applies). When the owner is first notified of the listing, in this case my sister and I who recently inherited the family home in a 1920s Berlin garden suburb, a letter is sent setting out the responsibilities as well as the "financial support, with which the state participates directly in the costs caused by maintaining a listed building" (literal translation). Apart from the tax concessions there is also grant aid available from the Local Authority for the additional costs incurred for maintaining, running or restoring an historic building. I think it is time that our Institute made another serious attempt at changing the Treasury's attitude; otherwise our historic building stock will continue to deteriorate. The stick alone does not work well, it needs some carrot too. I am more than happy to supply copies of the letter of notification and details of tax allowances to anybody who may be interested (but it is in German, and I do not understand enough of the technical fiscal language to translate it accurately enough). I am also sending a copy to English Heritage to see whether there is anything to be done about changing the government's attitude. Wouldn't it be great if LB owners here as well as in Berlin received a notification of listing which included a paragraph headed Financial Support, followed by two pages explaining the details and rights to recoup expenses through the tax system. Here it seems a novel, if not to say outrageous, idea to ask the chancellor to give up a small proportion of his taxes for the sake of the Nation's heritage. In Germany people would find it amazing that individuals, who -after all - are only life tenants, should carry the entire burden alone. Ruth Gibson Aylesbury Vale District Council N.B.: My sister in Berlin runs a modest B&B. If you like a chance of staying in a 1920s listed house in a garden suburb, where virtually all houses are listed, the streets are tree lined, have real cobbles and original lamp posts (none of your catalogue heritage range), please give me a ring (weekends only 01491 572271). ADVERTISEMENT International Consultancy Seeks I) Conservation Architect with experience in the Caucasus region, fluency in Russian and Armenian essential 2) Nepali speaking computer literate person with Heritage Management experience in Nepal. Knowledge of Newari an advantage. Initial appointments for I year. Salary by negotiation. Applications by CV to: David Michelmore, Horbury Hall, Church Street Horbury, Wakefield WF4 6LT. Context62June1999
LOTS -turningthegood intentionsintoreality Ann Petherick pleads for more interest in a simple but effective way of improving our town centres LIVING OVER THE SHOP (LOTS) is a very simple idea, so simple that it works, but it is also an idea which has been widely misinterpreted. This has been emphasised by several recent publications which, whilst focusing on the desirability of using upper floors as a means of creating urban housing and revitalising town centres, have approached the issue as a straightforward one of building refurbishment. In doing so they have misjudged the fundamental nature of the problem and misunderstood the reality and significance of the pattern of retail prope1ty ownership. In doing so they have addressed the symptoms rather than the causes of upper floor vacancy. A nation-wide delivery mechanism is needed whlch addresses the causes rather than the symptoms of upper floor vacancy. The strategy devised by LOTSin 1989 was based on research funded by the Rowntree Foundation which had analysed the underlying reasons for vacancy. For example, why has so much of the space lain vacant for 30 years or more? Why does so much remain empty when there is an urgent need and demand for housing in many towns?Why,when there is recognition of the harm caused by depopulation, and of the need to revitalise our towns outside business hours? Why, when fulluse of such buildings can safeguard the existing building stock, improve town centre security, reduce the need for transport, minimise demand for green-field sites etc. etc.? To approach this simply as a matter of housing, as previous funding programmes have, is to begin at the end and work backwards. Worse still, many have confused the issue with the very different matter of the reoccupation of existing dwellings (whether above shops or elsewhere) when there is in fact very little overlap. Also, to approach it simply as a matter of building refurbishment is to address only the symptoms. The LOTSapproach-which needs no new legislation - recognises that creating mixed-use within individual buildings is entirely different from creating mixed use witl1i.nareas and involves complex issues of commercial valuation, investment criContext62June1999 teria and the psychology of ownership. Also, itrequires the ongoing co-operation of two groups who have seldom worked together in the past and who know little of each othe1°smetl1odsand motivations: commercial property, and housing. The underlying reason for the longstanding resistance of commercial owners to involvement in housing is the owners' fear that security of tenure might be created,undennining the investmentvalue of the building. To overcome this LOTS devised a leasing arrangement which introduces an intermediary between owner and residential occupier, protecting the interests of both: Freeholder/rtailer I CO/v'vV\ERCIALLEASE I Housingasscx:iation I ASSUREDSHORTHOLD TENANCY I O:::cupiers The intermediary can also provide the necessary management service and thus the owner is isolated, both legally or practically, from direct involvement with the residential tenants. There are two crucial elements involved in progressing LOTS developments: first,an understanding of the ownership pattern of commercial property, and secondly the need to change the perceptions and raise awareness of the options amongst commercial owners. The ownership structure is such that the great majority, 80% overall, of retail properties are controlled by absentee owners, including the national retailers, investment companies, pension funds etc. In prime sites that may rise to 90-95% (for example, in Stockton High Street absentee ownership is890/o) and even in the smaller towns it is likely to be around 50%. In addition, almost every retail property will have at least two owners: a freeholder, leaseholder and possibly sub-leaseholders - and the agreement of each is required. Analysis of theprocess There are two distinct stages in setting 42 Micklegate,York.Convertedto eightonebedroomflats,January 1999, leasedto York HousingAssociation. up LOTSschemes: assembly and development. Development is the territory of the housing association or other intermedia1y but the process of assembly identifying owners, providing tl1emwith accurate information, persuading them to consider residential use, bringing the parties together and agreeing tl1eHeads of Terms requires quite different skills and contacts. In view of the ownership pattern, this can only be tackled efficiently on a national basis. From the outset my intention in setting up the LOTSinitiative had been to tackle the properties owned by the national companies because of the greater efficiency offered by their widespread ownership, the greater size of individual properties, and the larger companies' willingness to grant longer leases than individual shopkeepers. In the national companies, decisions about the use of property will always be made at national level, but once a company has accepted the principles of LOTS, these can be applied to all of its portfolio resulting in streamlining of the assembly process and more efficient use of all pa1ties' resources. Locallybased organisations who have attempted the process of assembly themselves have found that not only is the task immensely time-consuming but success rates were disappointing because a retailer with property is eve1y major town is often unwilling to deal witl1 each local authority separately on an issue which is outside their core business. In seconda1y and tertiary retail areas there will of course be a higher proportion of individual shopkeepers but, far from making the task easier, this may complicate it still further. These owners may initially show a good response to an approach from local authority or a housing association but may then prove strangely reluctant to proceed. This reluctance is likelyto follow from consultation with their advisers - solicitor, accountant 7
8 etc.-who willunanimously have advised against involvement because they are unaware of the LOTS leasing arrangement and continue to believe that residential use leads to management problems and a devaluing of the property. Such concerns can be overcome but this will occur only over a period of several years and following the completion of exemplar schemes in a given town. That is why it is necessary to approach the national retailers first in any given town and, however enthusiastic the local authority and others may be, the issue cannot be tackled purely at a local level. Theneedfora newkindof housing Concerns a/e starting to be expressed in a number of towns at the polarisation of the rented housing market: between 'affordable' housing available to, and largely occupied by, those in receipt of housing benefit; and the 'luxury' market, where rents are set at the highest level commensurate with demand. The difference between these two levels can be considerable: for example in York, the affordable rent for a one-bed flat is £50 p.w. or less, whereas market rent averages around £100 p.w. and can reach £150-200 in the riverside developments. Yet there must be many who need rented housing who are denied access to either category, and the Housing Benefit system cannot always cope. In addition, social factors such as the increase in short-term contract working and the creation of smaller households, are creating an increased demand for rented housing at all levels. This suggests a need for housing at a range of rents between the two extremes, which I shall call 'middle' rents. There is currently little or no supply to meet this demand but the dilemma is:how to create below-market rents without public subsidy? In every town there are dozens of part-vacant buildings, a great many people who would like to live in them, and housing organisations willing and able to carry out the development. So why have so few homes been created in this way despite political support, the desire to revitalise town centres, and the urgentneed to provide for an increased number of households? LOTSschemes may be uniquely able to achieve this provision in that they make use of property for which there is little competing demand and which is currently providing no benefit to its owner. At the same time the owner can be relieved of the costs imposed by that part of the building, including maintenance, business rates, and security. By offering owners a solution to these problems and a guaranteed secui·e rental income over a long period (by offering a long commercial lease to a housing association or similar) it may be possible to persuade them to accept rents lower than market levels. However, this will always be dependent on very careful handling of the situation if owners' expectations are to be prevented from becoming unreasonable. Thus, although there is always an automatic assumption that LOTSschemes require grant aid, in some towns developments may be able to proceed without it, by charging 'middle' rents. However, initialenabling funding will be required for the assembly process in every town if the true extent of the potential is to be realised. Potential There is still little known about the quantity of potential housing which could be provided above shops. The LOTS Project recently carried out a detailed survey in the town centre of Stocktonon-Tees, having found that, despite widespread concern at the need to house an additional 4 million households within the next 10 years, very little is known about the extent of vacancy within urban buildings and its housing potential. This work involved a comprehensive building-by-building-and, in many cases, floor-by-floor - survey of the upper parts of almost 300retail premises. However, it did not merely record the area of vacant space but related this to potential dwelling sizes and layouts, location of access, services etc. It therefore arrived at a figure for the number of one or two-bedroom dwellings which could realistically be created, and the number of people who could be housed. The results will surprise many: in a town with a population of83,000, more than 300 dwellings could be created, potentially housing over 500 people. A further significant policy issue is the distribution of this kind of vacant space throughout the country. Having studied the upper floors issue in towns throughout the country during the last 10 years, the experience of the LOTSoffice is that the quantity of under-used space is remarkably consistent nationally -unlike brown-field land, which is more likely to be available in areas where housing demand is lowest. The survey also put into perspective the potential available from ·the reoccupation of existing vacant flats: in Stockton there were merely six. The situation is one of utter stalemate. There is a supply, a demand, and a mechanism by which the two can be brought together: all that is missing is the co-rdination between them. Conclusion Although the reuse of vacant upper floors in town centres is only one part of urban regeneration, it is an essential part if towns are once again to become 24 hour living places, and it is vital to the very survival of the smaller towns. Recently it has become impossible to turn on the radio or pick up a newspaper without reading of the Government' enthusiasm for increasing the amount of housing in town centres, using redundant buildings, and creating mixed use areas. Almost all local authorities are supportive of policies which bring residents back into town centres, many local plans make specific reference to the use of vacant space above shops for housing, and several towns, such as Newcastle, Ripon and Grantham, have already achieved remarkable success. However, whilst no-one would doubt the genuine intentions, very little of this is being converted into reality nationally and progress is both slow and patchy. To put the figures into perspective, I estimate that the amount achieved nationally so far probably represents far less than 2% of the housing potential available. In every town there are dozens of part-vacant buildings, a great many people who would like to live in them, and housing organisations willing and able to carry out the development. So why have so few homes been created-in this way despite political support, the desire to revitalise town centres, and the urgent need to provide for an increased number of households? The urgent need is for a workable national delivery mechanism which can realise the potential. A new approach, and a concerted and co-ordinated nationwide effort, is needed. A successful delivery mechanism will be based on an understanding of the ownership pattern of retail properties and will offer the local players links to the major owners. In addition to providing an information and advisory service, the LOTSinitiative was set up to make these links and has built up contacts with companies who between them own many thousands of the relevant properties. Localauthorities would not only benefit from an increased housing stock (particularly of housing suited to small households) and a greater range of housing but would receive additional Council Tax revenue from those new dwellings. Town centres would be revitalised and made more secure, buildings refurbished, traffic reduced, local businesses supported, green-field sites safeguarded, and retailersrelieved of the costs of maintaining redundant space. Everyone would win, and no-one would lose. Ann Petherick is the Director of Living Over The Shop, a not-for-profit consultancy working with local authorities, housing associations and property owners, LOTS, University of York, The King's Manor, York, YOl 7EP Tel, 01904 433972, Context62June1999
TheArchitecturHaleritage Fund:an update TheArchitectural Heritage Fund (AHF) was established for a very specific purpose: to enhance the capacity and effectiveness of buildings preservation trusts (BPTs) that operate on a 'revolvingfund' basis (disposing of buildings once repaired for reuse in order to acquire and repair others) byproviding working capital for their projects. Making loans to BPTs remains the AHF's principal activity, but it also offers various other/arms of assistance. Hilary Weir, the AHF's Secretary, describes its current operations. Any newcomer to the world of the historic environment must be utterly bewildered by the multiplicity of organisations concerned with its protection, preservation and promotion. Their existence, however, attests to the importance and complexity of the UK's built heritage and to the need for an enormous spread of knowledge, skills and funding mechanisms to ensure its survival. Ameasure of initial confusion is a small price to pay for this strength in numbers. I hope and assume that all readers of Context have heard of The Architectural Heritage Fund. I would not be altogether surprised, however, if some found ithard to explain quite where the AHF fits into the heritage spectrum. To those who can, apologies: please fast forward to the section headed 'Current Programmes'! Originsandpurpose The AHF commenced operation in 1976, following a governmentfunded report which encouraged the Secretary of State for the Environment to pledge £500,000 in match finance for a national revolving fund for historic buildings conservation from which buildings preservation trusts could borrow. Over the years, the AHF'sresources have grown to keep pace with increasing demand. The revolving capital fund now stands at £12 million. This is fully committed to loans and loan offers: almost£7 million in contracted loans for 42 projects, and more than £6 million on offer for a further 36 projects.Mostof these loans and offersare to BPTs, but the AHF is willing to lend to any charity with an eligible scheme. Context62Jun1e999 BuildingsPreservatioTnrusts Charitable BPTs are widely recognised as a highly practical mechanism for dealing with historic buildings at risk. A revolving fund BPT operates in many respects like a developer - identifying a viable end use, testing the financial assumptions, preparing a detailed scheme, assembling the necessary finance, undertaking the work and disposing of the building once repaired for reuse. Without a thoroughly professional, hardheaded and entrepreneurial approach, the project - and the BPT - will almost certainly fail. But there is one fundamental difference: for while BPTs must aim at least to break even on every project, they are not motivated by "profit". A BPT's charitable purpose is to preserve historic buildings, not to make money. If a revolving fund BPT manages to exit from one project with a surplus, it will put this towards the capital required for the next. In the case of most projects, however, the notion of profit is risible. Every BPT has to devote an enormous amount of time and effort to assembling a package of statutory, public, charitable and other funds in order to bridge the "conservation deficit": the difference between the cost of acquiring and repairing a listed building at risk and its realisable value once work is complete. From the outset, the AHF has encouraged and advised on the formation of BPTs (the great majority of which, like the AHF itself, are constituted as charitable companies limited by guarantee). AHF staff are always willing to talk through the issues by telephone and (within reason!) to give presentations at meetings with local authority Members and officers, prospective trustees and others about setting up and running a BPT. In addition, the AHF provides a standard governing document with guidance notes for to reflect the slightly different legal requirements of each part of the UK. BPTsand localauthorities Like all developers, BPTs need the cooperation of their local planning authority for permissions and consents. But there is enormous mutual benefit to be derived from a close working relationship between BPTs and local authorities. BPTs can provide very cost effective help to local authorities, specifically through 'back-to-back' arrangements whereby the BPT agrees to take on a listed building acquired by compulsory purchase. The fact that a BPT will become responsible for a building at risk greatly reduces the local authority's potential liability. It is well known, moreover, that in many instances the threatened use of statutorf powers results in buildings either being repaired by their owners or passed to a BPT (or another restoring owner) on reasonable terms. This ought to be part of every local authority's buildings at risk strategy. Local authorities can provide BPTs with much-needed advice, administrative and technical support, and with repayment guarantees for AHF loans. They can also sponsor the establishment of a BPT to operate in their area. For these and other reasons, the AHF has always urged BPTs to 'cuddle up' to their local authority - usually through the Conservation Officer and planning department, but ideally through Councillors as well. TheUKAssociationofBuildingPreservation Trusts A decade ago, the AHF took an initiative that resulted in the formation of the United Kingdom Association of Building Preservation Trusts (APT). APT, a registered charity, is the representative body of BPTs throughout the UK. Long before devolution and regionalisation became government policy, BPTs decided APT should be composed of nine area committees: six in England, one each in Northern Ireland, Scotland and Wales. Each area sends a representative to APT's National Committee, on which the AHF is also represented. By the end of March 1999, APT had 185 full members. Membership is open to any charity constituted as a BPT. APT's Administrator, Lucy Bartlett, is based in the AHF's office and is the central contact point both for APT mem9
bers and for third parties. Although the AHF is also a source of information, general enquiries about BPTs should normally be addressed to APT via the Administrator. FinancialAssistancefromtheAHF Until 1989, the sole form of financial assistance available from the AHF was low-interest loans for projects involving the acquisition, repair and rehabilitation of historic buildings. This remains its principal activity. By the end of the last financial year (31 March), the cumulative total loaned had risen to almost £26.S million for 355 projects. The AHF has always been flexible and imaginative in response to changing needs. Over the last ten years, it has devised programmes to help BPTs to develop projects to the point where they can benefit from AHFloans, as well as altering the terms and conditions of loans themselves. InJ anuary 1999, the AHF decided to make some further, far-reaching adjustments both to loans and to some of its grant programmes. CurrentProgrammes Set out below is a short summary of the financial assistance currently available from the AHF. Detailed guidance for each programme is available on request. Loans The AHF will lend up to £500,000 per project to BPTs (£250,000 to other charities), at 4% per annum simple interest, payable when the loan princiADVERTISEMENT Lath & plaster • Riven laths & battens • Oak framing & tile pegs • Lime putty, mortars, plasters & limewash • Hydraulic Lime • Horse, Goat & Cow hair • Oak !edged & planked doors • Hand Forged Ironmongery • Rosehead nails Credit cards accepted Postal/telephone orders welcome For a copy of our price list/ catalogue telephone:- 1.J.P. Building Conservation Ltd Tel: 0118 969 6949 Fax: 0118 969 7771 Wattle & daub 10 pal is repaid. The normal term is two years, but can be three years in exceptional circumstances. The AHF is almost always willing to allow extra time if a borrower makes a case for this before the end of the agreed loan period. Borrowers must provide adequate security, either in the form of a first charge over the building for which the loan is required or any other property to which the borrower has a freely marketable title, or of a repayment guarantee from a bank, local authority or other corporate body acceptable to the AHF. For more than 20 years, the AHF held its rate of interest at 5%even when base rates soared into double figures. The reduction to 4%, decided in January 1999 in response to historically low commercial interest rates, was therefore a major break with tradition. But although the AHF aims to be the cheapest source of borrowed funds (not only through its rate but also the fact that interest is simple, not compounded), seasoned BPTs tell us that the most important point about AHF loans is not the favourable interest rate but certainty - that working capital will be available, up front, and that its cost is precisely known in advance. In January 1999, the AHF also decided it would no longer pass on to borrowers a proportion of the legal fees it incurs when contracting or releasing loans. This, too, will reduce the cost of borrowing and eliminate another uncertain element from project budgets. An AHF loan offer at the outset of the funding application process can often provide vital leverage when negotiating with other agencies. Early applications are welcomed. Allthe programmes described below are for BPTs only (organisations whose sole or foremost charitable 'object' is the preservation of historic buildings). Feasibilitystudygrants BPTs are eligible for grants of up to £5,000 (£7,500 in exceptional cases) towards the cost of an initial options appraisal of a potential project. There is no limit on the number of feasibility study grants for which a BPT may be eligible. Projectadministratiognrants BPTs are eligible for project administration grants towards overheads and other non professional costs incurred in taking a project forward. To qualify, the BPTmust have completed a feasibility study and decided to develop the preferred option. BPTs with existing paid administrative support or with uncommitted resources of more than £5,000 are not eligible. Each project administration grant is £4,000, disbursed in four instalments at quarterly intervals. A BPT is only eligible for one project administration grant. Refundableloanpreparationgrants Once a feasibility study has identified the preferred option, a BPT becomes eligible for a refundable loan preparation grant ofup to £15,000 for specific design and development work necessary to an AHF loan application. When the AHF contracts a loan for the project, the grant becomes part of the loan and is governed by its terms and conditions. Otherrecentdevelopments In September 1997 the AHF published a revised and updated edition of its 1989 handbook, "How to Rescue a Ruin by setting up a local Buildings Preservation Trnst" (£,7 inc.p+p). Last year, it published "Funds for Historic Buildings in England and Wales -A Directory of Sources" (£13.50 inc.p+p), which will be updated annually. Thewideragenda The AHF is very concerned about the low position of conservation of the built heritage on the national agenda. Last autumn it played a leading part, with SAVE Britain's Heritage, IHBC and APT, in producing "Catalytic Conversion - REVIVEHistoric Buildings to Regenerate Communities", which urged the Government to put the historic environment at the forefront of its policies for urban regeneration, sustainable development, and the reuse of brownfield sites. With others, the AHF is currently campaigning to persuade the government to take action on VAT on repairs to historic buildings. The AHF continues to maintain a watching brief over issues that materially affect its own activities and those of BPTs. It regularly responds to consultation papers from government, statutory bodies and other organisations, for example the Heritage Lottery Fund. In tandem with APT, the AHF also represents the interests of BPTs at national level. The AHF aims to work in partnership with BPTs and others. We welcome all approaches, whether about potential BPTs or projects, and are keen to receive suggestions for ways in which the AHF can be of more help in finding ways to tackle historic buildings at risk. For further information, or requests for assistance, please contact the AHF at: Clareville House, 26-27 Oxendon Street, London SWlY 4EL. Tel. 0171-925 0199. Fax 0171-930 0295 e-mail HYPi-,"RLJNKmailto:ahf@ahfund.co.uk ahf@ahfund.co.uk. To contact APT, please write to the Administrator at this address, or phone 0171 930 1629 Context62Ju1n9e99
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