Heritage rescue and protection

The level of care for Alnwick’s heritage is patchy.

The level of care and maintenance for Alnwick’s heritage is patchy. We do not see a need to increase statutory protection, but some buildings of national significance are suffering from neglect or under-use. Heritage of local significance lacks protection. Some developments have been out of character and some ill-considered alterations and repairs have harmed the character of the Conservsation Area, or harmed the value and threatened the well-being of individual buildings.

Northumberland County Council has committed to working with owners, Historic England and communities to support the conservation of heritage assets. So our overall approach to heritage protection is based on the Alnwick community working with the County Council and others, under the leadership of Alnwick Town Council.

• To safeguard heritage for future generations we will monitor the condition of Alnwick’s built heritage and press for action on any significant asset that is vulnerable

• We will identify heritage that has significance to the local community so that this can be considered in the planning proces, alongside designated heritage of national significance.

• To guide future development in the conservation area we will help to provide developers and the planning authority with design codes that reflect the views of the local community on the parameters and issues that need to be considered.

• We will collate and share information that will help and encourage owners to care for Alnwick’s heritage.

Statutory protection

Alnwick Conservation area

The Alnwick Conservation Area was designated in 1972 and there have been minor adjustments since. The Listed Buildings and Conservation Areas Act (1990) requires that Conservation Areas are kept under review. Alnwick’s Conservation Area was last appraised in 2006. That review concluded that in general, the Conservation Area retained much of the character and interest for which it was originally designated, but with some neutral and some negative factors. Some of these have since been addressed, but not all. Less formal reviews have raised similar concerns since then.

A note on Article 4 Directions

An article 4 direction is made by the local planning authority. Typically they control development in a specific area by requiring planning applications for developments that would otherwise not need one. For example, Article 4 directions can be used to control works that might threaten the character of a Conservation Area. They are not necessary to prevent works to a listed building because in such cases listed building consent would be needed anyway. However, they can be used to help protect the setting of heritage assets, and in relation to non-designated heritage.

For example, permitted development rights enable property owners within a Conservation Area to undertake small-scale extensions or alterations without the need for planning permission. Where these rights are uncontrolled, unsympathetic alterations can erode the special interest of the Conservation Area. An Article 4(1) Directions can be used to control changes to all elevations of a property, or an Article 4(2) Directions will control changes to only "relevant" elevations of a property, such as those fronting a highway. In Northumberland Article 4 areas only exist for: Berwick-upon-Tweed, Blyth (Bath Terrace), Holy Island, Longhirst and Whalton.

The government has issued guidance on when and how to make an Article 4 direction. It says that local authorities should only consider making article 4 directions in exceptional circumstances where the direction is necessary to protect local amenity or the well-being of the area. In all cases, the direction should be based on robust evidence and apply to the smallest geographical area possible.

Amendments to an Article 4 Direction require a 28 day public consultation period, and are subject to agreement by the Secretary of State.

We have received some informal guidance that it is unlikely that an Article 4 Direction is worth pursing. We should seek confirmation before desiding whether or not to include this among the options

Enhancing the Conservation Area

The Neighbourhood Plan proposed an action programme for revitalising and enhancing Alnwick’s vital historic spaces & townscape; a programme of projects to enhance the historic townscape; an identity and interpretation strategy for the town centre incorporating a review of signposting and information in the centre; and improved Planning and Traffic Enforcement to protect the quality of heritage assets and public realm.

While there has been progress in some areas, over time most ideas that have come forward to improve the Conservation Area have followed a similar pattern. Our working asumption is that there is a high level of consensus about the issues, and no shortage of ideas on how they might be addressed. Below is a summary of different initatives that have been proposed. Rather than press for another appraisal, or seek more ideas we will attempt to progress by prioritising these.

• A number of changes have been proposed to the Conservation Area Boundary, and consultations during development of the original Neighbourhood Plan found support for a boundary review. Some examples of changes that might be considered would be to exclude King Street or the Bus Station / Morrisons area. It has been suggested that in principle, some additions should also be considered, but we are not aware of any specific proposals. We intend to test community views, but our hypothesis is that we will find little support and that there are more pressing priorities.

• There have been various proposals to improve the Bus Station site. This is the former location of the notorious Union Court and a centre of the 1849 Cholera outbreak. The Historic Environment Record includes several details of medieval and post-medieval archaeology under the neighbouring Towergate building, but nothing appears to be recorded here, and the original layout of burgage plots has been almost entirely lost. So there is no reason to think that any proposals to replace the Bus Station will encounter major challenges relating to heritage. If an adjustment to the Conservation Area would help progress matters then this is likely to receive widespread support in the community.

• Other unattractive problem areas that have been identified include parts of Greenwell Lane Car Park, and some Lanes (including adequate lighting).

• Each tme the condition of the Conservation Area is assessed a number of buildings are identified that are considered to be at risk. Some have taken years to resolve, others have found a solution, and more examples emerge. As a result, specific examples of heritage at risk have varied over time. We are proposing a new mechanism to monitor and press for action on heritage that is either identified as being at risk, or vulnerable to becoming at risk.

• Some 20th century developments in the Conservation Area are considered unsuitable or out of character due to their materials, form, scale or detailing. These include a variety of residential and retail units. There is a view that redevelopment in a more suitable style should be encouraged, and in some cases this has happened. Design codes are intended to help the planning authorities to prevent similar issues in future.

• Various proposals have been made to consider listing of individual buildings, including the Police Station / former Magistrates Courts and associated structures. These can be collected as part of the initative to develop a local list, viable candidates can be taken forward through the normal process for National Listing.

• Cumulative small alterations and incremental changes to existing buildings have contributed to some erosion of the character of the conservation area. Various solutions have been proposed, including the use of Article 4 directions to protect important details and finishes (particularly windows and doors) and prevent further erosion of character. The issue is not limited to the Howick Street area, but most noticeable here because of its original uniform character. Some have suggested grant aid, or other positive inducements to encourage window and door replacements that more closely match the originals. With growing pressure to improve energy efficiency and take action on Climate Change similar alterations are likely to become more common, but reesources are limited and we are not optimistic that either Article 4 directions or financial inducements are going to prove feasible ways of addressing the issue. Instead we propose an emphasis on provision of information to encourage informed decisions by owners.

• Surface treatments are unsympathetic or poor quality in places - most notably uneven footpaths and the whinstone sets and cobbles on Market Street. There have been various proposals to improve surfaces / floorscape, and in particular to replace the Cobbles on Market Street. Further potential has been indicated to improve public footpaths, surfaces on Fenkle Street, and broken flags around the marketplace.

• The Neighbourhood Plan proposed to survey and develop a programme of maintenance and replacement of trees in the conservation area: including an assessment of coverage, condition, and protection.

• In 2019 the Civic Society carried out an audit of clutter in the Town Centre for the Town Council (Town Team). This identified almost 200 examples of redundant fixtures on building facades, an excessive quantity of street furniture in the central triangle. and others aspects of street clutter including obtrusive road markings, and various forms of advertising banners, fly-posting and A-boards. The report proposed involving owners, tenants, utilites and the authorities in an action plan to de-clutter with a priority given to key focal points.

• To improve the legibility of the townscape, the Conservation Area Character Appraisal and Neighbourhood Plan proposed a review of signposting and information in the centre; rationalising street information, and renewal or refurbishment of finger-posts. More recent alternatives have included digital signage and mobile phone apps.

We are proposing a rolling 2-year improvement programme, based on the above list, with priorities determined by Community Consultation and Design Codes.

Denwick Conservation Area

The view, when the Neighbourhood Plan was being developed, was that it offered an opportunity for Denwick village and its landscape to be assessed, particularly for environmental impact and mitigation of through-traffic and factors as street clutter, quality and condition of floorscape, enhancement of the townscape and quality and condition of trees and landscape setting. There was therefore an intention to carry out an appraisal of the village townscape and its setting, and investigate the designation of a Conservation Area for Denwick.

We will seek confirmation from Denwick Parish Council that there is no desire for an appraisal of townscape or desire for a Denwick Conservation Area.

Protected heritage

Listed Buildings

National significance

In addition to the Alnwick Conservation Area, the following have national protection:

• Protected Buildings and Sites: 326 listed buildings (267 in Alnwick, 59 in Denwick) 13 scheduled monuments (3 in Alnwick, 9 in Denwick, 1 in both),

• Protected landscape: Alnwick Castle grounds (landscape parks and pleasure grounds)

The National Planning Policy Framework defines how Planning Authorities should consider the impact of a proposed development on the significance of a designated heritage asset.

Great weight should be given to the asset’s conservation (and the more important the asset, the greater the weight should be). This is irrespective of whether any potential harm amounts to substantial harm, total loss or less than substantial harm to its significance.

Any harm to, or loss of, the significance of a designated heritage asset (from its alteration or destruction, or from development within its setting), should require clear and convincing justification. Substantial harm to or loss of:

a) grade II listed buildings, or grade II registered parks or gardens, should be exceptional;

b) assets of the highest significance, notably scheduled monuments, protected wreck sites, registered battlefields, grade I and II* listed buildings, grade I and II* registered parks and gardens, and World Heritage Sites, should be wholly exceptional.

Where a proposed development will lead to substantial harm to (or total loss of significance of) a designated heritage asset, local planning authorities should refuse consent, unless it can be demonstrated that the substantial harm or total loss is necessary to achieve substantial public benefits that outweigh that harm or loss, or all of the following apply:

a) the nature of the heritage asset prevents all reasonable uses of the site; and

b) no viable use of the heritage asset itself can be found in the medium term through appropriate marketing that will enable its conservation; and

c) conservation by grant-funding or some form of not for profit, charitable or public ownership is demonstrably not possible; and

d) the harm or loss is outweighed by the benefit of bringing the site back into use.

Where a development proposal will lead to less than substantial harm to the significance of a designated heritage asset, this harm should be weighed against the public benefits of the proposal including, where appropriate, securing its optimum viable use.

Heritage of local significance

A community group will be established to develop a local list.

There’s a post on heritage valued by the community <here>.

The aims of local list are to:

• reinforce a sense of local character and distinctiveness in the historic environment

• strengthen the role of local heritage assets as a material consideration in the planning process.

In order to ensure that the local list is based on community values that contribute to the sense of place the community needs to be involved in drafting the selection criteria, and play a role in nominating assets for inclusion. Public consultation events provide an opportunity to identify members of the community who could be interested in helping to compile such a list.

We will look for help from NCC in compiling the local list, ensuring that selection criteria provide the basis for a transparent, consistent and proportionate system for the identification, validation and recording of local heritage assets, ensuring the proper validation and recording of local heritage assets, ensuring that the information contained on local lists is publicly available and strengthening the role of local heritage assets as a material consideration in the planning process.

To ensure that the local list is consistent with the identification and management of local heritage assets across England the project will be based on Historic England Advice Note 7 (Identifying and Conserving Local Heritage) <here>.

The relevant policies in the Northumberland Local Plan (ENV7) and the current Alnwick and Denwick Neighbourhood Plan (HD3) state:

Policy ENV 7 Historic environment and heritage assets

Development proposals that affect the significance of non-designated heritage assets shall require a balanced judgement, taking into account the scale of any harm or loss and the significance of the heritage asset.

Policy HD3 protecting non-designated heritage assets

Development affecting non-designated heritage assets, whether locally listed, identified in the Historic Environment Record, through characterisation studies or research, and those identified as part of the planning application process, should have particular regard to the conservation of the heritage asset, its features, significance and its setting.

Examples of heritage that may be considered to have local significance include:

• Around a dozen individual buildings nominated by members of Alnwick Civic Society as examples of buildings of note

• Work by distinguished architects such as Reavell and Cahill, J. Wightman Douglas, William Henry Knowles, and John Dobson

• Victorian and Edwardian Villas associated with hisotrically significant local figures

• Historic Townscape spaces – including Market Place, Column Field

• Views, including the outstanding urban approach via B6341, across the Lion Bridge and up The Peth into the town centre. Significant Historic urban views – including Canongate, Bailiffgate, Pottergate, Bondgate Within and Bondgate Without.

• Landscape: several characterful landscapes, historic field boundaries and protected trees, Alnwick Moor, Historic footpaths

• Trackbeds: former Alnwick and Alnwick / Cornhill Branch

• Evidence of mineral extraction: former quarries and mines, and associated workings

• Some of the Historic Environment Records held by Northumberland County Council might also be considered (around 504 in Alnwick, 153 in Denwick).

Vulnerable heritage

Condition monitoring

The Town Council Planning Committee, Town Clerk and Civic Society are taking forward a joint action to monitor and press for action on heritage that is identified as vulnerable.

There are three elements to this plan:

• Monitoring of the condition of heritage, and maintaining a joint log of issues that have been identifed by Town Councillors and the community / Civic Society

• A review of the log every two months by the Town Council Planning Committee to assess each situation, prioritise outstanding issues and track progress

• Applying pressure on the relevant parties to take apprpriate action

At the time of writing (April 2023) the log covers:

• One case where a Public Safety concern needed urgent attention

• Three Complex Cases where individual plans are being developed in conjunction with owners and other stakeholders

• Eight cases in need of a Situation Assessment because the issues that have been raised appear serious, but it is unclear whether the owner is aware, and current plans are unknown.

• Four cases of Stalled Projects - where the owners’ plans are known, but there is little evidence that progress is being made.

• Four potential opportunities for a Community Working Party to carry out some straightforward maintenance (clearing of vegtation, painting metalwork, etc.)

• More than a dozen cases where there appears to be an opportunity for a collective initative to share the cost Maintenance at a High Level.

• Eight cases where Monitoring will conitune because there is no immediate need for action, but there is a risk that the situation might deteriorate.

Policy on Heritage at Risk

We see no need to change the current policy on heritage at risk

We see no need to change the current policy on non-designated assets

Policy HD2 Heritage at risk

Where a development proposal helps to secure a sustainable future for a heritage asset at risk, or threatened by decay and under use, this will be a factor in its favour. Such proposals are encouraged.

Owner information

We want to help and encourage owners to care for Alnwick’s heritage and enhance the condition of the Conservation Area.

We will prepare an owners’ information campaign aimed at raising understanding of designated and undesignated heritage assets.

A relatively high level of activity in the property market represents both an opportunity to enhance the historical character of the town, and a risk that ill-informed developments will undermine character. We are seeking ways to ensure that home owners are well-informed about protecting and enhancing Alnwick’s heritage. A great deal of relevant information on the effective management of heritage assets is available from authoritative sources, but it is widely dispersed. Owners are not always aware of the guidance and support that is available to them.

Step-1: Access to authoritative guidance

As a first step we intend to provide an accessible area on the Town Council Web Site, where owners of Alnwick’s heritage assets can readily find pointers to authoritative guidance on protecting and enhancing their property. The target audience will be owners of heritage assets in Alnwick, with a particular focus (but not limited to) owners of properties within the Conservation Area and Listed Buildings.

Some suggested content

• Introductory material on what it means to own and live in an older building, or live in the conservation area: the benefits and associated responsibilites.

• Many buildings in Alnwick are sufficiently important to have national protection. Guidance on when planning permission, or listed building consent is required. contact details for advice.

• Climate Action: Householders and policymakers currently have a particular interest in Climate Action, reducing Carbon Emissions and improving Energy Efficiency. An initial focus on Climate Action would support current policy priorities and help to raise awareness. Examples: special considerations for improving energy efficiency and comfort, and reducing carbon emissions in a traditional building. The impact of climate change on traditional buildings.

Step-2: Localisation

Almost all authoritative guidance on heritage conservation applies across the whole of England. Tailoring this material to Alnwick would increase its appeal locally, but when documents include statutory guidance such localisation can be time-consuming.

Illustrations in the national guidance rarely show local buildings, so some limited localisation can be achieved by grasping any opportunity to use illustrations of Alnwick buildings to emphasise local relevance. With more experience we may want to customise more material, and develop some local guidance. However, the first priority is to make existing guidance more readily avaiable and raise awareness among local owners and residents.