Portico Heritage

Plymouth City Centre

Potential Core City Centre Conservation Area Options

March 2019

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Introduction

1 This paper has been prepared to review and consider options for and implications of Conservation Area designation for the core city centre of Plymouth.

2 It considers the criteria for designating a conservation area and identifies the potential benefits both in general and for Plymouth.

3 There have been a number of reports previously prepared including a ‘Heritage Audit & Statement of Significance’ prepared for Plymouth City Council (May 2014) and a ‘Draft Appraisal for a Potential Conservation Area’ (December 2017) by The Twentieth Century Society. Plymouth City Centre Strategic Masterplan was adopted in February 2017.

4 The report has also had regard for the Local Development Framework, in particular the City Centre and University Area Action Plan.

5 These reports have provided the background, historical analysis and informed this discussion paper.

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The Core City Centre

6 For the purposes of this paper, the overall area that could be defined as the Core City Centre has been defined in the Council’s Heritage Audit & Statement of Significance (2014). This was drawn from the City Centre and University Area Action Plan. It is focussed primarily on the area of the city centre reconstructed following the Second World War including the ‘retail’ and ‘civic centre’ and ‘University’ elements of the city centre.

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7 The area largely represents a distinct period of development, the principles of which were laid out in Patrick Abercrombie’s 1943 Plan for Plymouth. The south eastern part of the area incorporates a small portion of the Barbican Conservation Area and is characterised by a distinct cluster of listed buildings which predate the post-war redevelopment, but which were retained as part of this process and are clearly of heritage significance in their own right.

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8 The area contains a number of statutory listed buildings, including the listed former Civic Centre, Theatre Royal, Guidlhall and St Andrew’s Church amongst others and also incorporates the Civic Square, an Historic England grade II registered historic park and borders at its southern point on the Hoe, also a grade II registered park.

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Post-War Conservation

9 There is currently a growing awareness and appreciation of the historical and architectural importance of the post-war regeneration as a product of Second World War devastation. A number of other places have embraced this legacy to harness economic and cultural benefits. Coventry is an example within the United Kingdom, whilst Le Havre provides an interesting equivalent approach in northern France.

Coventry

10 Similar to Plymouth, Coventry required comprehensive reconstruction following the devastation of the Second World War. Here, the city’s reimagining was the product of civic architect, Donald Gibson, and included Europe’s first pedestrianised shopping centre. Key buildings in the centre featured works by leading British artists and were designed to form long avenues with the spire of the firebombed cathedral – a symbol of post-war reconciliation along with the new Cathedral – at their apex.

11 Working with Coventry City Council, Historic England designated a Heritage Action Zone (HAZ). This aims to boost the city’s image and prosperity by celebrating its heritage whilst promoting new investment and development in support of sustainable growth. Using the historic environment as a catalyst, it aims to strengthen the city’s economy and meet the social needs of the community.

12 The HAZ will work in tandem with several other initiatives in the city, working with the City Council and other local stakeholders. Historic England have undertaken to provide a combination of expertise, support and grant funding. For example historic buildings that are deteriorating following decades of neglect will be restored for residents and tourists to enjoy; conservation areas will be improved to kickstart regeneration; and the historic environment will be enhanced to help create an attractive city centre – attracting businesses, and instilling a sense of pride in residents.

Le Havre

13 Le Havre, located at the mouth of the Seine in Normandy was devastated in the Battle of Normandy during the Second World War. Between 1945 and 1964 it was comprehensively re-built in the modernist style by a team of architects led by Auguste Perret.

14 After completion of the works in 1964, the reconstructed area was not readily accepted by the population. It was not until the mid 1980s that a slow appreciation of the unique legacy began. Protection was first given in 1995 with the designation of a ZPPAUP (Zone de protection du patrimoine architectural, urabain et paysager). In 2005 the city was granted World Heritage Site status. This has raised the status and prestige of the post-war city considerably.

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15 The keen interest of visitors to Le Havre has led to renewed pride, enhanced engagement, and stronger local ownership of heritage. Embracing postwar heritage has also presented new opportunities for cultural developments in a port city suffering economic decline, including MuMa Le Havre, a gallery containing a large collection of Impressionist art, Le Volcan, an arts centre designed by Oscar Niemeyer, and The Bain Les Docks by Jean Nouvel, a new public baths and lido complex set within a formerly disused dock basin. The city has benefitted from a doubling of tourist numbers since designation as a World Heritage Site, and the price of a hotel room has risen by 40% in real terms. Record numbers of cruise liners (150 in 2017) are also visiting the city.

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Conservation Area Designation – Requirements

16 A conservation area is an ‘area of special architectural or historic interest the character and appearance of which is desirable to preserve or enhance’. In February 2016 Historic England published ‘Advice Note 1: Conservation Area Designation, Appraisal and Management’.

17 Conservation area designation introduces controls over the way owners can alter or develop their properties. These include:

• Demolition of unlisted buildings;

• Ability to restrict advertisements allowed with deemed consent;

• Control of the types of development which can be carried out without the need for planning permission (permitted development rights) and

• Works to trees

18 The objective of these controls is not to prevent change or development but rather help preserve the special character and appearance of the area and maintain or improve its environmental quality. The evolution of a conservation area is managed through the production of a character appraisal and management plan.

Why consider a Conservation Area?

19 Conservation Areas have a prestige value, recognising the special character and appearance of an area. They contribute to and provide a means of protecting the sustainability and economic vitality of the area, ensuring that new buildings harmonise with or complement their neighbours in scale, style and use of materials, inspiring new development of imaginative and high quality design.

20 Conservation Areas help to codify the ‘group value’ of an area and can play an important role in creating a cohesive sense of place and destination.

21 They provide opportunities for directing resources to make environmental improvements or controlling intrusive signs or adverts, and help generate awareness and pride in the area.

22 They can attract grant funding from bodies such as Historic England and the Heritage Lottery Fund.

23 Evaluation evidence from the Derby Partnership Scheme in Conservation Areas (PSiCA)(2008-2016) shows that while average footfall on high streets around the nation dropped by 26% between 2008 and 2013, the Derby PSiCA areas

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reversed a spiral of decline and saw footfall growth of between 12% and 15% in the same period1.

24 People spend more in their local economy after investment in the historic environment: In areas that had received investment in the historic environment, approximately one in five visitors in a survey of 1000 stated they spent more in an area after in an area after investment in the historic environment than they did before. One in four businesses stated that the historic environment investment had directly led to an increase in business turnover.

25 The grants programme in Derby resulted in a fall in vacancy rates from 40% vacant in 2008 to 100% occupancy in 20172.

Specific Benefits for Plymouth

26 Consideration of a conservation area for the Core City Centre could lead to a number of specific benefits for Plymouth:

• Formal recognition of the importance of Plymouth’s Post-War legacy at a time of growing awareness and appreciation of this period of history will add further to Plymouth’s status as a place of interest to visit.

• The specific controls that can ensure a quality retail environment to attract the best occupiers and consumers.

• Potential partnership funding from Historic England through a High Street Heritage Action Zones or Partnership Scheme.

27 £40 million of funding from central government has been allocated to Historic England to deliver High Street regeneration through physical improvements and cultural activities. A further £15 million from the Architectural Heritage Fund can also be used for similar purposes. Both funds are only available for conservation areas.

28 The designation of a new Conservation Area will not impede current regeneration projects currently being implemented.

1 Historic England (2018) Heritage and the Economy 2 ibid

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Historic Background

29 The evolution of Plymouth – the city being formally created in 1928 from the three separate towns of Plymouth, Stonehouse and Devonport – is clearly of considerable historical significance, much of which is derived from its strategic naval importance and this forms a relevant part of understanding its development. However, it its post-war transformation that is the main focus of this report.

The Plan for Plymouth

30 The Plan for Plymouth, prepared in 1943 by Professor Patrick Abercrombie and James Paton Watson, Plymouth City Engineer, was designed as a response to the devastation wrought on the city by bombing during the Second World War.

31 It is centred on the intersection of Armada Way and Royal Parade. The grid layout of streets and buildings to the north of Royal Parade and the modern Civic Centre to the south were developed over a period from 1948-1962. The earliest elements of the plan to be constructed between 1948 and c.1952 were the major commercial buildings along the norther side of Royal Parade. These were inevitably the larger businesses, such as banks, insurance companies, and larger retailers, who could afford the best locations and the expensive building licences which allocated scarce resources.

32 Following this initial phase of major construction, the next period, c.1953-8, saw the completion of Royal Parade and its termini at Derry’s Cross and St Andrew’s Cross, as was the expansion of construction up Armada Way.

33 Between roughly 1958 and 1962 the side streets stretching from Armada Way (New George Street and Cornwall Street) were completed, catering for mostly smaller retailers. Pannier Market replaced the temporary market at the western end of New George Street in 1956-9. Mayflower Street, at the northern end of the planned development, remained largely incomplete.

34 The Civic Centre was completed in 1961 and the Reconstruction Committee was disbanded in the same year.

35 The Plan reflects the planning, architectural and social vision of Abercrombie, who allowed individual architects the freedom to design the buildings but within a framework informed by his requirement for architectural consistency. This resulted in buildings designed by some of the leading architects of the time, including Thomas Tait of Sir John Burnet Tait and Partners, J Murray Easton, Curtis Green, Howard Robertson, Giles Gilbert Scott and Louis de Soissons, amongst others, as well as notable local architects, Walls & Pearn. The successful marrying of materials (particularly the use of Portland Stone) and the cohesion of applied art and architecture is very much of its time.

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36 The following plan outlines the area covered by the Council’s Heritage Audit and Statement of Significance and also shows the surrounding conservation areas.

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The City Centre Today: Assessment of Heritage Significance

37 The Heritage Audit & Statement of Significance defines the significant elements of Abercrombie’s Plan which make a positive contribution to the heritage significance of the area and that the detract from this. Building which have a neutral impact are only highlighted where they are buildings of a significantly large scale or footprint to warrant mention.

38 A particular method of considering heritage significance was to classify the main elements of the city centre envisaged in Abercrombie’s plan and to compare how the existing elements of the realised development relate to this. There are also buildings and spaces that have heritage value largely unrelated to the Abercrombie Plan.

39 There are a number of buildings and spaces that are statutorily listed within the study area. These include:

40 Pannier Market (II); Royal Bank of Scotland, St Andrew’s Cross (II); Theatre Royal (II); Council House & Former Civic Centre (II); Guildhall (II); St Andrew’s Church (I); Former Barclay’s Bank (II); Dispensary (II); Unitarian Church (II); Catharine Street Baptist Church (II); St Andrew’s Abbey Hall (II); Prysten House (II); Synagogue (II*); 1-4 St Andrew’s Street & PH (II).

41 The heritage significance of the study has been summarised in two key ways – buildings and spaces - and these are identified through a series of ‘character areas’ and illustrated in the following plans.

42 Buildings: The study identifies that the majority of buildings of significance are focussed in the south of the area – along Royal Parade and the southern end of Armada Way, and including the civic centre of the city – and stretching between Derry’s Cross and St Andrew’s Cross.

43 Spaces: The most important axis is represented by Armada Way and Royal Parade, with Royal Parade terminated by Derry’s Cross and St Andrew’s Cross. To the south of Royal Parade The Civic Square is listed in its own right. Whilst the two Crosses have retained their position and plan, the buildings around Derry’s Cross has been subject to change and redevelopment, whilst St Andrew’s Cross has retained more of its original, high quality buildings.

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Plan summarising the assessment of significance in the Heritage Audit. The study area is highlighted in solid red. Buildings of high significance are highlighted in red. Buildings of medium significance are highlighted in orange. Buildings of moderate significance are highlighted in yellow. Buildings of low significance are highlighted in green. Buildings of neutral significance are not highlighted. Intrusive buildings are highlighted in blue.

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Plan summarising the assessment of significance in the Heritage Audit. The study area is highlighted in solid red. Spaces of high significance are highlighted in red. Spaces of medium significance are highlighted in orange. Spaces of moderate significance are highlighted in yellow. Spaces of low significance are highlighted in green. Spaces of neutral significance are not highlighted. Intrusive buildings are highlighted in blue.

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Options for Conservation Area Consideration

44 Historic England guidance (Conservation Area Designation, Appraisal and Management, Guidance Note 1) identifies that a conservation area would normally be made up of:

• Areas with a high number of nationally designated heritage assets and a variety of architectural styles and historic associations

• Those linked to a particular industry or individual with a particular local interest

• Where an earlier, historically significant, layout is visible in the modern street pattern

• Where a particular style of architecture or traditional building materials predominate

• Areas designated because of the quality of the public realm or a spatial element, such as a design form or settlement pattern, green spaces which are an essential component of a wider historic area, and historic parks and gardens and other designed landscapes, including those of the Historic England Register of parks and gardens of special historic interest.

45 A decision to pursue some form of Conservation Area status for the Core City Centre will need to demonstrate that it has considered these issues and encapsulates and area of special interest. Based on the analysis carried out in the Heritage Audit and Statement of Significance a number of broad possible areas are considered below:

Option 1: The Whole Study Area

46 This option forms the main core of Abercrombie’s Plan and the University area as defined in the City Centre and University Area Action Plan.

Advantages

47 The area has significance as an important representation of Plymouth’s pioneering post-war vision and the original plan form remains largely intact. It would encompass the main components of Abercrombie’s vision of both buildings and spaces as well as the University area to the north east and relate to the Area Action Plan.

Disadvantages

48 As is identified in the Heritage Audit, large parts within this area do not contain any surviving built elements of particular interest which are focussed to the south of the area.

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49 The area forms different and not-necessarily related elements – particularly the University area.

50 A large area would mean that any available resources would potentially be spread very thinly, thus dissipating its impact and benefits.

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Option 2: The Core Abercrombie Plan Area

51 The main element of Abercrombie’s vision from North Cross, encompassing the pedestrianised retail and civic areas down to Notte Street in the south.

Advantages

52 This area contains the majority of buildings of significance and represents the most intact elements of both the retail and civic aspirations of the original Abercrombie Plan, particularly the layout and plan form.

53 It has a defendable boundary of main roads to its east and south clearly defining it.

Disadvantages

54 Similar to Option 1, large parts within this area do not contain any surviving built elements of particular interest, including the shopping centre, which are focussed to the south of the area .

55 An area this size would still mean that any available resources would potentially be spread very thinly, thus dissipating its impact and benefits.

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Option 3: Cornwall Street and South

56 An area that is formed to the north by Cornwall Street and Notte Street to the south.

Advantages

57 This area contains the majority of buildings of significance and represents the most intact elements of both the retail and civic aspirations of the original Abercrombie Plan.

58 Whilst Cornwall Street itself is not identified as containing many buildings of significance, it forms a core part of the pedestrianised retail centre and is book ended to the west by the Grade II listed Pannier Market, which is itself an important element of the vision for the city centre and is the central element of a small square of retail units with flats above on Market Avenue.

59 The majority of the buildings along Royal Parade are identified as being of high or medium significance and the majority of those on the southern side of the road are statutorily listed.

60 Many of the buildings on the northern side of Royal Parade are formed of blocks that stretch through to New George Street and thus their integrity also forms part of the character of the southern side of that street. New George Street also contains the Western Morning News building – one of the few buildings that pre-dates the plan.

61 The area is bookended by Derry’s and St Andrew’s Crosses. Key termini for the original Plan and containing a number of buildings of interest.

62 Whilst the area to the north of Royal Parade forms a more ‘retail and commercial’ zone, to the south the buildings and spaces are largely ‘civic’ in their purpose and function. This includes the newly listed Theatre Royal, Civic Centre and Catherine Street Baptist Church.

63 Adjacent to this area, to the south east, are St Andrew’s Church and the Guildhall – which logically form part of a cohesive civic area. However, this area already falls within the Barbican Conservation Area and is therefore already protected.

Disadvantages

64 This option does not encompass the whole of the post-war Abercrombie Plan area – parts of which are clearly an important element of what has been identified as being of interest.

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Option 4: Royal Parade and the Civic Square

65 A conservation area that was tightly focussed on Royal Parade, terminated by Derry’s Cross and St Andrew’s Cross to the east and west and the Civic Square to the south.

Advantages

66 This area would encompass the key buildings and spaces identified in the Heritage Audit.

67 Whilst this would not protect the wider Abercrombie Plan area, it would ensure the best buildings and the most important axis are included and represents both the retail and civic aspirations of the original plan.

68 The analysis carried out by the Heritage Audit, particularly in identifying the key significant buildings provides a boundary to this area in line with Historic England Guidance.

69 A focussed area would enable efforts, resources and grant funding to be targeted in a meaningful and ultimately more effective way.

70 Similar to Option 3, the majority of the buildings along Royal Parade are identified as being of high or medium significance and the majority of those on the southern side of the road are statutorily listed.

71 Many of the buildings on the northern side of Royal Parade are formed of blocks that stretch through to New George Street and thus their integrity also forms part of the character of the southern side of that street. New George Street also contains the Western Morning News building – one of the few buildings that pre-dates the plan.

72 The area is bookended by Derry’s and St Andrew’s Crosses. Key termini for the original Plan and containing a number of buildings of interest.

73 Whilst the area to the north of Royal Parade forms a more ‘retail and commercial’ zone, to the south the buildings and spaces are largely ‘civic’ in their purpose and function. This includes the newly listed Theatre Royal, Civic Centre and Catherine Street Baptist Church.

Disadvantages

74 There are a number of important buildings and spaces, for example the Pannier Market, that are not included within this option, which has been drawn tightly around a core part of the post-war city centre, centred on Royal Parade.

75 This option has the potential to draw criticism for not reflecting the wider area and creating a less coherent boundary.

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Summary

76 The post-war redevelopment of Plymouth following the preparation of Abercrombie’s Plan for Plymouth in 1943 has long been regarded as being of historical and architectural interest. However, it is vital that its contribution to Plymouth’s future is as much based on its ability to support and sustain an economically vibrant future as a recognition of its past.

77 The designation of a conservation area for, at least part, of the central city area has the potential to formally recognise the quality and status of this element of Plymouth’s more recent history and equally importantly unlock the possibility of funding to help reinstate its quality and special character in a way that supports the continued vitality of the city centre.

78 Historic England have demonstrated their commitment to Plymouth through over £1.6 million of grant aid since 2015, including a significant recent award to making up a shortfall to allow restoration of the Royal William Yard’s Melville building to commence. The further £55 million of grant funding from Historic England and the Architectural Heritage Fund for High Street regeneration across the country is only available to areas designated as Conservation Areas. This would be a way for Plymouth to tap into this fund.

79 Of the possible options outlined above, the first two options include the main elements of Plymouth’s post-war redevelopment however there is a chance that their size will dilute both the economic benefits and public appreciation that conservation area designation might bring.

80 Option 3 encompasses the key buildings and spaces and would ensure that the spirit of the Abercrombie Plan for Plymouth is positively recognised and celebrated, however even this option is potentially too large to ensure any regeneration is visibly effective.

81 A tightly defined area, such as Option 4, will still include the key spaces and buildings – enabling the best quality, materials, public art and public spaces to be positively recognised and celebrated - and could ensure that any funding that is spent has the best possible chance to meaningfully enhance the area.

Recommendation

82 A Conservation Area based on Option 4 provides the best chance to recognise the most important part of Plymouth’s post-war redevelopment in a way that can focus funding and effective enhancement in a purposeful and worthwhile way. It encompasses the majority of most significant buildings and the key access of Royal Parade and Armada Way.

83 If designated it is recommended that the boundary is reviewed in line with good practice and national planning policy when the Local Plan is reviewed in five years time to consider a further extension to encompass that area described in Option 3.

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Nick Collins BSc (Hons) MSc MRICS IHBC March 2019 The author of this report is Nick Collins BSc (Hons) MSc MRICS IHBC. Nick has over twenty years experience in the property sector, including most recently as a Director of the Conservation Team at integrated design consultants, Alan Baxter & Associates. Nick spent eight years at Historic England as a Principal Inspector of Historic Buildings & Areas where he led a specialist team of historic building inspectors, architects, and archaeologists on a wide range of heritage projects. Previously Conservation Officer at the London Borough of Bromley, Nick began his career at international real estate consultancy Jones Lang LaSalle as a Chartered Surveyor. This experience has given Nick an in-depth understanding of the property industry, listed building and planning process, heritage policy, guidance and funding bodies. In the south west, Nick has provided advice for Bath University, the Hall for Cornwall Truro, The Market House St Austell, Kresen Kernow, Redruth and Network Rail in Bath & Bristol amongst other projects.