Regeneration through Conservation: lessons from ... -...

School of the Built Environment

Regeneration Regeneration through through Conservation: Conservation: lessons from lessons from theTownscapetheTownscapeHeritage InitiativeHeritage Initiative

Dr Alan Reeve – Savills’ Reader in Planning and Urban Design: Oxford Brookes University


IntroductionIntroduction

• 1. Background to the study• 2. Aims and key questions of the research• 3. The research scope, structure, approach and

methods• 4. Examples and findings• 5. Key variables and predictors• 6. Recommendations• 7. Summary


The Townscape Heritage InitiativeThe Townscape Heritage Initiative

• The THI is a UK government funded programme• Funds are derived from the UK Lottery• The main aim of the THI is to address problems ‘of disrepair,

erosion of quality and under use of structures where historic buildings predominate’

• The two criteria for grants are 1. that the area has recognised conservation quality, and 2. that it suffers from multiple levels of deprivation.

• One hundred and seventy five towns and cities across the UK have benefited from over £170m of HLF investment through the THI programme over the past ten years, and HLF’s funding has levered in at least another £170m from other sources.


Background to the researchBackground to the research

• OBU commissioned in 1999 to undertake a ten year evaluation of the THI programme as a whole

• The research aims to determine how well the programme is meeting its overall objectives through a review of a sample of schemes from the first three rounds

• A number of stages:• Base Line (1999)• Partial Interim (2003)• Full follow up (2007)• Potential final follow up (2010)

The study has and is providing evidence for improvements to the administration and implementation of the programme


Oxford Brookes University’s Brief:

• To review selected schemes under four themes, and draw general conclusions regarding the effectiveness of the THI in addressing these, and the relationship between them: • Quality of Life • Townscape Appearance• Economic Regeneration• Image and Confidence


16 representative schemes:CRESWELLGLASGOW LIVERPOOLNEWPORT PAGNELLWEST WEMYSS MIDDLESBROUGH COLWYN BAYBLOXWICHBODMINDRAPERS TOWN AND MONEYMORECLEATOR MOORNEWRYPEMBROKE DOCKBURSLEMWIGTOWNNEWPORT



A range of sizes: West A range of sizes: West WemyssWemyss and Pembroke Dockand Pembroke Dock


A range of needs and ambitionsA range of needs and ambitions• Merchant City – Glasgow: city centre

regeneration over 20 large urban blocks


• West Wemyss: Small village, 12 properties restored


• Wigtown: Scottish market town with one key building, and mainly public realm works


METHODMETHOD

• Four questions asked by the HLF:

• Has the THI enhanced the area’s quality of life?

• Has the THI improved the area's appearance?

• Has the THI facilitated investment in the area?

• Has the THI created greater confidence?


Indicators of Quality of Life Enhancement

Employment and IncomeEducation and Personal AspirationsSense of Community and Social InclusionSecurity, Crime and Order

Indicators of Townscape ImprovementsStreetscape QualityPublic Space ManagementPrivate Space and Façade ManagementHeritage Interpretation

Indicators of Economic RegenerationLand Use ChangesRetail Usage and DemandCapital Values and YieldsPedestrian Usage and Traffic Flow

Indicators of Image & Confidence BuildingMedia Coverage and PerceptionsAttitudes of Citizens and Community LeadersVisitation and SustainabilityBusiness Vitality and Investment

Using IndicatorsUsing Indicators


Heritage Lottery Fund’s

OriginalQuestions

Is the THI contributing to the community’s sustainability through involvement and access? Is the THI improving the area's appearance? Is the THI facilitating investment in the area?Is the THI creating greater confidence in the area?

Field ResearchObservations

and Data

QUESTIONNAIREQuestion QuestionQuestionQuestion

INTERVIEWSResponseResponseResponseResponse

TOWNSCAPESURVEY

ObservationMap

ObservationObservationObservation

SECONDARY DATAFact

StatisticGraph

MapTrend

Key Indicators &

Sub Indicators

Sub - IndicatorSub - IndicatorSub - IndicatorSub - IndicatorSub - IndicatorSub - IndicatorSub - IndicatorSub - IndicatorSub - IndicatorSub - IndicatorSub - IndicatorSub - IndicatorSub - IndicatorSub - IndicatorSub - IndicatorSub - Indicator

Themes Related to Original HLF

Questions

QUALITY OF LIFE

TOWNSCAPEQUALITY

ECONOMICREGENERATION

IMAGE ANDCONFIDENCE

strengthfrom triangulation

elegancein analysis

reliability in interpretation

ReportsBase line and subsequent time series reports measuring the impact of the Townscape Heritage Initiative in each of the sampled locations

Townscape Heritage Initiative Research Design


Questionnaire

• Postal survey to 500 to randomly selected addresses in each area• 20% - 30% response rate• Mixture of questions relating to:

perception of quality of placeexpectations re jobs, income, crime, the environmentperception of investment in the areaperception of the attitude of the LA to the areaknowledge of the heritage value/ characteristics of the placeage/ employment profile

Baseline established position prior to these issues, and two subsequent surveys to determine change in perceptions etc


Response to Household Questionnaire

Mean Score out of

5

Couldn’t be Better OK Could be

Improved

Has Some Proble

ms

Has Serious

Problems

Don’t Know

3.2005

As a place to work, ColwynBay Responses: 69

2.83 11.4%

2332.9%

2535.7%

710%

912.9%

45.7%

3.2000

As a place to work, ColwynBayResponses 108

2.38 32.8%

1816.7%

3229.6%

2422.2%

2624.1%

54.6%


THI SiteQuestion B 6 where answer is “Unemployed and looking for work” [%]

Table 6.4.1. c) Claimant Unemployment Rate 2004 or 2005 [%]

Bloxwich 7.2 7.2 Bodmin 2.2 2.5Burslem 3.7 3.9Newport Pagnell 0 0.85Cleator Moor 1.3 3.5Colwyn Bay 0 3.4Liverpool 2.8 6.2 Newport 0 5.8Pemroke Dock 1 4.3


Townscape evaluation

• Land use survey to establish changes in uses, and changes in vacancy rates and location of these

• Townscape scoring – taking a number of views and scoring these in terms of

public space qualityprivate space qualityheritage standard – maintenance etc


A. STREETSCAPE: QUALITY & MAINTENANCE A1 – Pedestrian Friendly …..... A2 – Cleanliness …..... A3 – Coherence …..... A4 – Edge Feature Quality …..... A5 – Floorscape Quality …..... A6 - Legibility …..... A7 – Sense of Threat ….....

A8 – Personal Safety: Traffic …A9 – Planting: Public …A10 – Vitality …A11 – Appropriate Resting Places …A12 – Signage …A13 – Street Furniture Quality …A14 – Traffic Flow. Appropriateness …

B. PRIVATE SPACE IN VIEW C. HERITAGE IN VIEW

B15 – Advertising, in keeping …..... B16 – Dereliction, Absence of …..... B17 – Detailing Maintenance …..... B18 – Façade Quality …..... B19 – Planting : Private ….....

C20 – Conserved Elements Evident …C21 – Historic Reference Seen …C22 – Nomenclature/Place Reference …C23 – Quality of Conservation Work …C24 – Quality of New Development …C25 – Neglected Historic Features

TOWNSCAPE EVALUATION PRO-FORMALOCATION: DATE: TIME:REFERENCE: WEATHER:

Score between 0 (absent) and 5 (excellent) for each factor.Impression Score out of 5 (1=couldn’t be worse, 5=couldn’t be better).


Townscape scores for West Wemyss – 2000 & 2005


2000 2006Townscape land use mapping sometimes revealed changes but without any net gain in occupancy which was the case in

Burslem.


Interviews

• Stakeholders:THI officersLocal authority plannersconservation officerspoliceeditor of local paperChamber of Commerceestate agents

To build up a clear impression of perceptions of the impact of the THI


Secondary data• Employment rates• Income – households on benefits• Exam achievements• Absenteeism rates• Combined social deprivation ranking(note – all schemes in lowest 25% of wards rated against the index of

multiple deprivation)• Voting turn-outs (in some wards as low as 17% in General Election)• Recorded crime levels• Average house prices• Rents and yields • Number of vat registered properties

Difficulties with secondary data in longitudinal evaluation- mapping information and data against THI area- Changes in the style of data and how it was collected over time


The Balanced Scorecard –Creswell 2000 and 2006

The Balanced Scorecard of Creswell

Indicator Possible-MaximuAdj. Site Scor %Indicators of Quality of Life Enhancement

Employment and Income 20 10.91 54.55Education And Personal Aspirations 20 11.64 58.2

Sense of Community and Social Inclusion 20 11.4 57Security, Crime and Order 20 8.32 41.6

Indicators of Townscape ImprovementsTownscape Quality 20 10.7 53.5

Public Space Management 20 10.51 52.55Private Space and Façade Management 20 9.4 47

Heritage Interpretation 20 10.47 52.35Indicators of Economic Regeneration

Land Use Changes 20 5.6 28Retail Usage and Demand 20 8.28 41.4Capital Values and yields 20 14.44 72.2

Pedestrian Usage and Traffic Flow 20 13.32 66.6Indicators of Image and Confidence Building

Media Coverage and Perceptions 20 10.87 54.35titudes of Citizens and Community Leaders 20 9.92 49.6

Visitation and Sustainability 20 9.44 47.2Business Vitality and Investment 20 11.65 58.25

Total 320 166.87 52.1


Examples of change due to THI• West Wemyss – High Street terrace restored and

re-inhabited, increase in population of the village and greater vitality

2000 2006


The physical changes in some THI sites such as the Liverpool Rope

Walks was dramatic

2000 2005


2000 2006

Building improvements in Bloxwich


2000 2005

In Colwyn Bay very modest upgrades in the urban fabric have translated into greater changes in local attitudes than one might have predicted.


Positive catalytic effects: Glasgow

• Merchant City – Glasgow: leverage - £250,000 grant led to £15 million investment in a single building


Negative catalytic effect: Newry


Intractable resistance to improvement: absentee and uninterested property owners


Some analysis


Change by themeChange by themeTOWNSCAPE %Change

• CRESWELL 12• WEST WEMYSS 12• LIVERPOOL 10.5• GLASGOW 9.25• BODMIN 8.5• MONEYMORE 8• BURSLEM 6.75• BLOXWICH 5.75• PEMBROKE DOCK 5.75• WIGTOWN 3.75• N.PAGNELL 3.5• NEWRY 2.5• NEWPORT 2.5• DRAPERSTOWN 2.25• MIDDLESBROUGH 1.75• COLWYN BAY 1• CLEATOR MOOR 0.75%

• % Change 5.68

ECONOMIC REGEN%Change• CRESWELL 12.75• LIVERPOOL 8.75• N.PAGNELL 8.75• WEST WEMYSS 8.25• GLASGOW 6.25• BODMIN 6.25• NEWRY 5.25• BLOXWICH 4.25• MONEYMORE 4• MIDDLESBROUGH 3.5• PEMBROKE DOCK 3• COLWYN BAY 2.5• CLEATOR MOOR 1.75• WIGTOWN 1.75• DRAPERSTOWN 0.5• BURSLEM 0.25• NEWPORT 0.25

• % Change 4.59


IMAGE %Change• CRESWELL 10.5• N.PAGNELL 9.5• GLASGOW 8• WEST WEMYSS 7.5• COLWYN BAY 6.75• MIDDLESBROUGH 6.25• LIVERPOOL 5.5• CLEATOR MOOR 5• BLOXWICH 4.5• DRAPERSTOWN 3.5• NEWRY 2.5• BURSLEM 2.5• BODMIN 2• MONEYMORE 1.75• PEMBROKE DOCK 1.75• NEWPORT 1.75• WIGTOWN 0.5% • %Change 4.69

QUALITY OF LIFE %Change• COLWYN BAY 9.25• GLASGOW 6.75• CRESWELL 6.5• MIDDLESBROUGH 5.25• BLOXWICH 4.25• LIVERPOOL 3.75• N.PAGNELL 3• DRAPERSTOWN 2.25• BODMIN 2• CLEATOR MOOR 1.75• MONEYMORE 0.5• NEWRY 0.5• PEMBROKE DOCK 0.5• BURSLEM 0.5• WEST WEMYSS 1.5• WIGTOWN 2.25• NEWPORT 3.5% • %Change 2.21


Highly Successful Fair Success Some Success Little or no Change Worse


Creswell – successful investment:improved on all measures


Less successful: Cleator Moor


Key variables that account for success (or failure)

• Intrinsic variables – those factors within the funding, organisation and implementation of a project

• Extrinsic variables – those factors within the context of regeneration in an area


Intrinsic variablesIntrinsic variables• The scale of the project relative to the size of the place or location

requiring regeneration: the more comprehensive a project the greater its impact

• The more experienced and developed a partnership the greater the impact

• The commitment, skills and continuity of the key staff involved

• The length of time allowed within the programme to commit funding

• The more focused a scheme’s objectives on quality conservation and physical regeneration the greater the impact

• Establishing and maintaining the commitment of partners is critical


Extrinsic variablesExtrinsic variables• The local economic context is the single most important

factor in determining a scheme’s success

• The nature of ownership of properties to be restored

• The presence or otherwise of appropriate conservation expectations and building skills: this will impact directly on the townscape quality of a scheme

• The most successful THIs are those which are part of, and are designed as part of, a wider regeneration and conservation strategy, particularly in complex and large areas of regeneration need for instance, Glasgow, and Liverpool. The less successful schemes are where such a strategy is underdeveloped – arguably in Burslem, Middlesbrough and Newport


Main recommendation:Main recommendation:

• The HLF should develop a clear and measurable assessment framework which can be used to evaluate or predict the likely success of a scheme (iein terms of its potential impacts in the four thematic areas of interest for the THI – townscape, economic regeneration, quality of life and image)


Predictors of positive regeneration outputs and outcomes in heritage based schemes: four themes

• Conservation/townscape outcomes• Economic outcomes• Social cohesion outcomes• Wider regeneration outcomes


Theme: Conservation/townscape outcomes

1. Experience of conservation/regeneration2. Objectivity of assessment of cost of expertise3. Local capacity to deliver conservation standard work4. Accurate assessment of conservation and townscape

value/potential5. Presence of other regeneration/ heritage schemes in the

area


Theme: Economic outcomes

6. Economic trends over previous five years: Locally, regionally, nationally

7. Entrepreneurial capacity8. Housing demand9. Absentee and recalcitrant landlords10. Employment and income levels11. Assessment of cost/value gap12. Commercial demand


Theme: Social cohesion outcomes

12. Demographic trends13. Social capital 14. Crime rates15. Historical context


Theme: Wider regeneration outcomes

16. Regeneration experience17. ‘Vision’18 Administrative competence:-knowledge, skills, training19. ‘Fit’ of THI to delivery and management structures


SOME CONCLUSIONSSOME CONCLUSIONS

• Success of schemes cannot be separated from local/regional (and now national) economic and social trends

• Conservation investment focused on highly visible landmark buildings, and public realm works produce best results across all themes

• Where demand and community and conservation aspirations have been latent positive results follow

But:• Lack of success is associated with entrenched

economic and social problems, low demand for housing and business premises - where there is long term neglect


SummarySummary• In summary, the THI programme can turn places

around – combined in some cases with other conservation investment

• Without the THI investment it is likely that some of even the most improved schemes would have continued to decline, and their built heritage have been lost

• The majority of schemes reviewed represent good to very good value for money: it should be possible to predict where this will not be the case


The Research TeamThe Research TeamKey researchers:• Dr Alan Reeve (Oxford Brookes University/ Townscape Heritage

Research Unit)• Dr Robert Shipley (University of Waterloo)• Philip Grover (formerly Oxford Brookes University)Field work:• Michelle Thomas (Oxford Brookes University)• Professor Brian Goodey (Oxford Brookes University)• Dana Svihlova (Matej Bel University)Desk based:Andrew Chadwick (Oxford Brookes University)Catherine Tranmer (Oxford Brookes University)plus some half a dozen assistant research staff (Oxford Brookes

University)

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