Historic Towns Forum Introduction to Heritage Planning Study toolkit Oxford Castle - a Preservation Trust Case Study

town history, outside the University, County with a strong reputation as an and opening it to visitors for the first exceptional place to live, work, learn time in its 1000 year history. and visit.

Oxford Preservation Trust is proud to be one of three key partners in deliv- ering the development and continues to take responsibility for the historic heart of the site with the remains of the Norman castle and other historic buildings. Conservation, heritage and education objectives were key to the success of the development The Oxford Castle Heritage Site is a and were agreed at the outset by A Brief History striking social and cultural develop- the County Council and the Oxford For 1,000 years Oxford Castle has ment in the centre of the city con- Preservation Trust, and accepted by occupied a five-acre site in the heart necting into Oxford’s West End. A other partners as a critical part of the of Oxford. The castle was originally five acre site surrounded by walls, it development. built by Robert D’Oilly, for William incorporates the remains of Oxford the Conqueror and has been home Castle the ancient county gaol, and As the freehold of the site is owned to kings, sheriffs and, latterly, con- the more modern prison. Today it has by Oxfordshire County Council, it victs. For 900 years Oxford Castle been transformed into a sustainable was important that the development was used for a Prison, cut off from mixed-use development comprising could contribute to the Council’s the rest of the city. As a Castle, the an art gallery, hotel, education centre, strategic priorities, creating new jobs, walls kept people out and later, as a heritage visitor attraction, residen- leisure services and new homes. The prison, they kept people in, so that tial apartments, and restaurants new hotel, restaurants, apartments the site has never been open to the and bars, found across the site, set and pedestrian through routes have public before, until now. around public squares and gardens, ensured that the site is integrated each with its own distinct character. into the city, creating a commercially The Oxford Castle Heritage Project viable place which is lived in and well began in 1997 when Oxfordshire The regeneration of the Oxford Cas- used by residents and visitors. The County Council purchased the free- tle Heritage Site has been achieved history of the castle and the gaol has hold of the castle site from the Home through a successful partnership been used to the full in the Oxford Office, when the HM Prison closed. between the public, private and third Preservation Trust’s heritage visitor The site included several Scheduled sector, careful restoration, imagina- attraction and education centre Ox- Ancient Monuments, Grade I, Grade tive planning and proactive communi- ford Castle Unlocked giving everyone II* and Grade II listed buildings and ty engagement. All the buildings and the chance to learn more about the structures, and included the two old- structures are listed, so that it was city, outside the university. Together est remaining structures in Oxford some challenge to create a sustain- we have created a new cultural and – St George’s Tower and the Castle able commercial development, which commercial quarter for Oxford, open- Mound. The right for the Council to conserved this unique place, as the ing the site for the first time in its acquire the site had been retained most significant piece of Oxford’s history, and adding to the offer in a in criminal justice legislation in the 1970’s, largely due to the efforts of by working in partnership with the Trust For Oxfordshire’s Environment. Hugh Merscy Walton who was at private sector and by securing grant that time solicitor to the Council and funding. With shared vision, open lines of subsequently a trustee of Oxford communications and a team ap- Preservation Trust. Following a selection process, the proach, the partnership worked Trevor Osborne Group was chosen together to drive the project forward. Oxford Castle first appears in the as its development partner; the first Over the months of construction, OPT’s Annual Report of 1942: “Great of a number of successful partner- there was a range of obstacles that expectations have been aroused ships across the site. needed to be overcome including de- recently by the prospect of Oxford lays from public utilities, arson and a Castle and Prison being vacated…. With its long history and connection main contractor going into liquidation. and the possibilities for the site…as to the Castle, Oxford Preservation All of these difficulties and others a space..for a public park, perhaps Trust understood the importance of were managed and absorbed proving a County and City museum”. There the site and the positive contribution the true strength of the partnership. were several further rumours of the that they could make by becoming prison closing, so that when it did more closely involved taking respon- Oxford Castle Ltd. was required to happen in 1996 various organisations sibility for the ancient buildings which carry out the restoration work to the and individuals had hopes of using were less likely to have commer- historic buildings and provide ena- the site for uses including a concert cially viable alternative uses. These bling works for the Oxford Preserva- hall, museum of military history, and included the Mound, St George’s tion Trust development before the student housing. Tower, and D Wing, now the heritage lease from the County Council was The County Council’s ambition was attraction and education centre, and granted or any of the commercial to see the site re-used and regener- so the Trust became the third partner businesses could open. The value of ated. It set out clear project objec- in the development. these enabling works were treated as tives, in spite of property consult- match funding and helped the Trust ants advice that “there could be no This provided the opportunity to bring to secure just over £4m from the alternative uses for Oxford Castle together many of the Trust’s primary Heritage Lottery Fund. with any positive value…. the site is a objectives, protecting the site for its liability….” character, history and setting within Involving Communities the city, and enabling the Trust to The objectives were: provide better education and under- Consultation and community involve- • to restore and conserve the standing of the city’s heritage, whilst ment were central to the regeneration historic buildings ensuring that the overall redevel- of the Oxford Castle Heritage Site. • to maximise public access to and opment of the site respected and Residents and stakeholders were through the site and to as many of responded to its historic, architectural consulted through a range of public the buildings as possible and archaeological significance. On meetings, user groups and consulta- • for the whole site to be developed, completion of the development, the tion exercises. A newsletter kept local managed and recognised as a Trust has taken a fifty year lease of residents and commercial businesses single entity a significant part of the site including in the vicinity informed and engaged, • to encompass sustainable the buildings and structures around and a community notice board on the commercial use as well as a full the Castleyard, which it redevel- site entrance, a programme of media interpretation of the site’s history oped and subsequently sub-let to releases, and public open days, kept and heritage and good provision experienced commercial operators, the wider public up-to-date. for education Continuum, who run Oxford Cas- • to be delivered at minimum risk tle Unlocked and the Key Learning Initially, there were concerns from and cost to council tax payers Centre. local interest groups about losing the site to commercial interest with Joining Forces Grant funding was secured from Oxford Preservation Trust being at SEEDA (South East England Devel- the forefront of this concern that any The County Council realised that opment Agency), English Heritage, redevelopment should give the public this venture could only be achieved the Heritage Lottery Fund and the access and that the history, archi- tecture and archaeology of the site The Conservation Plan led to the future change in response to be understood before changes were drawing up of a set of Conserva- users’ needs. made which might damage these and tion Objectives which were incorpo- impact on the setting and views of rated into all of the legal documents the castle mound. A high profile lobby including the future Management group, ‘The Castle Action Group’, Agreement and various leases which was formed to oppose development. ensure that they can act as a guide To address these concerns, the and control for the site into the future. County Council formed the Castle Consultative Forum including key Oxford Preservation Trust and representatives from the Castle Ac- the County Council also agreed a tion Group, and through this involve- number of Heritage Objectives which ment they later became key advo- helped to secure grant funding and cates for The Oxford Castle Heritage to guide the development and the ar- Site. rangements for education and inter- pretation. They are now incorporated In addition to involving residents and into relevant leases and manage- stakeholders in the general design ment agreements: of the site, the County Council and • Tell the story of the development the Oxford Preservation Trust also of the Castle and Prison site as Plans for the redevelopment of Ox- extensively involved Oxford and its a whole, from its earliest begin ford Castle were drawn-up under a people in shaping the heritage visi- nings through to the present day partnership agreement between Ox- tor attraction and its accompanying • Interpret all the heritage assets fordshire County Council and Oxford education centre. A family panel was on the site, including those within Castle Ltd. For five years, a team of established to advise and evaluate the wider commercial scheme selected architects worked together activities for families in the educa- • Allow the buildings and the with archaeologists, historians, land- tion centre and a lifelong learning archaeology to tell the story; “let scape architects and conservation programme (open to everybody) the stones speak” specialists to create the sustainable explores the history of the castle and • Use the stories of people from the development plans for the site. prison and its links to the town. past and present who have had contact with the site to tell its These plans demonstrate how sensi- Oxford Preservation Trust began to story tive and creative planning can enable compile an oral history of the prison • Interpret the site’s recent historic structures and buildings to involving former prisoners, prison development as the latest chapter retain their integrity, keeping as much staff and local residents. in its history of the original fabric as possible, • Recognise that the present and whilst allowing new and innovative Sustainability and conserva- future of the site represent new uses to be introduced. tion at the heart of develop- chapters in its history and that its ment story will continue to unfold Sustainability and good conservation • Relate the story of the Oxford techniques were employed through- In 1999 Oxford Preservation Trust and Castle/Prison site to the out the construction: the County Council commissioned development of the wider City of • Use of lime mortar and mortar jointly a Conservation Plan for the Oxford and the County of based plaster site. This set out requirements and Oxfordshire and its links to the • Use of Bath stone (the fabric of guidance for restoration and conser- history of the nation the existing structures) to carry out vation, including use of materials, • Adopt a variety of approaches in repairs to buildings and to build protection of views, retention of ar- interpreting the site, appropriate to new structures chitectural features etc. The plan was the diversity of potential users, • Re-use of existing materials in the adopted by the County Council and all their needs and interests. works, for example, where stone parties involved in the development • Create a degree of flexibility in was taken out of one building it were required to comply with it. the interpretation, allowing for was re-used in another location. Georges Tower and a tunnel beneath Oxford Preservation Trust appoints Re-use of granite blocks in the • the ground give the public access Continuum as operators of the herit- Castle site main entrance which from the Tower to the Crypt. age attraction, and a partnership with were salvaged from elsewhere in the County Council to provide an the city centre. The Development Timeline education officer is agreed.

• 1996 - Oxford Prison closes for • May 2006, Her Majesty Queen the last time Elizabeth II performs the official • 1997 - Oxfordshire County Council opening ceremony for the Oxford buys back the site from the Castle Heritage Site Home Office • May 2006 – “Unlocked” the • 1997 to 2001 - Oxfordshire County heritage visitor attraction opens its Council funds the upkeep of the doors to customers empty prison by renting it out to • September 2006 – the Oxford film and television companies. Castle Education Centre opens. Many feature films and television series have been filmed on the Role of the planning site including 101 Dalmatians and authorities Bad Girls • 1997 to present day - The site includes two scheduled an- Archaeological investigation, cient monuments and several grade reveals much about the city’s 1 and grade II* listed buildings, and Oxford is known for its innovative history is within a conservation area. The approach to transport and cars and 1998 to 2000 - Partnerships processes for securing the necessary a sustainable approach to transport • between the County Council, consents were complex with the City was adopted. There is limited car Oxford Castle Ltd and Oxford and County Councils and English parking on site (a single 20-space Preservation Trust put in place. Heritage all having separate statutory underground car park exists for use Plans put out for public responsibilities. The attitude of the by the hotel), while over 150 cy- consultation planning and conservation officers cle parking spaces were provided, 1999 – The County Council and was initially cautious, for very good together with excellent public trans- • Oxford Preservation Trust jointly reasons, but as they were consulted port links, so that both Park & Ride commission a Conservation Plan. throughout the design and devel- and bus services are available at the 2001 - Planning permission and opment a “consents group” began entrance to the site. • grant-funding from SEEDA, to form. The Consents Group met Heritage Lottery Fund, English regularly with the project managers, Oxford Preservation Trust engaged Heritage and Trust for architects and engineers to discuss a young but reputable architectural Oxfordshire’s Environment are the plans thereby ensuring effective practice, Panter Hudspith, to design secured; demolition and cooperation and avoiding disputes the new shop and entrance to the restoration starts and delay. This was helped by the visitor centre – a glass structure adja- 2004 - the site receives a Conservation Plan which defined the cent to St George’s Tower, suspend- • blessing from the Right Reverend principles of conservation across the ed from the 19th century prison wall, Richard Harries, Bishop of Oxford, site. with a café and education centre to commemorate the site’s pushing through the Prison wall and history and celebrate the progress Discovery of Archaeology adjacent to the Castle Mound. This and future of this prestigious was achieved with the support of the scheme The development works gave the Heritage Lottery Fund, enable the September 2005 - Last intensive opportunity for the discovery of some highest standard of new building and • phase of construction commences of the most extensive and impor- workmanship so that the ‘heritage November 2005 - First businesses tant archaeological investigations site’ sits alongside the commercial • open, including restaurants and in Oxford for several decades. Time development as its equal partner. the Malmaison Hotel. and funding were provided to al- A viewing platform on the top of St. low full archaeological excavations Malmaison Hotel The cool green of the Castle which have added considerably to The Malmaison Hotel Oxford, has • Gardens. the knowledge of the history of the taken up residency in the former The Castleyard at the foot of the city. Part of the Saxon town wall was prison. The hotel has been designed • Castle Mound and St. George’s discovered and has been retained as to retain many of the prison’s orginal Tower surrounded by the one of the features of the develop- features. Three cells have been Castle’s oldest buildings. The ment. The investigations added to knocked into one to form bedrooms, external areas are used the body of knowledge of the history carefully done to provide luxury and throughout the year for theatre, of the site and the city. A full report of amenity, whilst still retaining many music festivals and art events. the findings is to be published later in of the original features including the 2013. wooden cell doors and spy holes.

Outlining Oxford’s Oldest New Quarter

The strength of the £45 million re- generation of the Oxford Castle Herit- age site is in the sum of its parts, ensuring there really this something Delivering Success for everyone. When Oxfordshire County Council set out its objectives for the Oxford The component parts are outlined Castle Heritage Site it was deter- below. mined to realise its goals. These have all been achieved:. The Heritage and Education Centre The historic buildings have been The Oxford Castle Unlocked visitor Commercial Premises • restored and conserved and attraction allows the Oxford Castle A range of prestigious commercial the public have complete access buildings to tell their own stories. Vis- operations have taken up long-term throughout the site. tors can learn about the real people leases providing an attractive range The site was developed and is and events from the castle site’s of restaurants in public spaces. • managed and recognised as a turbulent past and uncover its dark single entity. secrets. Apartments The site encompasses sustainable Forty individually designed residential • commercial use through long-term O3 Gallery apartments were sold off plan and (minimum 20 year) leases and The O3 Art Gallery presents a pro- continue to be some of the best ad- the Oxford Unlocked visitor gramme of exhibitions by regional dresses in the City centre. attraction provides a full artists. It aims to provide a milestone interpretation of the site’s history in the development of an artistic and heritage. career by providing a commercial The project has been delivered launch pad for the artist, providing an • at minimum risk and cost to opportunity for publicity and exposure council tax payers and even and a chance to sell their work. before opening, the Oxford Castle development was praised in the Heritage Counts 2003 report as Public Spaces being a good example of how There are four public places, each historic places can provide focus with a distinct character: for regeneration. The Entrance Square and Piazza • The development has created The lively Market Square sur- • • over 300 jobs and 11 businesses. rounded by restaurants with al fresco Visitor numbers are reaching the dining target levels of 70,000 per year and arranged school visits have The success of the Castle develop- To learn more about OPT: exceeded target numbers, helped ment was an important influence www.oxfordpreservation.org.uk by the County continuing to on the establishment of Oxford’s provide funding for a part time West End project. This partner- education officer despite a period ship between the City and County of cuts to funding for local Councils, was initially with funding authority services. from SEEDA, involving various other organisations and landowners. Its Oxford Preservation Trust is delight- purpose is to plan and deliver further ed to have secured the most impor- regeneration to the west of the city tant historic site in the city outside the centre from the railway station to Ox- University, providing public access, pens and the Westgate. A West End interpretation and education to all, Area Action Plan has been approved raising the profile of Oxford’s town and, over time, will guide further history, a place of belonging and of schemes including the redevelop- which local people can be proud, ment of the station, improvements to and encouraging an interest in, and Frideswide Square, Oxpens, a new understanding of, the site and the Science Centre on the Macclesfield wider city. House site and the redevelopment of the Westgate Shopping Centre. The The ambition of the Oxford Castle Castle is at the heart of the success Heritage Site to be a social and of these and opportunities for physi- cultural hub for residents and visitors cal, operational and educational links, continues to grow year on year, Crea- in particular with the Science Centre, tion Theatre Company held open-air are being explored. The redevelop- productions, Opera for Everyone ment of the closed former Morrell’s performed at the site, together with brewery in St. Thomas’ with good other groups. There have been family quality housing, retaining the attrac- focused events with competitions and tive brewery buildings is in place and face painting and an outdoor ice- progress is being made on several skating rink for the winter season. individual projects, though this has inevitably been delayed by current A recent Oxfordshire County Coun- economic conditions. However, the cil’s Citizens’ Panel poll highlighted AAP continues to provide a vision for that the development of the Oxford the future of the area, with the Castle Castle Heritage Site was one of the there as a shining example of what most important things to have hap- successful partnership can achieve. pened in the County in the last five years. The Malmaison Hotel in the Read More: former gaol is their most successful • Oxford Castle - A Partnership hotel within the group, and was voted Approach hotel of the • Oxford Castle as a Case Study in 10 Sustainable Heritage year, with the development winning • The Sustainable Heritage Toolkit numerous awards including the RICS • Castle, Canal and College Historic Project of the Year, RIBA, Civic Trust, Context Study and Conservation Academy of Urbanism and numerous Plan others. If you would like a copy of the Oxford A dynamic place – going Castle Conservation Plan please forward .. contact Oxford Preservation Trust