Heritage Strategy 2011-2016

BLACKBURN WITH DARWEN

HERITAGE STRATEGY 2011-2016

Contents

1. Introduction 2 2. National and local strategic policy. 3 3. Brief History of the Borough 5 4. The Historic Environment Resource 7 5. Policy 9 6. Understanding 11 7. Managing Change 16 8. Advising and Enhancing 20 9. Communication 22 10. Summary of recommendations 24 11. Action Plan 26

2 1. Introduction 1.5 Overarching Objective 1.1 Our built heritage provides a valuable resource that can play an important role for the future of Blackburn. Heritage can be an To conserve and enhance the historic environment, important stimulus to regeneration, provide a sense of local pride recognising its contribution to economic vitality, and culture, and sense of place, and by preserving it we are contributing to a civic pride and the quality of life, and its importance as a more sustainable future. The historic environment is also a fragile resource for future generations. resource and one which is irreplaceable and a unique record of our past which when lost is gone forever. 1.6 The aims of the strategy are set out below;

1.2 Local Authorities are often seen as the managers of the historic Aim 1: environment and have a statutory duty to ensure that the best To carry out statutory duties with respect to the conservation and architectural and historic buildings are properly preserved and enhancement of the historic environment. enhanced. This duty is enshrined in the Town and Country Planning (listed building and Conservation Areas Act) 1990. Aim 2: Promote the opportunities presented by conservation and heritage 1.3 The responsibility for stewardship of our heritage however is in terms of improving the image, sustainability and economic shared by everyone and is not just a task taken undertaken by the development in the Borough. Council. To truly succeed it is acknowledged that there needs to be a broad level of public support and understanding of the issues Aim 3: relating to the preservation of the historic environment. Engage local people in discovering, presenting and conserving the Borough’s heritage. 1.4 The historic environment in the Borough faces significant challenges and opportunities over the next few years. The move to Aim 4: localism and cuts in public sector funding will require setting clear The strategy is to provide the basis for the future service priorities on managing the historic environment resource and planning of the historic environment by identifying priorities for working closer with local groups and civic societies. In order to do action. this it is important to have an understanding of all the elements that contribute to the historic environment, how change will be managed, as well as enhancing and raising awareness. The purpose of the strategy is to identify key priorities and actions for the next 5 years.

2. National and Local Strategic Policy.

2.1 Planning Policy Statement 5 ‘Planning for the Historic Environment’ sets out national policy relating to all aspects of the historic environment. The Governments overarching aim is that the historic environment and its Heritage assets should be conserved and enjoyed for the quality of life they bring to this and future generations. The Governments main objectives were: • To deliver sustainable development , and in particular ensure that policies and decisions recognise that heritage assets are a non-renewable resource, take account of wider social, cultural, economic and environmental benefits of heritage conservation, and ensure that heritage assets are managed intelligently in the long term. • To conserve England’s heritage assets in a manner appropriate to their significance. • To contribute to our knowledge and understanding of our past by ensuring that opportunities are taken to capture evidence from the historic environment and to make this publicly available.

2.2 The government thereby places a priority on the conservation of the historic environment, and has developed a holistic approach to the historic environment. The elements of the historic environment that are worthy of consideration in planning matters are called heritage assets. This term embraces all manner of features including buildings, parks and gardens, standing buried and Figure 1 Northgate conservation area submerged remains, areas, sites and landscapes, whether designated or not and whether or not capable of designation.

4 support the 4 main principles set out in the Vision and deliver the 2.3 English Heritage have set out their strategic aims in the cultural change that the vision sets out. National Heritage Protection Review ( December 2010). The relevant aims are:

Aim 1: To identify and protect our most important Heritage. Aim 2: Champion England’s Heritage Aim 3: Support owners, Local Authorities and voluntary Organisations to look after England’s Heritage. Aim4: Help people appreciate and enjoy England’s Heritage.

2.4 Engagement with the public and other organisations is a shared aim for the Borough and English Heritage. Blackburn Council will collaborate with English Heritage and other partners to engage with volunteers, neighbourhoods and the public in the conservation of the historic environment.

2.5. Blackburn with Darwen Strategic Partnership sets out in their Vision 2030 the long term vision for the Borough and has 4 main aims:

• To develop prosperous towns • To see safe and connected neighbourhoods and cultures. • To see clean and green neighbourhoods • To see healthy places and safe communities.

The vision in particular recognises the importance of culture in driving change and increasing cultural activity by the regeneration of both Blackburn with Darwen town centres, the celebration of the built environment through conservation areas, and the refurbishment of many fine historic buildings. This strategy aims to Figure 2 Darwen Tower

5 3. Brief History of the Borough Improvements schemes in the second half of the nineteenth century resulted in much of the removal of the earlier housing stock. 3.1 There is very little evidence of prehistoric activity in the Borough, and there has been one Roman find, an inscribed stone 3.5 The Borough imposed planning regulations that led to the commemorating the dedication of a temple. Blackburn became a construction of long terraces of two up two downs. The gridiron major territorial division in early medieval north west England and pattern of streets formed a ring around the urban area as it had the town of Blackburn subsequently became a notable market town existed in 1850. The First World War marked the beginning of a and administrative centre. By 1800 about 20,000 weavers lived decline in cotton manufacturing in Blackburn and many of the towns within a three mile radius of Blackburn Town centre. mills have since been demolished . (Source: Lancashire Historic Town Survey Programme Blackburn Historic Town Assessment April 2005) 3.2 In the eighteenth century, the wealth of the middle class merchants began to be expressed in the construction of fashionable 3.6 Darwen’s main period of growth occurred during the late new houses. Further expansion in this period saw settlements eighteenth century from two clearly defined clusters. The larger developing around churches and chapels and to some extent settlement (Over Darwen) was centred at the crossroads where the factories. main Blackburn to Bolton Road crossed the road from the second cluster, and centred on Darwen Chapel. By the early nineteenth 3.3 Blackburn’s fame as a textile town began to spread in the century Darwen was one of the largest town ships in the parish of seventeenth century and by the early nineteenth century Blackburn Blackburn boosted by growth in the textiles and paper industries. was a renowned centre for cotton cloth production and distribution. Over Darwen became a Borough in 1878 and the settlement grew The town began to acquire aspects of gentility, as the growth of along the main highway and railway corridor as population growth working class housing and industrial development began to fuelled extensive areas of terraced housing. Darwen town centre encroach the wealthier neighbourhoods new middle class suburbs has remained largely intact and retains a strong traditional shifted north of the town. The town received a charter of character. incorporation in 1851. 3.7 The historic built environment is the most visible expression of 3.4The arrival of the canal in 1810 and subsequently the the historic development of the Borough. However this does not construction of railways from 1846 provided a stimulus to urban always mean that the protected assets are those that represent the expansion. Engineering works supplied the cotton factories and most significant elements of the Borough’s historical development. other nineteenth century industries included brewing and corn There are a significant number of undesignated assets from the milling, foundries were also established. By the late nineteenth period of prolific historical growth in the nineteenth century that are century Blackburn had become a centre for power loom weaving. not protected and could be under threat from loss. The purpose of this strategy is to ensure that heritage assets of significance to the historical development of the Borough are conserved for the benefit

6 and enjoyment of future generations. ( Source: Lancashire Historic Town Survey Programme, Darwen assessment 2005)

Summary Statement of Historic Significance .

3.8 The statement below seeks to give an overall statement of historic significance for the Borough:

Blackburn developed from a number of foci of hand loom weavers and later mill workers settlements, and their associated residential terraces, with the most rapid expansion in the nineteenth century. This has given the Borough a distinctive historic character predominantly of stone and red brick buildings set against the significant backdrop of the West Pennine Moors.

Figure 3 Corporation Park Gatehouse

7 4. The Historic Environment Resource A Public Realm Strategy has been published for the Town Centre as well as a Town Centre Strategy for Blackburn Town Centre. 4.1 Blackburn with Darwen retains many elements of historic significance some of which are protected and some not. It includes Two successful Townscape Heritage Initiatives in King Street and industrial sites, village settlements, scheduled monuments, and Darwen Town Centre have seen the refurbishment of numerous various historic buildings some listed, there is at present no local historic buildings and significant uplift in those areas. In addition designation. It also includes collections Corporation Park has undergone significant restoration with HLF in museums and historic houses such as Turton Tower. funding.

4.2 The surviving heritage resource is becoming increasingly more The Town Hall has its roof re slated, and Turton Tower an important precious as more and more elements are lost from neglect or Grade 1 Listed building, has secured improvements to the grounds development activity. It can also deliver significant economic and will be carrying out major repairs. benefits as well provide a sustainable approach to development. In addition to real economic benefits, investment in the historic 4.4 A great deal has yet to be achieved. In order to identify the environment can improve the perception of an area and create a main priorities for the next 5 years the historic environment place which is more attractive to live, work and visit. resource for the Borough is initially appraised in the following section under 5 headings, and 5 goals are identified for each Achievements to date. heading:

4.3 There has been progress in the last decade by the council. 8 • Policy: Goal 1: Promote the qualities and local out of twelve conservation appraisals and management plans have distinctiveness of the Borough’s Historic Environment. been completed. These relate to the following conservation areas; • Understanding : Goal 2: Develop a shared understanding Northgate and readily accessible evidence base on the historic Richmond Terrace environment. King Street Cathedral area • Managing change: Goal 3: Conserve the special Chapeltown significance of all heritage assets and promote the value the Edgworth wider historic environment can have in sustainable place Griffin making. Darwen Street

8 • Advising and enhancing: Goal 4: Support economic growth through heritage regeneration by working with partners.

• Communicating: Goal 5: Promote Joined up working and engagement .

Figure 4 Griffin Lodge

9 5.0 POLICY • HE3 relates to Local Plan making. Specifically policy HE3.4 states that plans should consider the qualities and local Goal 1: Promote the qualities and local distinctiveness of the distinctiveness of the historic environment and how these Borough’s Historic Environment. can contribute to the development of a spatial vision in the local development framework core strategy. 5.1 There is a statutory duty enshrined in the planning acts with respect to the built heritage. A Local Authority has to have special • Policy HE7 relates to undesignated assets and polices HE9 regard to the desirability of preserving a listed building and its HE10 outline the policy principles to be considered for setting under the provisions of the Town and Country Planning designated assets and their setting. (listed buildings and conservation areas) Act 1990, section 66. Under the same Act every local planning authority shall from time to 5.4 The Core Strategy for the Borough was adopted in January time determine which parts of their areas are of special architectural 2011 . Policy CS17 of the Core Strategy is the overarching policy or historic interest and shall designate these as conservation areas. on built and cultural heritage. Its main objective is for proposals to (s69). identify and take advantage of opportunities to integrate with and promote the Borough’s cultural assets and are to include: 5.2 The council also has a duty to from time to time to publish proposals for the preservation and enhancement of its conservation • Features signifying the history of the Borough. areas under section 72 of the Town and Country Planning (Listed • Landscapes Buildings and Conservation Areas)Act 1990, and has to review • Views conservation areas and designations under section 71. • Cultural facilities.

5.3 Planning Policy Statement 5 is the national policy tool and the Emphasis on cultural assets in the core strategy implies an all most up to date policy on the historic environment and relates to all encompassing approach towards heritage, which not only includes heritage assets. Conservation areas and listed buildings are the built heritage but can also include museums and events. referred to as designated heritage assets in the policy document. Ensuring and maintaining a holistic approach that secures good Some of the policies are outlined below: links with all those involved with heritage is advocated in Planning Policy Statement 5 (PPS5) • HE1 refers to heritage assets and climate change and to consider how best to mitigate the effects of climate change 5.5 Specific reference is also made to conservation areas and listed when devising policies and making decisions relating to buildings and recognises that most resources and protection will be heritage assets. focused on existing Conservation Areas.

10 To date 8 conservation area appraisals and management plans have been completed. A number of desk top archaeological studies have been carried out. There are still significant gaps in the data and evidence base for the borough that urgently needs addressing, these are outlined under the specific categories in the following sections. A review of conservation areas and possible designating new conservation areas is still necessary. The preparation of a local list is also an important policy requirement.

5.6 Development management policies have been saved from the previously adopted Local Plan and are set out in Appendix 1 of the Core Strategy. Policies HD11 – 18 are relevant to heritage assets.

5.7 More specific local policies on heritage assets and in particular on undesignated heritage assets and how best to manage and protect them are still necessary that could form part of a development plan document. Locally listed buildings are considered in more detail in section 6.22. New policies should have particular regard to PPS5 and how it can be applied in the local context.

5.8 Recommendations:

• Develop policies on the historic environment in the emerging Development Plan Document on the built environment. • Identify areas for conservation area designation • Develop criteria and compile a local list of heritage assets for the Borough.

Figure 5 Core Strategy Quality of place map

11 6. UNDESTANDING THE HISTORIC ENVIRONMENT. more readily available. Utilise the study to identify areas and buildings of historic importance. Goal 2: Develop a shared understanding and readily accessible evidence base on the historic environment. Parks and Gardens

6.1 In order that we manage the historic environment in a positive 6.6 There are 6 registered parks in the Borough which contribute and sensitive manner it is important that there is a shared significantly to the historic landscapes of the Borough, they provide understanding of the elements that form part of the designated and a valuable recreational and landscape resource. Developments undesignated historic environment in the Borough. The Council has affecting these areas should have regard to their special character a responsibility to ensure that the information on the Historic and should consult the garden history society. Recognising their environment is readily accessible to those who need it. wider role in contributing to the distinctiveness of the Borough needs to be promoted as well as ensuring that heritage information 6.2 Recommendation: Devise method and programme for a relating to the parks is readily available. Their management comprehensive evidence base of heritage assets . generally falls within the remit of the parks management. Woodfold Park is in private ownership. Historic landscapes Corporation Park, Blackburn 6.3 The Borough has a rich historic legacy, that is evidenced in the Sunnyhurst Wood, Darwen wider open and built up landscape, it can take the form of historic Queens Park, Blackburn field boundaries or industrial infrastructure. The surviving features Bold Venture Park, Darwen all contribute to local distinctiveness and sense of place. Woodfold Park, Pleasington Whitehall Park, Darwen 6.4 A historic characterisation of the built up area of the Borough was carried out in 2005 by Lancashire County Council. It summarises the historical development of Blackburn with Darwen 6.7 Corporation Park is a mid nineteenth century ornamental park and identifies significant characteristics and categorises the that was created by the Corporation and falls within the Corporation Borough into character areas on a GIS map base. The Park Conservation Area. It is on a grand scale and is set on rising characterisation provides a vital resource of valuable information land surrounded by villa developments from the Victorian period. that should underpin planning management and practice. The park has seen significant investment from the Heritage Lottery Fund towards the refurbishment of historic structures and features. 6.5 Recommendation: Develop a better understanding of the It represents a substantial green footprint close to the commercial wider historic landscape and make characterisation study core of the town centre incorporating a triumphal archway at its

12 entrance, garden of remembrance, cascades and water features. There is an active friends group fro the park. 6.12 There are currently 12 conservation areas in the Borough (two have separate extensions) and are listed below: 6.8 Darwen has three listed parks in close proximity to its Darwen Town Centre commercial core, created in the late nineteenth century they vary in Northgate character from the wooded park at Sunnyhurst Wood to the more Richmond Terrace ornamental park at Whitehall. Cathedral area Darwen Street 6.9 Private gardens, or other unregistered landscape areas also King Street make a significant contribution to the special character of the Revidge/Dukes Brow Borough. These can include small villa gardens that have been Corporation Park preserved such as in the Corporation Park Conservation Area. Griffin Raising awareness of these elements either through a local list or a Hoddlesden conservation appraisal could be considered. Edgeworth Chapeltown 6.10 Recommendation: Ensure information on listed parks is readily available online and develop links with parks 6.13 Conservation areas vary in character and appearance from management. small villages to urban areas within town centres. The core strategy states that a limited number of new conservation areas will be investigated. There maybe scope for some additional conservation areas within the urban areas, and in the village settlements, such as Historic Settlements and Conservation Areas. at Pleasington and Belmont. One additional conservation area was proposed in the Local Plan for Darwen to include India mill and the 6.11 Local authorities are required by law to periodically review their area around it. district to see whether an area merits conservation area designation, (section 71 and 72 of the TCPA (LB & CA) 1990.) The 6.14 Eight of the existing designated conservation areas have up to law does not state how often they must exercise this duty but the date conservation area appraisals and management plans. Audit Commission has established that a 5 year cycle is appropriate Conservation area appraisals form the basis for making planning for conservation area review. Once designation has taken place the decisions that affect the heritage of these areas and for providing planning authority must take conservation area status into account policies for their enhancement and management. It is essential that when determining planning applications and reject any that do not the remaining conservation areas are covered by appraisals and preserve or enhance the conservation area. that they are made available on line.

6.15 Some of the areas are under some risk from the cumulative impact of inappropriate development or alterations such as UPVC windows or poor quality shop fronts and fascia signs. Increasing pressures to convert large dwellings into multiple occupancy is threatening the character of some of the conservation areas in the residential districts adjacent to Blackburn Town Centre such as the Corporation Park Conservation Area. In the Town Centre conservation areas, the impact of inappropriate advertising and loss of traditional shop fronts is a more common threat. The threats to the conservation areas needs to be carefully monitored and options for improved restrictions should be explored.

6.16 Recommendations:

• Develop programme of preparing conservation area Figure 6 Richmond Terrace Conservation Area appraisals and make available on line.

• Ratify all existing conservation area documents by the

Executive member. Scheduled monuments • Establish a programme for enforcing against

inappropriate alterations. 6.17 Monuments are scheduled under the Ancient Monuments and Archaeological Areas Act 1979. They are statutorily protected by law and works affecting them is prohibited unless permission is first granted by the Secretary of State as represented by English Heritage. There are 6 scheduled monuments in the Borough, one relates to an earthwork near the Roman road, and another is a steam tramway that represents an important industrial site. The scheduled monuments are listed below:

14 • Bronze age stone circle, Cheetham Close ,Turton Tower. Inappropriate alterations and poor repair techniques have • Bronze Age, enclosed cremation cemetery, Turton also impacted on some of the Boroughs’ listed buildings. • Witton Hall medieval remains • Turton Tower, Turton 6.21 Generally the significance of a listed building requires to be • Steam Tramway Reversing Triangle understood and conserved . The available data and information on • Roman Earthwork, Bottom of the Knots Brow. listed buildings within the council should be made available to the public and other organisations and this can contribute to 6.18 Recommendation: Raise awareness and protection of understanding significance. There is an online national site scheduled monuments. managed by English Heritage and this link is available from the Councils website. There is still a need to carry out a photographic Listed Buildings audit of all listed buildings and compile information on listed buildings in a single location. 6.18 Listed buildings are buildings of special architectural or historic interest and have statutory protection. It is a criminal offence to alter 6.22 Recommendation: Devise programme and compile data or demolish a listed building without first obtaining permission from set for listed buildings. the Local Authority. There is a duty to preserve the special architectural and historic interest of a listed building (S66 TCPA (LB & CA) 1990). Locally listed buildings

6.19 There are 344 listed buildings (217 entries) in the Borough, of 6.23 Identifying locally heritage assets of special interest is which 2 are grade I and 24 are Grade II*. The type of buildings and enshrined in the Draft Heritage Bill, and non designated assets are sites vary from eighteenth century farmhouses, to grand houses a material consideration when determining planning applications such as Griffin Lodge. There are two listed mills namely India Mill (HE7, PPS5). Identification through a local list allows the Local and Imperial mill. Planning Authority to better understand the heritage assets in its area, their individual heritage significance and their contribution to 6.20 Core Strategy policy CS17 sets a target for no loss of listed sustainable communities and an areas sense of place. For those buildings within the Borough. Monitoring listed buildings through a seeking to carry out development, identification through a local list building at risk survey would help prevent loss through decay and is also provides clarity as to the constraints and opportunities that an urgent priority. A few listed buildings are vacant and falling into heritage assets present. No buildings of local interest have been disrepair, and heritage theft is on the rise. Of particular concern is identified in Blackburn or Darwen to date. lead theft that can impact significantly on the condition of listed buildings, there have been incidents at Griffin Lodge and Turton

15 6.24 There is a commitment to establish a local list and is enshrined in Policy CS17 of the Core Strategy ‘Built and cultural heritage’. CS17 states that building and features which are of local importance will be protected from inappropriate change.

6.25 English Heritage has published guidance on local lists which sets out the relevant criteria for buildings to qualify for inclusion on a local list. There is scope to engage the community and the civic societies in this process. There are also a number of studies and reports that could contribute to informing a local list, such as the recent report on Mills in Lancashire by Oxford Archaeology.

6.26 Recommendation : Prepare selection criteria and draft list of locally designated heritage assets.

War Memorials.

6.27 There are a number of listed war memorials many of which are in Local Authority ownership. There has been recognised a need to have a single point of contact for the public to ensure war memorials are maintained, this role has fallen on the conservation officer in the short term, and will provide a single point of contact by the public.

6.28 Recommendation clear responsibilities for appropriate officers with regard to maintenance and management of war memorials . Figure 7 Boer War memorial Darwen

16 7. MANAGING CHANGE that applications identify significance appropriately will be a key priority. Formal pre-applications meetings under current work Goal 3: Conserve the special significance of all heritage assets practices will target applicants on the importance of preparing a and promote the value the wider historic environment can have heritage statements and identifying significance. Improving the in sustainable place making. data base and access to records and relevant formation will be on also aid the application process. The outcomes should result in a 7.1 The value of the historic environment in our cultural, social and better quality of applications and work practices. economic life is set out in the Government’s statement on the Historic environment for England 2010. Planning has a central role 7.6 The wider definition of heritage assets set out in Planning Policy to play in conserving our heritage assets and utilising the historic Statement 5 requires a step change in the approach to environment in creating sustainable places. development. The proposed local list for the Borough will help identify some further undesignated heritage assets of local 7.3 All too often Blackburn’s heritage assets can be seen as a significance. The wider contribution that the historic environment constraint and an obstruction to economic investment. By can add to sustainable place making is a key role for development managing positively we can ensure the wider benefits of the historic management and supported by Policy CS17 of the Core Strategy. environment are fully capitalised, as well as improve the appeal of This approach can best be achieved through negotiation at pre- the Borough to investors and businesses as a business location application stage, but may require further targeted guidance. and a place to visit and stay for visitors and residents. Heritage assets play an important role in making places and acting as a 7.7 Joined up working with development management officers, catalyst for regeneration initiatives such as the Cathedral Quarter in agents and the public will be ongoing to ensure the conservation of Blackburn. the historic environment is conserved and works are carried out to high standards. Additional guidance such as technical leaflets on Development Management. conservation techniques may be required and could be explored in conjunction with officers in Lancashire. 7.4 Managing change and conserving the built heritage is generally dealt by development management officers through the planning 7.8 Recommendations system with specialist input from the conservation officer. • Conservation officer will provide written comments to 7.5 Understanding the significance of heritage assets is now major heritage related applications, and make all required by PPS5 in the form of a heritage statement, the purpose guidance and data sets available to Development of which is to help inform decision making and reduce harm to the Management officers. more important significant elements of heritage assets. Ensuring

17 • Advise on improvements to validation criteria in particular in connection with heritage statements • Continue to negotiate qualitative improvements to development applications.

Shop fronts and Advertisements.

7.9 The appearance of the shopping core of our historic town centres has an important effect on the vitality and general attractiveness of centres.

7.10 Inappropriate shop fronts and large illuminated signs are prevalent in some of the commercial areas of the town centre conservation areas. The cumulative impact of large illuminated box fascia signs and poorly designed shop fronts is harmful to the character and attractiveness of the street scene and the special character of conservation areas. Darwen Street conservation area for example is characterised by many such signs and advertisements which are threatening the special interest of the area. In some instances some signs do not require permission but there may be scope for applying additional restrictions such as article 4 directions.

7.11 Recommendations: Figure 8 A traditional shopfront in Northgate • Consider the need review shop front guide for the Borough. • Explore options for more effective management of inappropriate signs in some conservation areas.

18 consideration should be given to extending the article 4 direction In Article 4 Directions. Darwen to include the area, as this will protect the public finance invested in the area from inappropriate change. 7.12 Policy HE 4 of5 requires that local planning authorities should consider whether the exercise of permitted development rights 7.16 Recommendation: Consider threats from inappropriate would undermine the aims of the historic environment and should alterations in conservation areas and propose article 4 consider the use of Article 4 directions. directions where appropriate or when conservation area appraisals are reviewed. 7.13 Article 4 directions restrict permitted development rights for owners and occupiers, and can be an effective tool to prevent harm Buildings at Risk. to the historic environment from inappropriate incremental changes. They are targeted predominantly at dwellings, but can also include 7.17 Policy HE5.1 of Planning Policy Statement 5 states that Local commercial areas. There are two article 4 directions in the Borough: Authorities should pay particular attention to the degree to which individual or groups of heritage assets are at risk or loss through 1) St Peters area in the Darwen Town Centre conservation area decay. An up to date buildings at risk survey is required for the controls external alterations to the front of properties. Borough to identify the buildings most at risk. The Core strategy 2) In Edgworth alterations to front porches are restricted on a seeks that there will be no loss of listed buildings during the period group terrace 2011-2026.

7.14 There are many conservation areas that have suffered 7.18 Regular maintenance is the best approach against decay but inappropriate alterations or loss of historic features such as can be more difficult to achieve with empty buildings and absent windows which is undermining their character. In these instances owners. There are powers available to local authorities to ensure the overall character of the conservation may be identified as being that owners maintain their buildings watertight and more proactive at risk, one example is the Corporation Park Conservation area management with enforcement officers would be beneficial. where the cumulative impact of inappropriate change and multiple occupancy is harming the character. 7.19 Recommendation: Explore opportunities for carrying out a 7.15 There may be scope for additional areas to be considered for building at risk survey. article 4 directions where specific changes are undermining the historic environment. This should be considered especially with regard to permitted development rights that came in force in 2010 on some other use classes other than dwellings. Particular

19 Enforcement Borough’s heritage. Liaising and regular communication with the County archaeologist and development management officers to 7.20 Enforcement is an important tool in development management secure planning conditions for recording heritage assets is ongoing. to take action against breaches of planning control or to proactively It is recommended that records are also be made readily available remove eyesores. There are a number of procedures that can be to the public in the local history archive of the library, as well as adopted. The Enforcement team has a charter and breaches to raising awareness of their existence. listed buildings are given a high priority. Working closely with enforcement officers to ensure breaches are dealt with promptly will 7.25 Recommendation: be an on going role. • Promote local historical archive of heritage assets in 7.21 Recommendation: Explore scope for proactive the Borough through the museum service of the local enforcement action such as discontinuance notices on history library. advertisements to be identified. • Ensure appropriate procedures are in place to record designated and undesignated assets. Archaeology.

7.22 Recording the past can provide a better understanding of its significance as well as give a valuable insight into the history of the area. There is significant development pressure especially on undesignated assets such as industrial sites and recording such assets is all the more important as there is little scope for their protection. In the Borough for example there are 113 sites where remains survive of industrial activity, of these only two are listed.

7.23 Policy HE12.3 of Planning Policy Statement 5 requires developers to record a heritage asset before it is lost and publish the evidence as well as archive the information in the local museum.

7.24 Ensuring that an adequate record of the Borough’s heritage assets are available to the public through the local library or Figure 9 Listed conservatory at risk. museum is essential in order to raise awareness of the value of the

8. ADVISING AND ENHANCING Regeneration strategies.

Goal 4: Support economic growth through heritage 8.1 Providing input into strategies and briefs for regeneration on the regeneration by working with partners. historic environment is an important ongoing role that can have significant wider benefits. Investment in the historic environment can not only maintain and restore significant historic fabric, it increases a community’s sense of place and has been proven to have a positive impact on economic activity. Renovation of traditional terraces in St Peters Area of Darwen for example has benefited from considerable uplift, and ongoing development initiatives in the Cathedral Quarter will also revitalise a significant part of the town centre.

Grant work.

8.2 Heritage grants have been an important source of funding in Blackburn with Darwen and in particular two THI schemes have seen the successful heritage regeneration of parts of the historic centres of Blackburn and Darwen. The Conservation officer provides an essential input into bids and gives technical advice and guidance to grant aided developments. Continuing to identify areas suitable for grant funding such as an extension to the Darwen THI is to be considered.

Figure 10 Darwen Market hall 8.3 The works of restoration and repair have secured good conservation standards as well as given significant uplift to the “Investment in the historic environment supports economic area. Local construction firms have also benefited from employment performance by attracting new businesses and residents, and maintained a heritage skill resource. There is a programme of encouraging people to spend more locally and enhancing training events organised for 2011 as part of the current THI perception of areas.” Heritage Counts 2010 programme in Darwen that will hopefully raise further awareness and encourage heritage skills in the area.

8.4 It is likely that heritage grants will be an important feature of future work as there are likely to be fewer other sources of grant schemes available, continuing support to this process is vital.

8.5 Recommendation: Retain conservation input into grant schemes and encourage funding bids as appropriate.

Highways and public realm

8.6 The public realm and highway network is a significant element of the historic environment that impacts on character of the historic townscape as well as the perception of the Borough. The enhancement of the public realm can also act as a catalyst for economic investment.

8.7 Highway projects and alterations should have regard to the special character of historic areas. English Heritage has produced Figure 11 A historic street lamp guidance ‘Streets for All ‘on highway works in the historic environment. The Borough has prepared a public realm strategyfor Historic street surfaces and street furniture iare still evident in many the 5 conservation areas in the Town centre. of the historic areas and within conservation areas.

8.8 The complexity of the highway network in particular round 8.9 Recommendation: Future Highway investment schemes to Blackburn town centre and one way loop systems can have an have regard to the significant elements of the historic impact on the historic grid pattern and grain of the area and on the environment , and actively consult with the conservation setting of historic buildings and places. The proliferation of signs officer. that are required as a result of the complexity of the network can create a cluttered street scene. Better coordination with highway officers on schemes within historic areas would be beneficial.

22 Lead Councillor as a Heritage champion would help provide a 9.0 COMMUNICATION universal voice across the whole of the Council’s undertakings.

Goal 5: Joined up working and engagement

9.1The historic environment is shared by all, and is a collective responsibility not a minority interest. Partnership with communities will be an increasingly important activity in order to share the responsibilities for the historic environment as resources become scarce. The historic environment is also a common thread for much of the Councils activity and it is necessary to follow the connectivity by linking initiatives and strategies.

9.2 On going engagement with English Heritage, local civic societies and LCOG is to continue to maintain consistency in standards throughout the region and be aware of recent initiatives. Good links with other organisations can also promote the Borough and heritage related activities can help attract investment.

9.3 It is also important that the Council is seen to take the lead in the stewardship of the historic environment. This should start with training for Council members so that decisions are made on an informed basis.

9.4 The council should also set the example by ensuring that heritage assets in its ownership are well repaired and used. Capita is the Councils partner in the maintenance of its property portfolio. Ensuring that there is relevant conservation expertise and on going maintenance would be beneficial. Close working with Capita and the council’s property officers to secure the sustainable future of Council Property will be an important priority. The appointment of a Figure 12 Museum gallery ornate entrance gate

23 9.5 Raising awareness on the historic environment through events . and exhibitions can help engage the public with the historic environment. More joined up working with the museum service and the property arm of the Local Authority could also have wider benefits for local communities and their cultural appreciation of heritage assets.

9.6 Promotion of key heritage assets can have a significant role to play in attracting visitors to the area, such as the cathedral, St George’s Hall, and Turton Tower, as well as generating much needed income. However there must also be care that increasing visitor numbers does not undermine the significance of heritage assets.

9.7 The community will have a right to bid for heritage assets under provisions set out in the new Localism bill. The likely implications on heritage assets in the Borough will need to be determined and how best this should be taken forward. There are also potential threats from neighbourhood orders on heritage assets. There may be scope to establish a heritage forum to bring council and community interests together. Figure 13 Darwen Library theatre

9.8 Recommendations:

• Explore opportunities for developing a heritage forum to coordinate elements of the historic environment and raise awareness. • Appoint a Heritage champion

24 Goal 3: Conserve the special significance of all heritage assets 10. Summary of Recommendations: and promote the value the wider historic environment can have in place making. Goal 1: Promote the qualities and local distinctiveness of the Borough’s Historic Environment. 13. Provide written comments to all major heritage related 1. Develop policies on the historic environment in the emerging applications, make all guidance and data sets available to DM Development Plan Document on the built environment officers. 2. Identify areas for conservation area designation 14. Advise on improvements to validation criteria in particular in 3. Develop criteria and compile a local list of heritage assets for the connection with heritage statements. Borough. 15. Continue to negotiate qualitative improvements developments. 16. Consider need to review shop front guide for the Borough. Goal 2: Develop a shared understanding and readily accessible 17. Explore options for more effective management of inappropriate evidence base on the historic environment signs in some conservation areas. 4. Devise method and programme for a comprehensive evidence 18. Consider threats from inappropriate alterations and propose base of heritage assets. article 4 directions where appropriate or when conservation area 5. Develop a better understanding of the wider historic landscape appraisals are reviewed. and make characterisation study more readily available. Utilise the 19. Explore opportunities and make use of potential resources for study to identify areas and buildings of historic importance. carrying out building at risk survey and targeting repairs at high risk 6. Ensure information on listed parks is readily available and listed buildings. develop links with parks management. 20. Promote local historical archive of heritage assets in the 7. Develop programme of preparing conservation area appraisals Borough through the museum service of the local history library. and make available on line. 21. Ensure appropriate procedures are in place to record 8. Ratify all existing conservation area appraisal documents by the designated and undesignated assets. Executive member. 9. Establish a programme for enforcing against inappropriate Goal 4: Support economic growth through heritage alterations. regeneration and working with partners. 10. Raise awareness and protection of scheduled monuments. 11. Devise programme and compile comprehensive data set for 22. Retain conservation input into grant schemes and encourage listed buildings. funding bids as appropriate. 12. Identify clear responsibilities for appropriate officers with regard 23. Future highway investment schemes to have regard to to maintenance and management of war memorials. significant elements of the historic environment and actively consult with the Conservation officer.

25 Goal 5: Promote joined up working

24. Explore opportunities for developing a heritage forum to coordinate elements of the historic environment and raise awareness.

26 11. Action Plan

Key actions are proposed for the next 5 years following on from the recommendations set out in the strategy and will be reviewed annually. The actions derive from recommendations in the Strategy and more detailed work tasks. Daily ongoing conservation activities will continue alongside the specific actions shown below. Conservation input into major schemes, listed building applications and grant related developments will be maintained, but there will be emphasis to complete the strategic tasks identified below. Additional tasks will be reviewed each year.

Year Action Relevant Goal Date completed 2011-2012 1. Adopt agreed methodology and Goal 1: Promote the qualities and local Year 1 selection criteria of locally designated distinctiveness of the Borough’s Historic assets, and adopt draft list. Environment. 2. Develop policies on the historic Goal 1: Promote the qualities and local Year 1 environment for the emerging distinctiveness of the Boroughs Historic Development Plan Document on the Environment. built environment. 3. Prepare programme for completing Goal 2:develop a shared understanding Year 1 conservation area appraisals and and readily accessible evidence base on management plans. the historic environment 4. Appoint a heritage champion for the Goal 5: Promote joined up working and Year 1 Borough engagement.

5. Explore opportunities and make use Goal 3: Conserve the special significance Year 1 of potential resources for carrying out a of all heritage assets and promote the building at risk survey value the wider historic environment can have in sustainable place making 6. Devise method and programme for a Goal 2: Develop a shared understanding Year 1 comprehensive evidence base of and readily accessible evidence base on heritage assets. the historic environment Year 1 7. Maintain expert technical input to Goal 4. Support economic growth through Darwen Townscape heritage Initiative heritage regeneration by working with

27 to secure its successful completion Dec partners.

2012-2013 8.Complete one conservation area Goal 2: Develop a shared understanding Year2 appraisal and management plan and readily accessible evidence base on following on from action 3 year 2011-2- the historic environment 12 Year 2 9. Devise programme for carrying out a Goal 3. Conserve the special significance building at risk survey following from of all heritage assets and promote the action 5 above value the wider historic environment can have in place making. Year 2 10. Implement programme for Goal 2: develop a shared understanding compiling a single data set of and readily accessible evidence base on designated heritage assets following on the historic environment from action 6 above. Year 2 11. Consider threats from inappropriate Goal 3. Conserve the special significance alterations in conservation areas and of all heritage assets and promote the propose article 4 directions. value the wider historic environment can have in place making. Year 2 12. Review need to update shop front Goal 3. Conserve the special significance guide of all heritage assets and promote the value the wider historic environment can have in place making. Year 2 13. Finalise and adopt local list as per Goal 1: Promote the qualities and local action 1 above. distinctiveness of the Borough’s Historic Environment. 2013-2014 14 .Complete one conservation area Goal 2: Develop a shared understanding Year 3 appraisal and management plan and readily accessible evidence base on following on from action 3 year 2011-12 the historic environment Year 3 15. Implement actions arising from Goal 3. Conserve the special significance programme relating to Building at Risk of all heritage assets and promote the survey as set out action 9 in Year 2. value the wider historic environment can have in place making.

28 Year 3 16. Identify options for setting up a Goal 5: Promote joined up working and Heritage Forum engagement. 2014-2015 17 .Complete one conservation area Goal 2: develop a shared understanding Year 4 appraisal and management plan and readily accessible data base on the following on from action 3 year 2011--1 historic environment

Year 4 18. Identify areas for conservation Goal 2. Develop a shared understanding designation. and readily accessible evidencebase on the historic environment

Year 4 19. Develop a programme for enforcing Goal 3. Conserve the special significance against inappropriate alterations to of all heritage assets and promote the designated heritage assets and in value the wider historic environment can conservation areas. have in place making. 2015-2016 21. Complete one conservation area Goal 2: Develop a shared understanding Year 5 appraisal and management plan and readily accessible data base on the following on from action 3 year 2011-12 historic environment Year 5 22. Review Buildings at Risk Strategy Goal 3. Conserve the special significance of all heritage assets and promote the value the wider historic environment can have in place making. Year 5 23. Review areas for article 4 directions Goal 3. Conserve the special significance of all heritage assets and promote the value the wider historic environment can have in place making.

References:

Blackburn with Darwen Adopted Core Strategy April 2011. Heritage Counts 2010, English Heritage.

Planning Policy Statement 5; Planning for the Historic Environment (DCLG) 2010

The National Heritage Protection Plan, English Heritage, Interim version December 2010

Town and Country Planning (Listed Buildings and Conservation Areas) Act 1990

Lancashire Historic Town Survey Programme; Blackburn Historic Town Assessment Report April 2005; Lancashire County Council and Egerton Lea Consultancy .

Lancashire Historic Town Survey Programme; Darwen Historic Town Assessment Report April 2005; Lancashire County Council and Egerton Lea Consultancy .

2030 Vision; Blackburn with Darwen Strategic Partneship.