1.1.1
Watford Borough Council July 2018
Watford Town Hall and Colosseum
Statement of Significance
www.savills.co.uk
Watford Town Hall and Colosseum Statement of Significance
Project: Watford Town Hall and Colosseum
Client: Watford Borough Council
Job Number: WIPL419799
File Origin: X:\6. Wimborne Heritage\HER - Watford Town Hall
Document Checking:
Prepared by: Natalie Aldrich Signed:
Checked by: Jason Clemons IHBC MRTPI Signed:
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Contents 1.0 Introduction ...... 1 2.0 Development of Watford Town Hall and Colosseum ...... 3 3.0 Assessment Methodology ...... 11 4.0 Legislation and Planning Policy ...... 13 5.0 Watford Town Hall and Colosseum: its significance and setting...... 14 6.0 References...... 27
Appendix 1: Summary of factors for determining the importance of known and potential heritage assets
28
Plates Plate 1: Aerial view of Watford, detailing Watford Town Hall and Colosseum ...... 2 Plate 2: Extract of Ordnance Survey map, 1914 ...... 3 Plate 3: The Elms from the east, c.1935. Nunn, 1999:63 ...... 4 Plate 4: Plan of First Floor of Watford Town Hall and Assembly Hall, taken from the Official Opening of the New Town Hall: Order of Proceedings, 1940. Borough of Watford ...... 5 Plate 5: Watford Town Hall under construction, after Design and Access Statement as part of Planning and LBC applications 09/00875/FUL and 09/00876/LBC ...... 6 Plate 6: Extract of Ordnance Survey map, published 1953 ...... 7 Plate 7: Extract of Ordnance Survey map, 1975 ...... 8 Plate 8: Watford Town Hall from the east, 1985. B. Nunn 1992:337 ...... 9 Plate 9: The Terrapin extension to the north range of Watford Town Hall, with car parking to the west and north-west of the Town Hall and Colosseum, 1999 © Google Earth ...... 10 Plate 10: Central concave elevation at the east of Watford Town Hall and former main entrance retains the original form and detailing ...... 15 Plate 11: Entrance hall and staircase, 1939. RIBA24595 © Architectural Press Archive / RIBA Collections ...... 16 Plate 12: Balustrade to main staircase, former entrance hall ...... 17 Plate 13: South façade of Assembly Hall and entrance. The plain clean detailing continues in the architectural style of the Town Hall’s primary façade and entrance. Ball, 1972:11 ...... 18 Plate 14: Interior of late 20th Century extension, 2018 ...... 19 Plate 15: Watford Town Hall from the north, 2018. The late 20th Century extension (left) is not sympathetic to the surrounding built environment. The brick built Annexe (right) is more sympathetic to the 1930s Town Hall and former Assembly Hall ..... 20 Plate 16 (left): South-east elevation of Watford Colosseum, 2018, shows the relationship between the 1930s Assembly Hall exterior and the 2011 Colosseum extension ...... 21 Plate 17 (right): Watford Colosseum from the south-west, 2018 ...... 21 Plate 18: Watford Town Hall from the east, c.1960. Cooper 2011:96 ...... 22 Plate 19: Watford Town Hall from the east, 2018 ...... 22
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Watford Town Hall and Colosseum Statement of Significance
Figures Figure 1: Indicative plan of Watford Town Hall and Colosseum (outlined in blue) detailing three key phases of development (ground floor) ...... 29 Figure 2: Ground floor of Watford Town Hall detailing key elements contributing to significance, most sensitive to potential change (blue) and negative features which detract from its significance (orange) ...... 29 Figure 3: First floor of Watford Town Hall, detailing key elements contributing to significance, most sensitive to potential change ...... 29 Figure 4: Ground floor of the Colosseum detailing key elements contributing to significance, most sensitive to potential change ...... 29
Abbreviations and Conventions used in the text c. circa LB Listed Building CA Conservation Area LPA Local Planning Authority ha hectares m metres HA Heritage Asset NHLE National Heritage List for England HE Historic England NPPG National Planning Practice Guidance HER Historic Environment Record NPPF National Planning Policy Framework km kilometres OS Ordnance Survey
Assumptions and Limitations This report is compiled using secondary information derived from a variety of sources, only some have been directly examined. The assumption is made that this data, as well as that derived from other secondary sources, is reasonably accurate.
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1.0 Introduction
1.1.1 Savills was commissioned by Watford Borough Council to prepare a Statement of Significance in relation
to the Grade II Listed Watford Town Hall (NHLE reference 1251002) in order to understand the
designated heritage asset. Watford Town Hall is located at Hempstead Road, Watford, WD17 3EX,
centred at National Grid Reference 510570 196833. It is located within the Civic Core Conservation
Area. The report includes an account of the development of Watford Town Hall and Colosseum and the
wider townscape in order to inform an assessment and understanding of its significance as a heritage
asset.
1.1.2 Designated in 1994, the listing incorporates the late 1930s Town Hall and Colosseum (formerly known
as the Assembly Hall) and the attached extensions, including the late 20th Century single storey modular
structure known as the Terrapin, which extends from the north range of the Town Hall. It does not include
the late 20th Century brick structure known as the Annexe, which is located north-west of the Colosseum,
and today provides accommodation for the BBC, NHS and Watford Borough Council.
1.1.3 Plate 1 illustrates the designated Watford Town Hall and Colosseum and its wider environs.
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Watford Town Hall and Colosseum Statement of Significance
Plate 1: Aerial view of Watford, detailing Watford Town Hall and Colosseum
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Watford Town Hall and Colosseum Statement of Significance
2.0 Development of Watford Town Hall and Colosseum
2.1.1 By the early 19th Century, Watford had developed as a linear settlement set out along a main south-east
– north-west route, later known as the High Street. At the northern end of the town, the settlement
culminated at Cassiobury Park which surrounded Cassiobury House, seat of the Earls of Essex. To the
south of the Park a second route passed in a south-westerly direction toward Rickmansworth, crossing
the main south-east - north-west route. Several structures existed to the north-west of this junction, one
of which was Townend, or Townsend, House, dated to 1717. This structure would later be rebuilt and,
known as The Elms, existed until 1937. At the time of the Tithe Map of 1842 the land in the vicinity of
Townend House comprised Houses, outbuildings and gardens, with meadow and orchards to the north-
west.
2.1.2 The Ordnance Survey map of 1914 (Plate 2) illustrates the location of The Elms fronting the crossroads
at the northern end of Watford High Street. It presented a striking impression, on the corner plot, when
approached from the east (Plate 3).
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Plate 2: Extract of Ordnance Survey map, 1914
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Plate 3: The Elms from the east, c.1935. Nunn, 1999:63
2.1.3 In 1920, the Elms and its associated grounds and paddocks to the west was bought by the Watford
Urban District Council as the requirements for additional space to accommodate town officials, in
addition to the existing Council premises at Upton House further south-east on the High Street. For just
under £12,500, the Council purchased the land which included land to the west on which a new hospital
was constructed, opening in 1925. Initially, The Elms was used as a hotel but then was used to house
the Borough Treasurer’s and Valuations Officer’s staff as a temporary measure.
2.1.4 A tender for £146,000 was accepted in 1937 for the building of a new Town Hall and Municipal Offices
at the site adjacent to the Hospital, on the site of The Elms. Including architect’s fees, the new Town
Hall as built for £186,000. The foundation stone was laid on the 18th of May 1938 by the Mayor,
Councillor Rigby Taylor. Completed in 1939 and in use in November that year, it was officially opened
in January 1940. Having been designed in 1935, it comprised two main sections: a radial plan of three
‘ranges’ with a main entrance on its central concave elevation at the east, comprising committee rooms,
principal offices and a mayoral suite over the entrance and a Council Chamber within the central range.
The second section, a continuation of the western range, comprised the Assembly Hall, a three bay
block with its own entrance to the south. The new building had a reinforced concrete frame clad in hand-
made bricks, with a tile roof. Plate 4 indicates the plan of the first floor of the Town Hall and Assembly
Hall in the late 1930s.
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Watford Town Hall and Colosseum Statement of Significance
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Plate 4: Plan of First Floor of Watford Town Hall and Assembly Hall, taken from the Official Opening of the New Town Hall: Order of Proceedings, 1940. Borough of Watford
2.1.5 The main architect of the new Council building was Charles Cowles-Voysey, alongside John Brandon
Jones and Robert Ashton. Cowles-Voysey, from a long line of architects and engineers, had previously
designed Worthing Town Hall and would also design Bromley Town Hall, a Grade II Listed building
(NHLE reference 1261448) with a similar main entrance hall and staircase. Brandon-Jones and Ashton
would go on to design Staines Town Hall and the Hampshire County Council offices in Winchester, the
latter based upon Cowles-Voysey’s 1930s plans.
2.1.6 In all, the new Town Hall and Assembly Hall building was constructed in a functional, classical design
in line with several other town halls and civic buildings of the period, such as the Grade II Listed Luton
Town Hall (NHLE reference 1376193), built between 1935 and 1936, and the Grade II* Listed Bristol
Council House (NHLE reference 1282341), built between 1935 and 1952.
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2.1.7 Plate 5 shows the construction of Watford Town Hall just prior to the outbreak of the Second World War.
Plate 5: Watford Town Hall under construction, after Design and Access Statement as part of Planning and LBC applications 09/00875/FUL and 09/00876/LBC
2.1.8 The inter-war period had seen the re-development of this part of Watford with the construction of several
further public buildings, including the Public Library in 1928, Watford Central Baths in 1933
(Hertfordshire HER reference MHT12836), and the Watford Peace Memorial Hospital. The Ordnance
Survey map of 1953 (Plate 6) indicates these developments, and shows the Town Hall and Assembly
Hall as one entity with what may be a garage block to the north-west of the Assembly Hall. The former
crossroads at the east of the site now comprised a roundabout. The two entrances into the Town Hall,
one at the east concave crescent and one to the south at the Assembly Hall are clearly evident,
accessed directly from the main road. The character of the area as one of providing a public and
community service has persisted, including the use of the Assembly Hall through its lifetime as
showcasing entertainment, events and music.
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Plate 6: Extract of Ordnance Survey map, published 1953
2.1.9 During the second half of the 20th Century, the townscape in which the Town Hall was located was
altered further. Major ring road and highway works were undertaken in the early 1970s which altered
the historic routes through Watford at the north end of the High Street. A dual carriageway in place of
the former Rickmansworth Road resulted in the loss of a direct vehicular route from High Street (now
known as The Parade) north-westwards past the Town Hall. A pedestrian underpass was constructed
but the dual carriageway effectively formed a barrier between the town core and the area north of
Rickmansworth Road, altering the setting of the Town Hall and creating a negative feature in the Civic
Core Conservation Area. The demolition of some of the buildings in the vicinity of the Public Library was
also necessitated. Nikolaus Pevsner claimed that the historic route from the town centre was ‘no longer
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Watford Town Hall and Colosseum Statement of Significance
the triumphal way to the Town Hall, as this now (ludicrously) has to be reached by a subway beneath
Rickmansworth Road’ (Civic Core Conservation Area Character Appraisal, 2015). The relocation of the
Watford Peace Memorial (NHLE reference 1348116), erected in 1928 and previously outside the
Hospital, was also necessitated as part of the road widening scheme. It was later relocated again in
1987 to its current location to the north of the Town Hall.
2.1.10 By 1975 (Ordnance Survey map, Plate 7) a small extension to the north-west of the northern radial
range of the Town Hall had been added. The mapping suggests a narrow corridor connected the
extension to the 1930s building, to the south of The Horns public house. The small rectangular structure
to the south-west of the swimming pool and baths correlates to a former Second World War air raid
shelter and control centre (Hertfordshire HER reference MHT12837) which has since been demolished,
probably as part of the demolition of the swimming baths in the early 21st Century. The newly introduced
Rickmansworth Road clearly dominates this part of Watford, creating a division between The Parade
and the public buildings to the north, as illustrated at Plate 8.
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Plate 7: Extract of Ordnance Survey map, 1975
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Plate 8: Watford Town Hall from the east, 1985. B. Nunn 1992:337
2.1.11 By 1975, it can be seen that the area to the immediate north of Rickmansworth Road largely comprised
structures used to serve the community and wider population, including the Watford Technical College,
the Watford General Hospital, the library, the swimming baths and the Town Hall and Assembly Hall.
The provision of car parks to serve these public offices and amenities is a feature of the area along
Hempstead Road.
2.1.12 Since 1975, the former garage block to the north-west of the Assembly Hall has been replaced by the
four storey brick structure known as the Annexe. Owned by the Borough Council, the Annexe hosts the
NHS and BBC as well as providing additional space for the Council. Its role as a service provider for the
community is in line with the character of the buildings in the vicinity. Its external appearance more
closely follows that of the neighbouring Town Hall due to its scale and use of material than the present
extension connected to the north range of the Town Hall. This extension, known as the Terrapin, had
replaced the former extension by the end of the 20th Century. It is a one storey temporary modular
structure which currently provides additional office, meeting, welfare, and storage space to the Borough
Council. Also since 1975, the site of the General Hospital has been much altered, through demolition
and rebuild.
2.1.13 In 1994 the Watford Town Hall Assembly Halls, as the Assembly Hall was by then called, changed its
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name to the Watford Colosseum. It has hosted the likes of Elton John (born in nearby Pinner), Robbie
Williams, and classical music stars such as Luciano Pavarotti, as well as being the location for the
recording of film soundtracks including The Sound of Music and concerts by the BBC Concert Orchestra.
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Plate 9: The Terrapin extension to the north range of Watford Town Hall, with car parking to the west and north- west of the Town Hall and Colosseum, 1999 © Google Earth
2.1.14 In recent years, continuing changes to the buildings and townscape in the vicinity of the Town Hall have
been experienced. The Watford Central Baths to the north-west of the Town Hall was demolished in
2007 and replaced by a modern Leisure Centre. The former air raid shelter was removed to
accommodate an expanded car park. In 2010, the Watford Colosseum closed and after renovation and
extension was reopened the following year. The extension comprised a bold glass exterior with its own
access off Rickmansworth Road. It possesses its own specific ambiance serving the entertainment
needs of the community, separate from the neighbouring Town Hall Borough Council which continues
to serve the community in its historic civic role.
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3.0 Assessment Methodology
3.1.1 Local planning authorities require an applicant to provide an assessment of the significance of any
heritage assets affected by a proposal, including any contribution made by their setting.
3.1.2 The importance/sensitivity of some heritage assets is formally recognised through designation
(Scheduling of a monument, or the Listing of a built structure). The following terminology has been
adopted within this assessment for classifying and discussing the historic environment:
1) A Heritage Asset is a building, monument, site, place; area or landscape identified as meriting
consideration in planning decisions because of its heritage interest (NPPF, Annex 2 glossary);
2) The Setting of a heritage asset is the surroundings in which a heritage asset is experienced. Its
extent is not fixed, can extend beyond the asset’s curtilage and may change as the asset and its
surroundings evolve. Elements of a setting may make a positive or negative contribution to the
significance of an asset, may affect the ability to appreciate that significance or may be neutral
(NPPF, Annex 2 Glossary);
3) Significance (for heritage policy), as defined in the NPPF (Annex 2 Glossary) is used to describe
the heritage interest of an asset to this and future generations. This interest may be
archaeological, architectural, artistic or historic. Significance derives from not only a heritage
asset’s physical presence, but also from its setting (see Table 1).
4) Value is used in reference to the components of a heritage asset that determines its significance.
3.1.3 Guidance provided by English Heritage (English Heritage, 2008) introduced the concept of values when
weighing the significance of heritage assets with reference to the following value criteria (bracketed
terms indicate corresponding values identified in NPPF):
1) Evidential (Archaeological) value. Deriving from the potential of a place to yield evidence about
past human activity. This value is alternatively known as Research value.
2) Historical value. Deriving from the ways in which past people, events and aspects of life can be
connected through a place to the present. It tends to be illustrative or associative. This value is
alternatively known as Narrative value.
3) Aesthetic (Architectural or Artistic) value. Deriving from the ways in which people draw sensory
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and intellectual stimulation from a place.
4) Communal value. Deriving from the meanings of a place for the people who relate to it, or for
whom it figures in their collective experience or memory. Communal values are closely bound up
with historical (particularly associative) and aesthetic values, but tend to have additional and
specific aspects.
3.1.4 The criteria for assessing the importance of heritage assets in terms of their evidential, historic, aesthetic
and communal values are set out in more detail in Appendix 1 and the definitions of heritage
significance and importance are set out in Table 1.
Assessment of Setting
3.1.5 Historic England has issued Historic Environment Good Practice Advice in Planning guidance notes, of
which Good Practice Advice Note 3 (2nd Ed.) – The Setting of Heritage Assets (December 2017) is
relevant in assessing the setting and significance of Watford Town Hall and Colosseum.
3.1.6 The Historic England Guidance advocates a systematic and staged approach to the assessment of the
implications of development in terms of their effects on the settings of heritage assets.
3.1.7 An understanding of the historic environment within the vicinity of Watford Town Hall has been
established through consideration and evaluation of existing sources of publicly accessible primary and
synthesised information, including:
1) National heritage datasets including The National Heritage List for England (NHLE);
2) The Civic Core Conservation Area Character Appraisal, 2015;
3) The Hertfordshire Historic Environment Record available via Heritage Gateway; and,
4) Historic manuscripts and maps available online.
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4.0 Legislation and Planning Policy
4.1.1 There is national legislation and guidance relating to the protection of, and development on, or near,
important archaeological sites or historical buildings within planning regulations as defined under the
provisions of the Town and Country Planning Act 1990. In addition, local authorities are responsible for
the protection of the historic environment within the planning system.
Planning (Listed Buildings and Conservation Areas) Act 1990
4.1.2 Works affecting Listed Buildings or structures and Conservation Areas are subject to additional planning
controls administered by LPAs under the Planning (Listed Buildings and Conservation Areas) Act 1990.
4.1.3 In considering development which affects a Listed Building or its setting, the LPA shall have special
regard to the desirability of preserving the building or its setting or any features of special architectural
or historic interest which it possesses (Section 66).
4.1.4 The statutory criteria for listing are the special architectural or historic interest of a building. Buildings on
the list are graded to reflect their relative architectural and historic interest (DCMS, 2010a, para 7, page
4):
. Grade I: Buildings of exceptional interest;
. Grade II*: Particularly important buildings of more than special interest;
. Grade II: Buildings of special interest which warrant every effort being made to
preserve them.
4.1.5 Historic England is a statutory consultee in relation to works affecting Grade I/II* Listed Buildings.
4.1.6 Section 16 of the National Planning Policy Framework (NPPF) sets out the Government’s current
planning policy in relation to conserving and enhancing the historic environment.
4.1.7 Applicants are required to provide proportionate information on the significance of designated and non-
designated heritage assets affected by the proposals and an impact assessment of the proposed
development on that significance. This should be in the form of a desk-based assessment and, where
necessary, a field evaluation (NPPF, para. 189).
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5.0 Watford Town Hall and Colosseum: its significance and setting
5.1.1 Watford Town Hall and Colosseum is formed of one main building comprising three sections or phases
of development. The core of the building was constructed between 1937 and 1939 to the designs of
Charles Cowles-Voysey, assisted by John Brandon-Jones and Robert Ashton. The 1930s building was
formed of three ranges radiating from the main entrance at the east. It was part three storey with a
basement level, constructed of reinforced concrete and clad in brick with a tiled roof. The three ranges
contained offices, a Council Chamber, mayoral suite and committee rooms which continue in use as
such today. To the south-west range, the three storey Assembly Hall was located, incorporating its own
entrance and comprising a full height open gallery with stage. Much of the original building remains both
internally and externally. A late 20th Century one storey extension extends from the north-west range. In
2011, a new brick and glass extension was added to the south-west of the Assembly Hall.
5.1.2 The significance of Watford Town Hall and Colosseum as a heritage asset is derived from the
contribution it makes to the narrative of Watford; as an example of the increase in the construction of
municipal and civic buildings of the period; its architectural detailing and impact upon the observer; and
its potential to provide further information about the use of the site over time.
Aesthetic value
5.1.3 Its significance is derived primarily from its aesthetic quality through its architectural detailing and the
visual impact the Town Hall and Colosseum has as a building of its time, as a landmark asset and as
part of a wider streetscape of similarly understood buildings.
5.1.4 Designed to provide an impression of the role of local government, Watford Town Hall forms one
element of a wider townscape of other civically minded buildings built in the inter-war period, including
the Public Library, elements of the Peace Memorial Hospital and the former public swimming baths. It
is a major contributor to the civic character of the area since the inter-war period.
5.1.5 The greatest contributor to the significance of the designated heritage asset is the exterior and interior
appearance, and retention of detailing, of the 1930s core. This is primarily derived from the east and
south elevations, designed to provide an impression (see Plate 18). The elements of the 1930s building
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to the rear (west) provide a much lesser contribution in this regard and the further from the core at the
east of the Town Hall and form the historic core of the Colosseum, provide a lesser contribution to its
significance (see Figures 2-4).
5.1.6 The building expresses the principles and architectural style of the period in which it was designed and
constructed. It is a simple, dignified and functional building, designed to express the civic duty and ethos
from which it was borne as well as performing a practical duty which it continues to perform in the 21st
Century. The three ranges project a sense of symmetry and uniformity and the clean lines and Art Deco
decoration is typical of the period, being read as a complete complex (Plate 10). In this way, it is plainer
than other town halls of the period such as at Bromley and Luton.
Plate 10: Central concave elevation at the east of Watford Town Hall and former main entrance retains the original form and detailing
5.1.7 The clean and simple decoration continues to the interior detailing throughout much of the original and
older sections of the Town Hall and Colosseum. This is evidenced in the original main entrance and hall
and staircase, which makes a bold and eye catching impression (Plate 11). The bronze balustrade of
the staircase incorporating stylised female figures (Plate 12) provides a statement of the Art Deco
architecture seen elsewhere in the building, which continues in part into the former Assembly Hall. The
expression of this architecture and the muted decoration of the 1930s continues at a smaller scale, for
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example, seen to the coving in parts in the Town Hall and former Assembly Hall, the scale of the
washrooms, notably those close to the committee rooms, and the fireplaces and panelling in the mayoral
suite and committee rooms.
Plate 11: Entrance hall and staircase, 1939. RIBA24595 © Architectural Press Archive / RIBA Collections
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Plate 12: Balustrade to main staircase, former entrance hall
5.1.8 The high degree of retention of the original and historic fabric and architectural details enhances the
significance of the Town Hall, despite changes in the use of the building such as the main public entrance
transferring from the entrance hall to the former side door at the north-east elevation of the north range.
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Plate 13: South façade of Assembly Hall and entrance. The plain clean detailing continues in the architectural style of the Town Hall’s primary façade and entrance. Ball, 1972:11
5.1.9 The aesthetic value of Watford Town Hall is not just provided by the architectural detailing and design
but also the room use, layout and dimensions, which also provides a major contribution to significance.
There remains a clear hierarchy of use of the rooms, with the primary rooms providing a superior
impression and accommodating the ley Council officials. These include the Council Chamber,
committee rooms and mayoral suite to the core of the building with further offices, of lesser stature and
greater simplicity within the ranges radiating off, which were not intended for public access. The retained
scale, layout and detailing to a great degree continues to provide a character of grandeur, stateliness
and importance, concentrated primarily to the central concave section of the Town Hall. This theme
continues into the former Assembly Hall, designed as a space of grandeur as well as provide a practical
space, which remains today. The Historic England Listing states that Watford Town Hall is ‘an unusually
rich and complete surviving town hall of the later 1930s, showing that the classical style could still be
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inventive in the service of civic duty’.
5.1.10 Some alteration to the interior and exterior of the building has occurred. Internal partitioning has had a
limited effect on the original fabric and layout. The addition of the one storey late 20th Century temporary
modular extension to the north-west of the north range has introduced unsympathetic materials and
features in terms of style, decoration and the internal and external visual appeal is largely a negative
one (Plate 14).
Plate 14: Interior of late 20th Century extension, 2018
5.1.11 It is clear that the temporary modular extension is a separate entity of a later date however, it was
designed to be a subordinate, low-key addition. It provides a negative contribution to the aesthetic value
of the significance of Watford Town Hall, notably from the north and north-west, from which direction it
is largely understood (Plate 15), however this is reduced when appreciating the Town Hall from
elsewhere due to the intervening built environment, including the boundary wall and public house
ensuring it has a lesser impact upon the overall sensory understanding and ability to appreciate the
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older elements of the Town Hall from the wider context.
Plate 15: Watford Town Hall from the north, 2018. The late 20th Century extension (left) is not sympathetic to the surrounding built environment. The brick built Annexe (right) is more sympathetic to the 1930s Town Hall and former Assembly Hall
5.1.12 The alteration and extension experienced by way of the 2011 works to the Watford Colosseum are also
clearly of a different phase of development than the 1930s building. The introduction of glass alongside
brick to the primary elevations more successfully compliments the original 1930s building. Internally, the
character of the Watford Colosseum of the early 21st Century continues however externally there is a
defined distinction which does not dominate the core of the former Assembly Hall or Town Hall (Plates
16 and 17). As seen with the single storey modular addition to the north-west of the north range, the
extension of Watford Colosseum accords with its purpose as a functional space referencing its own
identity of the Colosseum providing a different role than the public sector Council offices adjoining it.
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Plate 16 (left): South-east elevation of Watford Colosseum, 2018, shows the relationship between the 1930s Assembly Hall exterior and the 2011 Colosseum extension
Plate 17 (right): Watford Colosseum from the south-west, 2018
5.1.13 Whilst there have been minimal alterations experienced to the exterior of the Town Hall and former
Assembly Hall when considered from its primary aspect at the south-east, the highway alterations have
had a greater effect, as seen at Plates 18 and 19.
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Plate 18: Watford Town Hall from the east, c.1960. Cooper 2011:96
Plate 19: Watford Town Hall from the east, 2018
5.1.14 The setting in which the Town Hall and Colosseum are experienced provides some contribution to its
significance and the ability to appreciate its significance. Dominating the south and south-east of the
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Town Hall is the dual carriageway, a negative feature within the area and on this historic character of
the area. The pedestrian underpass and busy road have altered the historic connectivity and the ability
to access and appreciate the building within its wider context. The neighbouring structures to the east,
north and west of the Town Hall contribute to the group value of the area as one of public service. The
late 20th Century extension at the north of the Town Hall does not overly detract from this setting, when
the Town Hall is understood from the east and its primary facade. Further unsympathetic alterations to
the public realm, notably to the north, east and south of the Town Hall, related to the streetscape and
street furniture have also had negative impacts upon its setting visually.
5.1.15 The aesthetic value of the building is considered to be a high contribution to its significance.
Historical value
5.1.16 In addition to the high architectural or aesthetic appeal of Town Hall and Colosseum, the designated
heritage asset possess high historical value: through its place in the development of Watford in inter-
war period and its place amongst other heritage assets and in Conservation Area.
5.1.17 Watford Town Hall is a good example of a building of the period and purpose. Its civic function is
expressed in its original fabric and design. Elements contained within the building inform the story of the
building, from the information contained on its foundation stone, now incorporated in the former entrance
hall, to the date on the external rainwater downpipes and the use of different materials for later additions
to the 1930s building. The original purpose of the building, or serving the community, continues in the
21st Century. The high level of retention of the original and historic elements provides a rich and
complete example of a 1930s civic building. Where alteration has occurred, this can also inform people
as to the changing requirements of those occupying the building, for example, the extra, temporary,
accommodation provided by the Terrapin, and the extension of the Colosseum, both made for functional
reasons, continuing the theme of the theory behind the design of the Town Hall and Assembly Hall in
the 1930s. The relationship between the design and function of the building is at its heart.
5.1.18 Watford Town Hall possess a high associative value. The influence of the notable architect of municipal
buildings in the mid-20th Century, Charles Cowles-Voysey, upon the Town Hall provided it with an
element of consistency with other town halls and public buildings of the period. In addition, the input of
other specialists in their field, including clock makers Gillett and Johnston Ltd, installers of the electric
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Watford Town Hall and Colosseum Statement of Significance
clocks and turret clock at Watford Town Hall as well as the clocks at Luton Town Hall in 1936, and
Hobbs, Hart and Co. supplier of the strong room door and associated equipment, provides an increased
notability.
5.1.19 The former Assembly Hall retains its impressive open space and this provides impressive acoustics for
those artists who perform at the Colosseum. The Colosseum has been used to record the soundtrack
for many films, including the Lord of The Rings, and the Star Wars Trilogy. Sir Thomas Beecham,
conductor and founder of the Royal Philharmonic Orchestra was of the opinion that ‘it was one of the
finest venues outside London for recording’. The design of the hall resulted in acoustics which still have
a reputation for being some of the finest in the UK.
5.1.20 The historical value of the building is considered to be a medium to high contribution to its significance.
Evidential value
5.1.21 The site of Watford Town Hall and Colosseum within the wider inter-war development of Watford and
on the site of the former Elms building, at the historic crossroads at the north of the town provides for
the potential for archaeological features below ground to reveal more about former use and story of
Watford. In addition, within the building the potential to understand more about its construction methods,
occupation and use, as well as to inform about the society of the past, by way of the archives held within
the basement strong room, remains. To the north-west oft the Town Hall, the remains of previous
structures or ancillary buildings dating to the 20th Century are known to have been located. The potential
for fabric to remain below ground holds potential to provide an enhanced understanding of the use of
this area and the public it served.
5.1.22 A further source of extending the knowledge of the use and development of the building is possible
through the oral history of previous staff and visitors, which may provide a wider understanding of the
building.
5.1.23 The evidential value of the building is considered to be a low to medium contribution to its significance.
Communal value
5.1.24 Watford Town Hall provides a place for commemoration in the community. In the former entrance hall a
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Watford Town Hall and Colosseum Statement of Significance
commemorative plaque records the names of members of staff of the Borough Council who died in the
Second World War, and of one in the First World War. The locating of the Grade II* Watford Peace
Memorial to the north of the Town Hall in the 1980s also provides a place to reflect, and contributes to
the green space to the north, a key element of the Civic Core Conservation Area. It is typical of public
buildings to contain areas and features which acknowledge and record a national event, such as the
World Wars, at a local level.
5.1.25 The ability for the public to access and understand Watford Town Hall and Colosseum both internally
and externally, through the community space it provides, and as accommodating a public facing service,
affords the building with an additional collective value.
5.1.26 The communal value of the building is considered to be a low contribution to its significance.
Summary
5.1.27 The key elements of Watford Town Hall and Colosseum from which the significance of the heritage
asset are primarily concentrated to the core 1930s Town Hall and former Assembly Hall. Its overall
visual impact, the contribution it makes to the character of the area in which it is located, and the building
as an example of many civic buildings of the period in which it was designed and built provides Watford
Town Hall with a medium to high level of significance as a heritage asset.
5.1.28 The elements which are most sensitive to change, and which may result in harm to the significance of
Watford Town Hall and Colosseum, are detailed at Figures 2-4. Much of the later 20th and 21st Century
alterations to the 1930s building have sought to be sympathetic to the significance of the building. The
key element of the Town Hall which is not sympathetic and does not contribute positively to the
significance of the heritage asset, and which has potential to be enhanced, is the late 20th Century
modular extension to the north range. This extension holds no special architectural or historic interest
and, indeed, to a degree from the north and east, detracts from the ability to appreciate the building,
and thus, its significance.
5.1.29 The degree of retention and completeness of historic or original elements and the limited scale of later
alterations and additions, internally and externally, enhances the building’s significance, as does its
continuing use as a public service building with public accessibility. It is important that this level of
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Watford Town Hall and Colosseum Statement of Significance
significance is recognised and respected when considering any future developments of both the building
as its own entity and developments of the wider site.
5.1.30 The potential to enhance the significance of the Watford Town Hall exists through development which
seeks to remove or alter the negative features which detract from the ability to appreciate its significance
or which provide a negative visual impact upon the Town Hall or its setting. This may be achieved
through the removal of negative features, higher quality design of future alterations or extensions, the
use of sympathetic construction materials and architecture, or sensitive treatment of the streetscape
and surrounding street furniture and landscaping.
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Watford Town Hall and Colosseum Statement of Significance
6.0 References
A.W. Ball, 1972. Watford: A Pictorial History 1922-1972. Watford Borough Council
B. Nunn (Ed.), 1992. The Book of Watford: A Portrait of our Town. Pagepoint (Watford) Ltd.
Department for Communities and Local Government, 2014. Planning Practice Guidance: Conserving and enhancing the historic environment, s.l.: DCLG.
English Heritage, 2008. Conservation Principles, Policies and Guidance, York: English Heritage.
Historic England, 2018. The Setting of Heritage Assets. 2nd Ed. [Online]
Available at: https://content.historicengland.org.uk/images-books/publications/gpa3-setting-of-heritage- assets/heag180-gpa3-setting-heritage-assets.pdf/ [Accessed 27 February 2018].
Historic England, 2018. Search the List. [Online]. Available at: https://historicengland.org.uk/listing/the-list/
[Accessed 12 June 2018]
J.B. Nunn, 1999. Watford Past: A Pictorial History in Colour. J.B. Nunn
J. Cooper, 2011. Watford Through Time. Amberley Publishing
Minstry of Housing, Communities and Local Government, 2018. National Planning Policy Framework, s.l.:
MHCLG
Official Opening of the New Town Hall: Order of Proceedings, 1940. Borough of Watford
Watford Borough Council, 2015. Civic Core Conservation Area Character Appraisal. Adopted December 2015.
Watford Borough Council, 2018. Planning – Simple Search. [Online]. Available at: http://pa.watford.gov.uk/publicaccess/ [Accessed 2 July 2018]
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Watford Town Hall and Colosseum Statement of Significance
Appendix 1: Summary of factors for determining the importance of known and potential heritage assets
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Watford Town Hall and Colosseum Statement of Significance
Summary of factors for determining the importance of known and potential heritage assets Value Importance Factors determining the relative importance There is a high potential for the heritage assets to provide evidence about past human activity and to contribute to our understanding of the past. This potential relates to archaeological sites that are likely to survive (both below and above ground) and, in the absence of written High records, provide the only source of evidence about the past, resulting in enhanced understanding of the development of the area. It also relates to other physical remains of past human activity, such as historic fabric within buildings and surviving elements in the historic landscape which contribute to its historic character. The potential for heritage assets to yield physical evidence contributing to the understanding of the development of the area is recognised, but there may be fewer opportunities for new insights to be deduced due to the nature of the heritage assets in Evidential question, our knowledge of the past of the area or subsequent changes to the development of the area throughout history. Medium The potential for archaeological deposits to contribute to an understanding of the development of area may not be fully recognised due to the current level of understanding of the local and regional history. The potential may also be impacted, in a limited way, by later development. The physical remains are preserved in a limited way – limited assets survive, very few are recorded or assets are known to have been partially or significantly damaged. Low Low evidential value of archaeological deposits may be affected by the current lack of research within the area, but this does not preclude for further remains of higher value to be discovered. There are no surviving physical remains from which evidence about past human activity could be derived (assets are known to None have been removed or destroyed by later activity) The legible heritage assets are clearly perceptible in the landscape/townscape and the links between the assets and the history or prehistory of the area (illustrative value) or to historical events or figures associated with the area (associative value) are easily High visible and understandable. The high value is not precluded by some degree of the 20th/21st century alterations to the historic buildings and landscapes. The legible heritage assets are present in the area, but their legibility may have been compromised by some form of alteration to the asset or its surroundings (e.g. rural parish church now situated within a suburban residential development). Even in their present form, such assets enable the local community to visualise the development of the area over time as there are potential Historical Medium associations between assets. The presence of these assets may contribute to an understanding of the development of the area. Further research, including archaeological investigations, may clarify these associations and elucidate the contribution of these assets to the history of the wider area. Low The historical associations of the asset are not clearly understood, as a result of severe changes to the asset or its surroundings
None There are no legible heritage assets and their associations are not understood.
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Watford Town Hall and Colosseum Statement of Significance
Value Importance Factors determining the relative importance The aesthetic values of the heritage assets are visually perceptible within sympathetic surroundings, developed through conscious High design or fortuitously, throughout prehistory and history. The completeness or integrity of the heritage assets within the landscape is clear and their contribution to the aesthetics of the surrounding area is significant. The aesthetic qualities of the individual assets or landscapes are legible, but there may have been considerably impacted upon Medium Aesthetic by the modern, unsympathetic development. The aesthetic qualities of the individual assets or landscapes have been significantly impacted upon by the modern development Low as a result of which the aesthetic value is not clear, however, there may be a possibility for improvement. Assets have no aesthetic values as they have been removed by inconsiderate modern development. Buried archaeological None remains are not ascribed aesthetic values as, whilst buried, they are not visible/perceptible in their context. Heritage assets which provide a sense of togetherness for those who experience it. Assets that hold the ability for people to feel a sense of collective experience or memory, and in which a collective identity can be understood. They may provide a feeling of High reverence, remembrance or commemoration. The asset represents something which may be larger than the asset itself, and may represent an event or being despite any loss of fabric or character of the asset. The sense of a collective identity or collective commemoration may be limited by the lack of understanding of the event or asset. Communal Medium The process of time has lessened the meaning of the event or asset for the community or that meaning may be limited to specific groups or at a regional or local level. The ability of the asset to create or reinforce a sense of togetherness for a community may be limited by later development which Low has encroached upon the asset or its setting. The ability of the asset to elicit a shared reaction or understanding has been severely impacted by the loss of, or major change to, the setting of the asset. None Heritage assets that do not bring people together by providing a shared experience, memory or place of commemoration.
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Watford Town Hall and Colosseum Statement of Significance
Table 1: Definitions of heritage significance/importance
Heritage significance/ Criteria importance
World Heritage Sites and the individual attributes that convey their Very High Outstanding Universal Value.
Of International Areas associated with intangible historic activities as evidenced by the Importance register and areas with associations with particular innovations, scientific developments, movements or individuals of global importance. Scheduled Monuments Listed Buildings (Grade I, II*) Registered Historic Parks and Gardens (Grade I, II*). Grade II Listed Buildings which can be shown to have exceptional qualities in their fabric or historic associations Registered Battlefields. High Non-designated sites and monuments of schedulable quality and/or importance discovered through the course of assessment, evaluation or Of National Importance mitigation. Unlisted assets that can be shown to have exceptional qualities or historic association, and may be worthy of listing at Grade II* or above. Designated and undesignated historic landscapes of outstanding interest, or high quality and importance and of demonstrable national value. Well-preserved historic landscapes, exhibiting considerable coherence, time-depth or other critical factors. Conservation Areas Grade II Listed Buildings Grade II Registered Historic Parks and Gardens Historic townscapes and landscapes with reasonable coherence, time-
depth and other critical factor(s).
Unlisted assets that can be shown to have exceptional qualities or historic
association, and may be worthy of Grade II listing. Medium Designated special historic landscapes. Of Regional Importance Undesignated historic landscapes that would justify special historic landscape designation, landscapes of regional value. Averagely well-preserved historic landscapes with reasonable coherence, time-depth or other critical factors. Archaeological features and deposits of regional importance. Locally Listed Buildings Sites of Importance within a district level. Heritage Assets with importance to local interest groups or that contributes to local research objectives Low Robust undesignated assets compromised by poor preservation and/or
poor contextual associations. Of Local Importance Robust undesignated historic landscapes. Historic landscapes with importance to local interest groups. Historic landscapes whose value is limited by poor preservation and/or poor survival of contextual associations.
Negligible Assets with little or no archaeological, architectural or historical interest
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Watford Town Hall and Colosseum Statement of Significance
N
Figure 1: Indicative plan of Watford Town Hall and Colosseum (outlined in blue) detailing three key phases of development (ground floor)
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Watford Town Hall and Colosseum Statement of Significance
N Colosseum, see Figure 4
Former main staircase and entrance foyer
Late 20th Century extension: interior and exterior Figure 2: Ground floor of Watford Town Hall detailing key elements contributing to significance, most sensitive to potential change (blue) and negative features which detract from its significance (orange)
Exterior of 1930s building: fronting Rickmansworth Road and Hempstead Road
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Watford Town Hall and Colosseum Statement of Significance
N Interior of Council Chamber
Figure 3: First floor of Watford Town Hall, detailing key elements contributing to Interior of committee rooms and mayoral suite, including significance, most sensitive to detailing and features such as panelling and fireplaces potential change Main staircase and corridor to committee rooms
Exterior of 1930s building: fronting Rickmansworth Road and Hempstead Road
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Watford Town Hall and Colosseum Statement of Significance
N
Figure 4: Ground floor of the Colosseum detailing key elements contributing to significance, most sensitive to potential change
Exterior of 1930s building: fronting Rickmansworth Road Interior of former Assembly Hall’s main room: scale, detailing
The Town Hall
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