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Agenda Item No. 4

‘A Future for ’s Heritage’ – A review to raise the profile of archaeology in the Borough

Report of the Environment and Sustainability Panel

Prepared by the Scrutiny Unit May 2008

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Contents

Page

Context ...... 2

Findings...... 5

Appendix 1 Examples of Artefacts...... 13

Appendix 2 Environment and Sustainability Panel ...... 14

Appendix 3 Scope of the Review...... 15

Appendix 4 Methodology...... 16

References ...... 17

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Context

Sandwell’s heritage is rich and varied. Place names and artefacts discovered from the Mesolithic through the Iron Age, Roman, Saxon and Medieval periods point to 8,000 years of human activity in the Borough. And its important contribution to the industrial revolution is sometimes understated.

However, these facts have not always been recognised and it is only in the light of exciting recent studies and discoveries, often due to the increase in conditions/recommendations attached to planning applications, that the distant history and heritage of the Borough has begun to be realised. These studies include:

• The Historic Urban Characterisation Study, undertaken across an area of the Borough, as part of the Housing Market Renewal Area Pathfinder Scheme. This identified the historic environment that has formed and characterised the present urban development of this area • The Soho Foundry Conservation Plan. This was the culmination of six independent phases of work on one of the foremost sites of the industrial revolution. This survey has highlighted the importance of the site, its buildings and its buried archaeology • Cradley Heath Town Centre, Historic Landscape Appraisal. This became the foundation for the Historic Buildings Record and Archaeological Evaluation that was undertaken as part of the town centre redevelopment

Along with discoveries, such as:

• A nuclear bunker discovered in . A dark reminder of the threat posed during the cold war • Extensive buried features related to the West Bromwich Manor and possibly a second moated site • A late medieval/early post medieval pottery site with associated town ditch and extensive features relating to the pottery industry in Wednesbury • A late medieval/early post medieval forge recently unearthed in Wednesbury displaying over 400 years of industrial development

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Despite the discovery of these archaeological sites, some of national importance, it is clear that the full extent and quality of Sandwell’s buried archaeological resource is still very much unknown.

The collective evidence for Sandwell’s past is entered into the Historic Environment Record. This public document is constantly updated and holds the total amount of identified historic buildings, historic landscapes and known archaeological information for the Borough. It is essential that adequate resource is allowed to maintain this resource and allow it to reach the recommended national levels. Following the recent Heritage White Paper1, maintenance of a Historic Environment Record is due to become a statutory function.

Protection and conservation of historic buildings, structures and sites is essential (both in local government and private ownership) as these provide a visible link or thread to the past, a continuity of community, a sense of place and pride in the local environment. The Government agrees and there are a number of policies relating to Heritage, including:

• Ancient Monuments and Archaeological Areas Act 19792 • National Heritage Act 1983 & 20023 • Planning (Listed Buildings and Conservation Areas) Act 19904 • Planning Policy Guidance 15: Planning and the historic environment5 • Planning Policy Guidance 16: Archaeology and Planning6

These documents established and strengthened the role of the Local Authority in its protection of the historic environment and the role of English Heritage as the statutory adviser on matters concerning the conservation of England's historic environment. They define a monument as:

“any building, structure or work above or below the surface of the land, any cave or excavation; any site comprising the remains of any such building, structure or work or any cave or excavation; and any site comprising or comprising the remains of any vehicle, vessel or aircraft or other movable structure or part thereof”.

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And make damaging one a criminal offence.

What is more, they place duties on developers as part of granting of planning permission for building works. Archaeological remains are a finite and irreplaceable resource whose presence should be considered in applications for new development. It is important to evaluate the site for its archaeological potential before a development in order to inform future management decisions. This should lead to either preservation in situ, where the archeology is left untouched beneath, or as part of a new development, or preservation by record, where the site is excavated and any finds or features recorded.

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Findings

Preservation and Conservation

Sandwell’s Unitary Development Plan7 contains a section on conservation and heritage. And regarding our commitment to our heritage through the planning process, it commits the Council to:

• Requiring archaeological information before the determination of planning applications • Contributing to the Sandwell Historic Environment Record • Look to identify, protect, preserve and promote archaeological sites • Exploit archaeological sites for their archaeological, recreational and educational value

A study, as part of the Department for Communities and Local Government Housing Market Renewal Area (HMRA) Pathfinder, (set up in areas identified as suffering from housing market weakness, failure or collapse, covering areas of West Bromwich and Smethwick)8, uncovered a high number of sites that need to be protected. However, while we are in the process of the Borough’s largest programme of redevelopment for many years, a lack of resources in Historic Environment & Planning Development means that enforcement of planning conditions is under pressure due to being under resourced and subsequently under staffed.

Planning Officers admit that sites of archaeological interest have been lost (although this is extremely rare) and that a pro-active approach to enforcement and preservation is not possible because of this lack of resource. So the Borough Archaeologist is under pressure and this is affecting his role as the curator for the Borough’s archaeology (both known and unknown). This has effectively prevented him from publishing important information, such as the synopsis of the Borough’s archaeology. We recommend, therefore, that our conservation and planning enforcement functions are strengthened. As the Select Committee on Heritage and Culture9 stated, “our historic environment is unique, irreplaceable and vulnerable and we cannot afford to loose such a valuable resource”.

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The close working between Sandwell Archaeologists and the University of has allowed new technologies to be used, both in identifying locations for possible future community archaeological digs and in recording buildings and structures when they were due to be demolished or redeveloped. But there is still concern over the lack of storage space for the large volume of artefacts recovered from digs, such as those shown in Appendix 1.

The Select Committee on Heritage and Culture reported that:

“Sandwell’s historic environment is unique, irreplaceable and vulnerable and has great cultural, educational and recreational value to present and future residents of the Borough and its visitors”

It included 50 recommendations about the Borough’s physical assets, collections, archaeology, programming, marketing and partnerships. The Cabinet Member for Culture and Leisure agreed an action plan to support their delivery and, by October 2007, lead officers were able to report that 90% of the plan had been delivered or was on target, with a number of significant achievements10, including:

• Bringing together Cultural Services into a single division with a single Cabinet Member • Agreement of Sandwell’s heritage priorities • Development of Heritage Trails for West Bromwich, Smethwick, Wednesbury and Rowley Regis • Programming of more family events at museum sites • Appointment of a Tourism Officer for the Borough • Range of awards for local museums and parks • Development proposals for Oak House and Barns • Increased marketing and digitisation of heritage

However, a small number of recommendations, linked to archaeology, were in need of more resources or had been de- prioritised, most notably recommendations:

22 Increased resources should be made available by the Council for the tasks of cataloguing and conserving Sandwell’s collections, archives and archaeological finds

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25 Given the significance of the Industrial Revolution to Sandwell, the issue of collecting industrial heritage should be considered within collections policies 27 Increased resources should be made available by the Council for excavations and a planned programme should be developed, to ensure a proactive approach to excavating prime sites in the borough. Within the programme, the site around Cobbs Engine House should be a priority. Public involvement in excavations should be encouraged, where appropriate

Following the success of the community dig at Warley Woods, where:

• Up to 300 members of the public participated (70% under the age of 15) • Over 400 pupils attended schools workshops • 50 people turned up to careers seminars • 30 pupils attended evening classes

We recommend that the above recommendations of the Select Committee for Heritage and Culture are revised and revisited as part of a planned programme of works.

Community Archaeology

Community archaeology is a relatively new development where the local community participates in the project. One of the most high profile projects of this kind is “Dig Manchester”11, which successfully engaged local communities. A collection of partners provided expertise and funding to the project. These included:

• Manchester City Council • University of Manchester Museum • University of Manchester Archaeological Unit • Community Archaeology Groups • Heritage Lottery Fund • Private sector partners

During its 3 year life, the community-based archaeological digs had a significant effect on juvenile crime levels, community engagement and school participation and it helped to build political

- DRAFT - 7 - DRAFT - - DRAFT - and local support and recognition for archaeology. It also allowed local community archaeology groups to develop a network which would support similar projects in the future. And produced school packs, including “Dig Boxes”, which formed a positive legacy to the project. However, they found that it is important to get the balance between numbers of volunteers and professionals right, to ensure a worthwhile experience for all involved. Sponsorship has been vital to the success of the project, even at a low level, such as local builder’s merchants providing tools.

Manchester’s neighbouring authorities have seen the programme as so successful that the Association of Greater Manchester Authorities are preparing a further bid to the Heritage Lottery Fund for a successor programme, called “Dig Greater Manchester”.

There is the potential for a similar programme here in Sandwell, not least following the success of the community dig at Warley Woods as noted above. In developing the idea of a community archaeology programme for Sandwell, we invited representatives from Community Safety, Museums Services, Tourism, Education and Planning to discuss their views and any potential barriers.

In general, there was agreement that archaeology in Sandwell could be used to:

• Bring together different parts of the community • Help build a sense of place and belonging • Demonstrate similar history between cultures and communities

Archaeology is a healthy pastime, and suitable for all ages. An exciting potential addition to schools curricula (science, numeracy, literacy and citizenship), it can provide skills development opportunities. Also, “Dig Manchester” has shown that it can help to reduce anti-social behaviour levels.

What is more, Sandwell already has a wealth of interested community groups:

• Langley Local History Society • Oldbury Local History Group • Blackheath and Rowley Local History Group

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• Friends of Haden Hill • Haden Hill Historical Society • Smethwick Heritage Centre Trust • Smethwick Local History Society • Tipton Civic Society • Victoria Park Steering Group • Friends of Brunswick Park • Wednesbury 2000 - Heritage and Tourism Group • Friends of Oak House Museum and Barns • Friends of West Bromwich Library • Hamstead Miners Memorial Trust • West Bromwich Civic Pride Association • West Bromwich Institute • West Bromwich Local History Society

Additionally, there are non-specific heritage groups such as Soroptomists International, the University of the Third Age and various church and retirement groups. Further, the Borough Archaeologist gives talks, twice a month, where the audience varies between 30 and 60 per session. This is a valuable community engagement exercise in raising the profile of the archaeology, developing ownership and establishing a sense of pride in the Borough.

The Museums Service, whose previous use of archaeology had been limited, are looking at the possible development of the Stable Block at the Haden Hill Estate as an educational resource. They also report that school visits to Sandwell’s museums have risen to 5,000 children over the last 12 months. A Community Heritage Officer is already working with excluded young people. They aim to provide resources for teachers and support numerous areas of the curriculum that they could also produce for voluntary and community organisations. This could encourage and support the uptake of archaeology and the wider access to the Museums Service.

School Improvement Services state that in order to encourage schools to make use of archaeology, it is important to tie into the National Curriculum to ensure relevance and as lesson time is limited. Equally, curriculum development is currently focusing on creativity, engagement and relevance to learners’ lives, including an emphasis on first hand experiences. The National Curriculum

- DRAFT - 9 - DRAFT - - DRAFT - already includes historical enquiry, using evidence from a variety of sources, including “sites”. Cross-curricular links are readily available, through literacy, numeracy, science, ICT and religious education. And archaeology can meet all five Every Child Matters outcomes. While learning about “your” area, where you live, can promote community awareness and a sense of belonging.

Culture and heritage has a higher profile with the inclusion of a section on “Sense of Place” within local government performance management frameworks. The Council has also recognised the positive social and economical impact of tourism and is it clear that it is becoming vital to the economic well being of the .

The Council’s Cultural Strategy12 aims to:

“Use culture to support the economic vitality of Sandwell, including maximising the visitor potential of residents and tourists”

Sandwell is currently a destination for day trip visitors, with most being from within Sandwell and the Black Country. The Tourism Plan is committed to, among other things, improving the visitor experience at the Oak House, Galton Valley Canal Heritage Centre and the Manor House. Sandwell does not sit in isolation and the Council is working in partnership with Destination Management Partnership Black Country Tourism, which provides the primary link to the private sector and leads on sub-regional tourism development and marketing.

“Dig Manchester” had shown how community archaeology can have an effect on reducing levels of anti-social behaviour and crime by engaging children and young people on court orders and voluntary contracts, both requiring an element of reparation (repairing the damage the offence has caused). They found that a large numbers of young people (40 out of 67) continued with the programme after their required hours were complete. By the end of the programme, there was a dramatic reduction in the need for sessional staff (from five down to one) as the young people engaged with other volunteers. The young people who took part wanted to know more about the history of the area and regularly entered into conversation with older volunteers.

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Sandwell’s Youth Offending Team currently undertake clearing of areas designated as “Grot Spots” and, in a similar method to Manchester, reclaim the sessional costs from Neighbourhood Renewal Funding, not through “Grot Spot” funding. There is a clear opportunity for linking the work of a community archaeology programme and the work of the Youth Offending Team, in particular getting the areas ready for excavation where young people could clear topsoil. Some young people could then continue with the programme, subject to supervision.

Further, community archaeology is recognised by Sandwell’s Director of Public Health as having a positive impact on health, offering alternative, low impact exercise opportunities for people of all ages. And by the Cabinet Member for Employment & Skills as providing opportunities for skills development, both social and technical, and as a gateway to further personal development or employment.

However, there are potential barriers to a community archaeology programme. It is important that the diverse communities in Sandwell understand archaeological digs to ensure everyone appreciates the work and feels the associated benefits. There will be costs associated with school visits. We understand the possibility for curriculum “overcrowding”, especially with the current emphasis in many schools on literacy and numeracy. However, rather than this being seen as an additional requirement or burden, archaeology can be the vehicle for delivering literacy and numeracy as part of a holistic approach. Further, teaching staff expertise in archaeology is unknown and will need development along with materials to support learning. Schools currently lack awareness of the opportunities that could be available in relation to archaeology.

Archaeological digs require money, the cost of a dig being dependant on the circumstances in that particular location. For example, the dig at Wednesbury Forge, commissioned by the developer through Crouch Butler Savage Limited cost around £350,000 over three years. However, there are grants available such as the Heritage Lottery Fund, which funded the Warley Woods community dig (through Warley Woods Community Trust). Sponsorship has been vital to the success of the “Dig Manchester” project, so we need to work with the Strategic Investment Unit in

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Appendix 1 Examples of Artefacts

Images of artefacts included here

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Appendix 2 Environment and Sustainability Panel

The prime purpose of the Panel is to undertake in-depth enquiries on issues relating to:

• The Local Agenda 21 and sustainable development • Environment and energy • Housing strategy • Strategic town planning and development control • The planning and provision of green spaces • Regeneration and community planning • Highways management • Environmental services management • Transport and public infrastructure • Trading standards and environmental health functions

During the course of the review, the Panel comprised of:

Chair of the External Affairs and Councillor Geoff Lewis Partnerships Scrutiny Panel Vice- Chair Councillor Joy Edis

Councillor Shirley Ching Councillor Mavis Hughes Councillor Margaret James Councillor Barbara Price Councillor Robert Price

Principles

The review was undertaken in line with the following principles within which Scrutiny strives to operate:

• Inclusive • Non adversarial • Evidence based as opposed to anecdotal • Factual and unbiased • Open and transparent

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Appendix 3 Scope of the Review

Project Title ‘A Future for Sandwell’s Heritage’ – A review to raise the profile of archaeology in the borough What How can the profile of archaeology in the borough be question will raised? How to ensure that the significance of the this review archaeological potential is realised in terms of answer? exploration and preservation. Lead Cllr Geoff Lewis (Chair) Members Cllr Joy Edis (Vice Chair) Members of the Environment and Sustainability Scrutiny Panel Aim and The aim of the review is to consider how to raise the scope of the profile of archaeology in the borough, and how to Project ensure that the significance of the archaeological potential is realised in terms of exploration and preservation.

It will assess the need for a strategic approach to agreed outcomes and benefits, identifying the resources that are required to support developments, and where these resources may be obtained. Why this The development of an outcomes strategy will issue is produce a range of crosscutting benefits for being looked Sandwell:- at? • Educational:- Involving young people and enthusing them in studying their local history with resultant improvement in educational attainment, and widening of their aspirations about future careers. • Social Inclusion:- Involving local people in hands on archaeological activity with the resultant development of local relationships, giving people sense of their community and its development, and increased pride and involvement in their current surroundings. • Tourism and Regeneration:- There is potential to develop tourism around the archaeological sites and sell Sandwell as a West Midlands centre of historical interest with the subsequent regeneration that this would bring.

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Appendix 4 Methodology

Evidence was presented to Panel members to:

• Provide an understanding of the policy framework • Learn about the depth of Heritage within the borough • Learn about the “Dig Manchester” project, a beacon project in Community Archaeology • Hear from various council services as to how they could use archaeology and what potential benefits and barriers there might be

The Urban Design & Historic Environment Team, Sustainability Team, Town Teams, School Improvement Services, Tourism Officer, Planning and Transportation, Director of Public Health Sandwell were involved and consulted during this work.

The Panel also heard evidence from Norman Redhead BA FSA MIFA, County Archaeologist and Director of Greater Manchester Archeaology Unit, about the “Dig Manchester” project. Members were also invited to, and attended, a celebration event, held in the Whitworth Hall, Manchester University, marking its end.

It was intended that Members visit an archaeological site within the borough during the period of the review. However, no suitable sites were available during that period but it is intended that Members will visit a site locally in the near future. This will assist the Panel in the tracking and monitoring of the review report.

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References

1 “Heritage protection for the 21st century”, March 2007, ISBN 9780101705721, The Stationery Office 2 Ancient Monuments and Archaeological Areas Act, 1979, Chapter 46, The Stationery Office, ISBN 0105446793 3 National Heritage Act 1983 ISBN 0102784019 & 2002, ISBN 9780105414025, The Stationery Office 4 The Planning (Listed Buildings and Conservation Areas) Regulations 1990, The Stationery Office, ISBN 011004519X 5 Planning Policy Guidance 15: Planning and the historic environment, September 1994, The Stationary Office, ISBN 0 11 752944 3 6 Publication title: Planning Policy Guidance 16: Archaeology and planning, November 1990, The Stationary Office, ISBN 0 11 752353 4 7 Sandwell Metropolitan Borough Council, “Unitary Development Plan”, Conservation and Heritage Policies, 2004, Sandwell Metropolitan Borough Council. 8 Housing Market Renewal Area (HMRA) project for East Sandwell and North West Birmingham, 2004 9 Select Committee on Heritage and Culture: Phase 1: Heritage, July 2005, Sandwell Metropolitan Borough Council. 10 “Monitoring Report on Implementing Recommendations of the Select Committee on Heritage and Culture: Phase 1 Heritage, July 2005”, Report to the Cabinet Member for Culture and Leisure, 25th October 2007, Sandwell Metropolitan Borough Council 11 http://www.manchester.ac.uk/press/title,16906,en.htm 12 Cultural Strategy 2005 – 2008, Sandwell Metropolitan Borough Council

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