Chapter 1 - Introduction

10 Historic Environment
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Introduction
10.01	The present environment is the product of countless natural changes, human decisions and endeavours made over thousands of years. The evidence of this history contributes towards an understanding of the evolution of local, social, cultural and economic development.
10.02	Understanding and learning from history has significant tangible benefits to both the national and local economy, as it attracts large numbers of tourists and visitors annually. The South West is renowned for its identity, attractiveness and sense of history. These attributes must be seen as some of the most important local strengths that underpin our future economic prosperity.
10.03	Sedgemoor has some of the country’s most important archaeological remains. The remnants of wooden trackways across the Levels, dating back 3,000 years, have been discovered while there is evidence of prehistoric field systems at Brean Down. Iron Age hillforts were built at Cannington and Brent Knoll 2, 500 years ago.
10.04	The Roman era saw significant development within the area, particularly with respect to exploiting the agricultural potential of the Levels and Moors and the mineral potential of the Mendips. The Axe and Parrett Rivers were used to export produce with places like Combwich developing as a port.
10.05	Local markets and settlements expanded throughout the Anglo-Saxon period. At this time, much of our land was either owned by the Crown or the Church. Large estates were developed and a Royal Palace established at Cheddar. Much of the landscape still evident around the Quantocks dates from this period.
10.06	After the Norman Conquest, expansion continued. The Saxon hunting grounds of the Mendips and Quantocks became Royal Forests, while the Levels and Moors became more settled and managed. With the dissolution of the monasteries, large land holdings came under the Crown. This instigated a period of major drainage and land reclamation, creating much of the landscape of roads and fields present today.
10.07	The Industrial Revolution saw the construction of canals, the railway network and the expansion of our urban areas. Generally, the present century has only managed to add detail to what is in effect a landscape of medieval and post medieval character. In consequence, the District is rich in both nationally and locally important archaeological and historical features, including: historic landscapes as at Halswell Park, Goathurst; the Ancient Woodlands of the Quantock and Mendip Hills; Areas of High Archaeological Potential, such as Cheddar, Axbridge, Nether Stowey and Wedmore; twelve Conservation Areas, including the outstanding Heritage Settlements of Axbridge, Bridgwater, Lympsham and Nether Stowey; numerous Ancient Monuments and over 1,100 Listed Buildings; and a wide range of outstanding examples of industrial archaeology and buildings associated with land drainage schemes or traditional industries.
Key Objective
	To preserve and enhance Sedgemoor’s historic environment. To ensure that it has a continuing role in distinguishing the District’s unique sense of identity and place, whilst contributing toward its attractiveness as a place to visit and to overall economic prosperity.

Conservation Areas and Outstanding Heritage Settlements
10.08	The Structure Plan through Policies 8-14 firmly recognises the importance of the built heritage of the County and the strong presumption in favour of retaining buildings and areas of architectural or historic interest and character. The core of established control in this respect is through Conservation Area designation and Listed Building control now consolidated in to the Planning (Listed Buildings and Conservation Areas) Act1990. Further guidance is contained in Planning Policy Guidance Note 15 ‘Planning and the Historic Environment’ (1994). In accordance with the need to review and assess the potential for Conservation Area designation, several additional areas (at Cannington, Shapwick and Spaxton)weredesignatedin1991. Conservation Areas are designated by the District Council.

Enhancement of the Built Environment
10.09	The principal statutory controls of Conservation Area designation and Listed Building legislation, whilst ensuring the proper protection of specific buildings, structures and areas, are only part of the necessary commitment to conservation. The content of the legislation also imparts a duty on Local Authorities to encourage the enhancement of historic areas, primarily through the concentration of resources within areas of special character. Local Authorities have an important co-ordinating role to play. They can actively promote environmental schemes and seek a variety of sources of public and possibly private capital to create a long-term commitment to conservation and enhancement. Several major enhancement schemes have already been undertaken within Sedgemoor District, chiefly centred on Conservation Areas and the District Council wishes to see continued commitment towards such schemes.
10.10	Enhancement schemes are a fundamental means by which a Local Planning Authority can fulfil its duty to secure the improvement of Conservation Areas. The channelling of resources to neglected or underused areas as a catalyst to private sector investment and confidence in the longer term is a proven and effective policy. Whilst the structure of potential funding sources has changed significantly in recent years, a major objective in promoting enhancement schemes will be to seek partnership funding from such sources as English Heritage, The Heritage Lottery Fund, The Landfill Tax Credit Scheme and private sources. The priorities of the District Council in promoting such enhancement schemes will be to target areas for physical and economic regeneration, which can be a powerful form of public policy.
10.11	A commitment to enhance the environment around St Mary’s Church was established in the Bridgwater Central Area Local Plan. Extensive repaving and other enhancement works have since been completed within the churchyard. Further enhancement works in St Mary Street would considerably improve the environment of this street, yield greater benefits from the investment already made in this part of the Conservation Area and contribute towards the Bridgwater Town Centre regeneration initiatives. These proposals will require to be considered within the traffic management proposals for the Town Centre. Any proposals for the enhancement scheme for St. Mary Street, Bridgwater will be subject to public consultation. This will include the implications for vehicular access and servicing.
	POLICY HE1 New development in a Conservation Area should preserve or enhance the character or appearance of the designated area.
10.12	New development outside but adjacent to a Conservation Area, which would affect its setting, should also preserve or enhance that area.
	PROPOSAL HE2 An enhancement scheme will be carried out at St Mary Street, Bridgwater, as defined on the Proposals Map (Link to Map 1a Central).

Demolition within a Conservation Area
10.13	The purpose of Conservation Area designations is to protect areas of special character. There is no standard definition as to what constitutes character and there is certainly no requirement that designated areas should be centred on Listed Buildings, although many are. Proposals involving alterations or demolition of Listed Buildings are controlled through the relevant legislation. However, it is very often the special quality and character of areas which is afforded by the contribution made by trees, materials, groups of buildings and the spaces between them. Conservation Area legislation consequently recognises that demolition of unlisted buildings within Conservation Areas can have a dramatic effect upon character. It is therefore, a requirement that Conservation Area Consent is needed for most demolition proposals within designated areas. The Local Plan will have full regard to the operation and interpretation of this legislation.
10.14	Policy HE3 is intended to safeguard those buildings which make a contribution to the character of a Conservation Area, having regard to the age and condition of the building and the nature and desirability of redevelopment proposals. Where redevelopment is acceptable, the Council may require to be satisfied that the scheme will proceed before granting Conservation Area Consent for the demolition of the existing structure. The District Council has secured funding from the Heritage Lottery Fund for a major Townscape Heritage Initiative for Bridgwater Town Centre.
10.15	The legislation as defined does not specifically include control over alterations to unlisted buildings in Conservation Areas (unless planning permission is required). Some alterations, however, can have a very damaging impact upon character of the buildings and area (such as unsympathetic changes to roof materials, alterations to windows, painting of stone or brick walls, etc). Where such problems are identified the District Council will consider exercising its power to make Article 4 Directions to remove defined categories or permitted development.
	POLICY HE3 Proposals involving demolition of unlisted buildings in a Conservation Area will only be permitted if all the following criteria are met: a) the structure to be demolished makes no positive contribution to, or has an adverse impact upon, the character or appearance of the area; b) redevelopment proposals for the site provide for the preservation and/or enhancement of the character, appearance and setting of the Conservation Area; and c) having regard to a) and b), a contract has been let for the construction of the replacement structure.

Development Proposals in Conservation Areas
10.16	Conservation Area designation in itself does not preclude new development or change carried out in a sensitive and appropriate manner. Nor does designation imply that new development is undesirable, although it is expected that new buildings and structures should positively enhance the character or setting of the Conservation Area. There are no pre-determined design approaches which can be prescribed for new forms of development. What may be appropriate on a particular site may be wholly undesirable on another, even within the same Conservation Area. It is therefore important, that careful consideration is given to architectural solutions whether or not in conjunction with demolition proposals.
10.17	The most important consideration is the impact of the development proposal on the character and setting of the Conservation Area. The factors which will comprise the context to the site and the wider area will vary between different sites in the same Conservation Area and of course, between Conservation Areas. Policy HE4 below is, therefore intended to provide guidance for the consideration of all new development proposals in Conservation Areas and will be operated in association with Policy BE1 relating to Design Statements.
10.18	All development proposals within or affecting a Conservation Area will merit particularly detailed scrutiny. The District Council will encourage the submission of ‘full’planning applications rather than applications in ‘outline’ form. Where an applicant is seeking to establish the principle of development the District Council is likely to require the submission of substantially more detailed information than might normally be necessary. Such outline applications may be refused if there is insufficient information to satisfy the Local Planning Authority that the proposal will not adversely affect the character of the Conservation Area.
10.19	The District Council has published an appraisal and audit of Sedgemoor’s Conservation Areas (“The Conservation Areas of Sedgemoor” 1993).
	POLICY HE4 Proposals for development in Conservation Areas (and those outside an area which would affect its setting) will only be permitted if all the following criteria are met: a) the proposal’s scale, form, materials and detailing respects the character of the built context of the site; b) the proposed plot coverage is in keeping with the site’s surroundings; c) significant boundaries, open spaces, trees and other landscape features, and other details which contribute positively to the character, townscape or historic interest of the area are identified, retained or enhanced; and d) important views within, into or out of the area are protected or enhanced.

Buildings of Architectural or Historic Interest
10.20	The statutory lists of buildings of Special Architectural or Historic Interest (compiled by the Secretary of State) are the cornerstone of government policy for the protection of historic buildings. Following the national re-survey in the 1980’s the total of Listed Buildings in the District now exceeds 1,100.
10.21	The fundamental concern of national and local planning policy is to protect and maintain the stock of historic buildings, to encourage their repair and to make further funds available towards the costs of necessary repairs and restoration. In conjunction with other conservation policies, environmental and enhancement schemes, the achievement of conservation objectives can be a significant source of tourist revenue and local economic development.

Retention of Listed Buildings
10.22	The above policy is essentially aimed at Listed Buildings. It has been the practice of the District Council for several years to make funds available with which, to assist repair and restoration work to historic buildings when resources permit. Established criteria exists for determining priorities for assistance amongst completing claims relating to the historic/architectural qualities of the building and the likelihood of repairs being undertaken without the use of public funds. Assistance is normally subject to the property being in residential use. It is also subject to a financial means test. Wherever appropriate, the District Council will also guide owners to other possible sources of financial assistance and advice such as the County Council and English Heritage.
10.23	In the event of a Listed Building of acknowledged quality falling into disrepair, with little prospect of restoration being undertaken, the District Council can serve a Repairs Notice which, may lead to the building being brought into public ownership for the purposes of achieving adequate repairs. The Council will also co-operate, as necessary, with other restoration agencies such as the Somerset Historic Buildings Preservation Trust. Particularly where this might secure a future for an important building at risk and help contribute towards enhancing an area of denuded townscape or assist economic regeneration objectives.
	POLICY HE5 The repair and conservation of Buildings of Architectural or Historic Interest will be encouraged.

Change of Use of a Listed Building
10.24	Whilst the majority of Listed Buildings in the District are in residential use, there are often pressures to change their existing use either wholly or partly. This is often so in the historic cores of settlements (particularly Town Centres), where there are changing commercial pressures. The Council recognises the need for buildings to adapt to different local circumstances and economic uses. The essential consideration is to ensure that Listed Buildings are well maintained and repaired thus preserving their architectural and historic interest. Given other policies of the Local Plan, for the location of various uses, the Council attempts to be as flexible as possible in permitting changes of use to Listed Buildings. Although the original uses are very often the most appropriate. However, there must be a particular regard to proposed physical alterations relative to the architectural integrity of the building.
10.25	Applications should incorporate details of all proposed alterations to the building (internally and externally and to its curtilage) to demonstrate their effect on its appearance, character and setting.
	POLICY HE6 A change to an alternative, appropriate use of part, or the whole, of a Listed Building will be permitted if its character and features of architectural or historic interest would be preserved, enhanced or restored.

Extension or Alteration of a Listed Building
10.26	Alterations which would affect the character or appearance of a Listed Building require the prior grant of Listed Building Consent. Even relatively minor but insensitive works can severely damage the historical or architectural integrity of a building or structure. In considering applications involving alterations or conversion of Listed Buildings, the Local Planning Authority will need to be satisfied that proposals accord with the general guidance of Structure Plan Policy 9 and PPG15. This requires development proposals to protect the setting, character or appearance of all Listed Buildings and Conservation Areas.
10.27	In some circumstances, proposed alterations to a Listed Building may involve a complex package of measures. In order to fully assess the impact of the proposals, the Council may require the preparation of a building appraisal. This will need to demonstrate how the detailed physical proposals address the character of the building and contribute towards its special architectural or historic interest.
	POLICY HE7 Development involving proposals to extend or alter a Listed Building (or part of a building) internally or externally, will not be permitted unless: a) it would preserve or enhance the character and setting of the building or a Conservation Area; b) it would preserve any features of special architectural or historic interest; and c) it is sympathetic in design, historic form, scale and materials with other parts of the building. In appropriate cases, the District Council will require the recording of features of interest that would be destroyed in the course of works for which consent is being sought.

Demolition of Listed Buildings
10.28	The policy stance relating to demolition proposals for Listed Buildings is clear and straightforward. There is a firm presumption in favour of retention of a building and the exploration of every possibility for repair, restoration and an appropriate alternative use.
10.29	The policy below sets out the criteria on which applications for demolition will be determined. Where consent is granted for the demolition of a Listed Building owners are required, under the relevant legislation, to make provision for the prior recording of the building or structure.
	POLICY HE8 There is a presumption in favour of the preservation of buildings listed as being of special architectural or historic interest. Consent for demolition will only be granted in exceptional circumstances, having regard to: a) structural condition; b) physical and financial feasibility of repair and economic reuse; c) satisfactory evidence of attempts at disposal on the open market where appropriate; d) the importance of the building in terms of architectural merit, setting and historic interest; e) the acceptability of redevelopment proposals for the site; and f) circumstances where major benefits can be demonstrated that cannot be provided by other means; g) in appropriate cases the District Council will require the recording of features of interest that would be destroyed in the course of work, for which consent is being sought. The District Council will exercise, where appropriate, its power to impose a condition on Listed Building Consents to prevent their implementation until a contract has been let for the approved replacement structure.

Archaeology
10.30	The District has a wealth of archaeological areas and buildings. Many of these sites are of national importance and some are protected as Scheduled Monuments where the issue of development is a matter for the Secretary of State (in consultation with the Local Planning Authority). Scheduled Monuments notified at the time of preparation of the plan are indicated on the Proposals Map.

Archaeological Sites of National Importance
10.31	Archaeological remains are irreplaceable and PPG16 (Archaeology and Planning) advises that where development proposals would affect nationally important remains, whether scheduled or not, there will be a presumption in favour of the physical preservation of the remains. However, applications will be weighed against the national need for, or importance of, the proposed development.
10.32	In cases where development is permitted, mitigation strategies through the application of appropriate conditions on planning consent will be carried out. The mitigation strategy will cover preservation of the remains in situ or, where this is not possible, the recording or excavation of the site before the commencement of and/or during, building works.
	POLICY HE11 There will be a presumption in favour of preservation in situ of nationally important archaeological sites, whether scheduled or not. Planning permission will not be granted for development that would damage or destroy these sites or their settings unless the importance of the proposed development outweighs the national significance of the remains. In that event, mitigation strategies should be in place for the protection and recording of the site.

Other Archaeological Sites and Areas
10.33	Archaeological sites that are not identified as nationally important also require protection from development. Such locally important sites include sites of county importance and often lie within areas of high archaeological potential, both of which are shown on the proposals map. Known sites are listed in the Historic Environment Record (HER) maintained by the County Council. Knowledge of the relative importance of the sites recorded in the HER and the definition of their boundaries is often imperfect. Furthermore, the sites are so numerous that it would not be practicable to show them on the Proposals Maps, other than in a generalised manner. Developers should consult the County Archaeologist for further and updated information.
10.34	Areas of High Archaeological Potential are shown on the Proposals Map and cover areas where archaeological remains are likely but have not yet been identified. Most of these cover the historic cores of settlements.
10.35	It is important to ensure that, where development is proposed on these sites and in these areas, a sufficiently detailed analysis is undertaken to determine the presence, nature and character of remains. The County Archaeologist can advise on the need and nature of this work which shall be carried out by the developer.
	POLICY HE9 Where development proposals will affect Areas of High Archaeological Potential and elsewhere where there is reason to believe that there may be archaeological remains, an assessment of the nature, character and importance of the site will be sought prior to the determination of any planning application.
10.36	As with sites of national importance, preservation of locally important sites will be the preferred option when considering applications that could affect them. However, the importance of the development should be weighed against the local significance of the remains and the amount of damage to be caused. If planning permission is granted it will be conditional on the developer to provide appropriate archaeological excavation (and/or recording) of those parts of the archaeological remains that will be damaged.
	POLICY HE12 Planning permission will not be granted for development which would damage or destroy locally important archaeological remains, unless the importance of the development outweighs the local significance of the remains. Where physical preservation in situ is not possible, mitigation strategies will be required for the protection and/or recording of the site.

Management and Interpretation of Archaeological Sites
10.37	The development of facilities that promote understanding, interest and interpretation of local archaeology is an important part of the overall protection and enhancement of the history and culture of the District. There is considerable scope to provide for the development of further interpretation at selected archaeological sites. This would add to the educational and recreational resources of the area for the benefit of residents and visitors. The County Council has already carried out or been involved in a number of schemes of archaeological rescue and interpretation throughout the County including, industrial artefacts and buildings. Where possible the District Council will assist in the promotion of appropriate projects in liaison with the County Council (Somerset Heritage), the Somerset Industrial and Archaeological Society and other bodies with similar interests.
	POLICY HE13 Where development is proposed in the vicinity of important archaeological sites, consideration should be given to the promotion of schemes for their management, interpretation and public access.

Historic Landscapes
10.38	To some extent, many parts of the landscape of the District are of historic significance and the approach of the Local Plan will generally be to strictly control development to that which, justifies an appropriate countryside location. Consideration of all proposals will be informed by the District Landscape Assessment that is partly intended to promote necessary development which, is locally distinctive to its context and at the same time protects and enhances landscape character.
10.39	In addition, the District currently contains two areas registered by English Heritage as areas of historic landscape at: a) Goathurst: Halswell Park (Historic Park and Garden); and (Link to Map 28) b) Westonzoyland: Site of Battle of Sedgemoor (Historic Battlefield) (Link to Map 53). These sites are of national importance as historic landscapes and Policy 10 of the Somerset Structure Plan requires that, development proposals which affect these two sites should take account of their impact on the character of the landscape. In addition, because of the particular importance of these sites, it is proposed that more detailed policy protection be provided in the Local Plan.
10.40	It is not anticipated that additional historic landscape notifications will be made during the Plan period, but this policy would also apply to any possible future registrations. Also, whilst designation can take place outside the Local Plan process, the Council will consider, (in consultation with English Heritage) Conservation Area status for Halswell Park.
10.41	During the life of the Plan the County Council, in conjunction with English Heritage, will be carrying out a Historic Landscape Assessment of the county. This survey will identify and characterise the principal components of the historic landscape of Sedgemoor.
	POLICY HE10 Development which would harm the historic structure, character, principal components or setting of historic landscapes, parks and gardens and battlefields on the English Heritage Register and of local interest will not be permitted.

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