An Objective Appraisal of the Impact of WHS Inscription of the Lake District Area of Cumbria
Final Report
September 2004
p://
North West Development Agency
An Objective Appraisal of the Impact of WHS Inscription of the Lake District Area of Cumbria
September 2004
Prepared by: ERM and Chris Blandford Associates
For and on behalf of
Environmental Resources Management
Approved by: ______
Signed: ______
Position: ______
Date: ______
This report has been prepared by Environmental Resources Management the trading name of Environmental Resources Management Limited, with all reasonable skill, care and diligence within the terms of the Contract with the client, incorporating our General Terms and Conditions of Business and taking account of the resources devoted to it by agreement with the client.
We disclaim any responsibility to the client and others in respect of any matters outside the scope of the above.
This report is confidential to the client and we accept no responsibility of whatsoever nature to third parties to whom this report, or any part thereof, is made known. Any such party relies on the report at their own risk.
Contents
Executive Summaryi
1Introduction
1.1Structure of the Report
2rEVIEW OF THE CURRENT STATUS OF THE whs iNSCRIPTION pROCESS
2.1Introduction
2.2Activities of the Lake District WHS Steering Group
3Consultations with Stakeholders
3.1Introduction
3.2Key Issues from Stakeholder Consultation
4Identification of Economic Impacts and Benefits
4.1Introduction
4.2Stakeholder Concerns
4.3Likely Costs and Benefits fo the WHS Inscription Process
4.4Economic Impact Assessments of UK WHS
4.5The Lake District’s Economy
5Key Technical Issues Facing the Bid
5.1Introduction
5.2Defining Significance and Nomination Criteria
5.3Drawing a Robust Boundary
5.4Ensuring Stakeholder Support and Community Buy-In
5.5Changing Perceptions of What WHS Status Means
6TAKING THE BID PROCESS FORWARD
6.1Overview
6.2Stage 1 : Clarification
6.3Stage 2 : Definition
6.4Stage 3 : Management
6.5Stage 4 : Nomination
6.6Delivery Mechanisms
Annex AWHS Criteria
Executive Summary
Introduction
The remit of this objective appraisal has been to carry out the following:
- Review work to date on WHS Inscription by the Lake District WHS Steering Group including the 2002 Study of Cultural Landscape Significance, work undertaken on the likely extent of the area of WHS and buffer zone, the criteria used as part of the definition of the WHS and the premise on which World Heritage Site status has been pursued;
- Identify and consult with key contacts on the issues of WHS Inscription;
- Make a balanced judgement on the merits of WHS Inscription based on the potential impacts and issues flagged up by key partners and the requirements for the effective management of the World Heritage Site;
- Give due consideration to the economy of the Lake District;
- Advise on the appropriateness of the criteria under which designation might be sought;
- Objectively consider all the points raised by all partners; and finally
- Provide a report to NWDA that includes an assessment of the range of views expressed by partners and the reasoning behind any recommendations made.
Potential Benefits of WHS Inscription
- Recognition of the Lake District as a landscape of international significance.
WHS status is a designation that identifies ‘premier division’ cultural assets and this would highlight the outstanding quality of the Lake District’s cultural landscape.
- Protection of the Lake District landscape from inappropriate developments.
WHS designation will help to guard against developments that are likely to negatively affect the criteria on which WHS designation is based. The extent to which this will affect areas outside the current boundary of the Lake DistrictNational Park is entirely dependent on discussion as to the boundaries of the site and buffer zone. Stakeholder consultation during this study has identified a consensus around the concept that the WHS boundary should sit within the Lake DistrictNational Park and the buffer zone should be co-terminus with the current boundary of the LDNP. The actual boundary of the WHS will depend on which WHS criteria are used as the basis for the bid. Different criteria will result in very different boundaries.
Having a WHS and its buffer zone within the LDNP boundary would offer a pragmatic solution to the need to protect the site from inappropriate development and to retain an appropriate landscape character for the setting of the site.
- Recognition of the importance of the communities of the Lake District in the creation and maintenance of the cultural landscape.
‘Sustainable and vibrant communities’ are fundamental aspects of WHS designation. This is supported by the Budapest Declaration on World Heritage (UNESCO 2002) which states that:
"3. In view of the increasing challenges to our shared heritage, we will:
c. Seek to ensure an appropriate and equitable balance between conservation, sustainability and development, so that World Heritage properties can be protected through appropriate activities contributing to the social and economic development and quality of life of our communities:"
ICOMOS-UK has stressed the significance of maintaining active communities in this WHS and underlined the fact that it is not the objective of WHS to create ‘living museums’. A clear commitment to addressing this aspect of WHS in the Management Plan will be fundamental to a successful bid. UNESCO and DCMS will also expect to see clear evidence of the involvement of local communities in the development of the Management Plan
Potential Impacts
- Planning implications of WHS
Concerns have been raised with regard to the impacts that the creation of the WHS could have on development within the LDNP especially in terms of more stringent planning controls and a more complex bureaucratic process. There is a strong perception amongst many stakeholders within economic and indeed cultural interests, that development and physical regeneration will become more problematic than under the current LDNP controls.
WHS designation is a ‘material consideration’ in planning terms. WHS Management Plans usually detail the controls necessary to safeguard the significances and the integrity of the WHS. The Management Plan is also usually adapted as Supplementary Planning Guidance. In practice, the ‘material consideration’ of the WHS is likely to lead to developments needing to demonstrate that they will not adversely impact on the WHS via the preparation of reports and studies and for major developments potentially the preparation of Environmental Impact Assessments (EIAs).
Given the sensitivity of this issue it will be important that there is comprehensive consultation on this aspect of the Management Plan and that the guidance on what aspects of development are likely to be affected is made as clear a possible.
It is not anticipated that any significant additional controls above those already imposed by National Park status would emerge as a result of the nomination. However, there would clearly be a requirement to demonstrate that proposals do not adversely affect the WHS. The nomination may, however, be an opportunity for the various parties to come together to determine a strategic direction for the Site that would allow for appropriate sustainable levels of development to support local communities.
Settlements would be included within a boundary. Other communities (e.g. Ironbridge Gorge, Edinburgh New and OldTowns, City of Bath) have lived with WHS status for a number of years and have not been adversely impacted on by its presence. Issues such as hunting would need to be addressed in the Management Plan. On its own WHS status would not bring any change; the only changes would be as the result of actions and policies in the Management Plan, which would be prepared by the key partners in consultation with a wider group of stakeholders and members of the public. Local Authorities and other bodies would be involved in the development of a Management Plan. We can foresee no implications for their capacity to deliver local services
- Impacts on tourism
Concerns have been expressed as the extent, if any, to which tourism is likely to benefit from WHS designation. This is based on the fact that the Lake District ‘brand’ is already well known, both nationally and internationally and on the perception that WHS as a brand is not particularly strong.
The WHS Inscription on its own will not bring more tourists. It will act as a further "quality" mark for the Lake District and may positively influence potential visitor’s perceptions of the area. The WHS status as a brand is slowly beginning to emerge and sites such as the Royal Botanic Gardens, Kew, Ironbridge and Blaenavon are beginning to us the WHS ‘tag’ as a key marketing tool. In time it is anticipated that public awareness of the WHS tag will increase, which may result in increased visitor numbers to sites. This was acknowledged in the recent Hadrian's Wall Major Study.
It is unlikely, therefore, that WHS status will offer many immediate advantages to the Lake District brand, but the WHS inscription process my allow key regional partners to address a range of issues relating to the quality of the Lake District’s tourism ‘offer’.
- Impacts on tourism in Cumbria
Some stakeholders are concerned that designation of parts of the Lake District as a WHS may negatively affect tourism in other areas of Cumbria such as the Eden Valley, Furness and West Cumbria. Given the evidence to contrary, in terms of the strength of WHS as a brand, this is doubtful. There are signs, however, that the Lake District and its proximity is of value to other districts of Cumbria. This raises the issue as to whether WHS designation could add to their marketability even in a limited way.
From on outsider’s view, it would be the ‘Lake District’ that received WHS status, no matter where the boundary was drawn, this perception would perhaps deliver benefits to those areas officially outside of the WHS but within the notional Lake District.
WHS designation could contribute to the ‘offer’ of current initiatives in other districts of Cumbria this needs to be explored more thoroughly.
- Issues which need to be addressed
Based on our analysis of the WHS process to date, experience from other UK sites and feedback from stakeholder consultations there are a number of critical issues that need to be addressed regarding World Heritage Site Inscription of the Lake District. These are:
- the detailed boundaries of both the site and the buffer zone;
- the practical planning implications of WHS designation on development and regeneration;
- clarification of the process to be followed for WHS Inscription and the timescale involved;
- the partnership which will develop the Management Plan and any other strategic documents relating to the WHS inscription process; and
- Stakeholder engagement.
All of these issues point to three critical areas which will be decisive in determining whether the WHS designation does deliver benefits to the Lake District and is of value to Cumbria and the North West. These are:
- the partnership which is brought together to direct and manage the process; and
- the scope of the process and its links with Lake District, Cumbria and regional agendas.
- the ability of the process to clarify the likely planning issues/procedures which the WHS will generate and for these to be consulted on with stakeholders.
Relevance to Regional Strategies
- Regional Tourism
The Lake District is ‘iconic’ not only in terms of the North West but also in terms of the UK. This is of fundamental significance to the image of the region and to its tourism industry. This significance is recognised by the Strategy for Tourism in the England’s North West which describes the Lake District as ‘England’s Finest Landscape’.
The Lake District is one of the regions ‘attack brands’ and the key question for this appraisal is ‘will WHS (either the process or the designation) build on the strength of this asset, spread the benefits of increased profile to the rest of Cumbria and the wider region and will it assist in dealing with the quality issues affecting the Lake District brand.
If WHS does not address these issues via the choice of partners to drive forward WHS and the scope and context of the Management Plan then a significant opportunity will have been lost. Discussions as to the relationship between the WHS process and the ability to develop Winning Themes from the Tourism Strategy such as ‘The Countryside,’ ‘Cultural Beacon’, On the Waterfront’ and ‘Fantastic Food’ should be a key part of developing the WHS bid. If this opportunity is not grasped then WHS Status will fail to realise it potential and will be reviewed as a ‘Pretty Sticker’ and nothing more.
Regional Image
The landscapes of the Lake District are a key example of the quality of the natural environment of the North West. As such they have a well-recognised role to play in the work of leading regional partnerships such as the Regional Marketing Forum and the Cultural Consortium. Designation of the Lake District as a WHS could assist in the delivery of initiatives aimed at promoting the region and help to address outdated perceptions as to the identity and character of the region.
Rural regeneration
WHS inscription requires that communities within designated sites remain sustainable and vibrant. Given that the landscapes which will form the basis of WHS are dependant on the presence of communities that are active in the landscape but who are, at the same time, subject to considerable economic and social pressures, addressing this aspect of the WHS requirements is vital.
The WHS process would seem to offer some direct links to the rural regeneration strategy for Cumbria set out by Rural Regeneration Cumbria. In particular the following strategic aims:
- Sustaining the cultural landscape of Cumbria;
- Increasing opportunities for all who visit Cumbria; and
- Developing a diverse, dynamic, competitive rural economy for Cumbria which is financially, socially and environmentally sustainable.
It will be vitally important for the WHS process to address how it will contribute to these strategic aims.
Environmental Resources ManagementNWDA
1
Conclusions and Recommendations
Conclusions
There is not a clear cut case for, or against, seeking WHS Inscription in terms of its benefits or impacts. There are a number of points arising from his appraisal that serve to illustrate this conclusion, including:
- Should the site be nominated it is likely to be inscribed as a World Heritage Site;
- Inscription would not necessarily bring any automatic benefits. It would perhaps act as an additional quality mark for the Lake District and may help enhance people's perceptions of the region and local area. The initial inscription may also raise the profile of the Lake District in the short-term, through additional media coverage.
- Inscription would bring no guaranteed sources of additional funding for the Site, although it may enable partners to lobby agencies (such as DEFRA and the HLF) for additional funds to deliver projects and schemes.
- On its own the Nomination would deliver few if any tangible benefits. However, if the process is taken forward with the aim of delivering a sustainable future for the Site then the process, especially the Management Plan, has the potential to deliver significant benefits for the region; but this will require considerable stakeholder engagement and enthusiasm, coupled with clear leadership. It would also require considerable resources.
- The nomination process, in particular the Management Plan, may provide a vehicle to bring together the WHS, Economic Futures and Lake District Renaissance agendas. It should also be linked to the rural regeneration strategy of Rural Regeneration Cumbria. The Management Plan process would draw together the key agencies with which it has some clear links, partners and stakeholders and require them to address key issues facing the Lake District in an open manner.
- The nomination process could and should indeed also make a contribution to regional objectives relating to both tourism and the image of the region. (in terms of the Tourism Strategy and the RES)
- We do, however, have some concerns as to whether the WHS Nomination process is the most appropriate vehicle for delivering a new strategic strategy for the economic, social and environmental regeneration of the Lake District. The WHS designation is ultimately a "conservation" designation aimed at sustaining values and places for the benefit of future generations (similar to National Park status); a process designed to deliver such a designation may not be able to fully accommodate other issues to the satisfaction of key parties. This could both endanger the bid and set back the regeneration of the area.
There would appear to be some potential for discussion of how a cultural landscape approach could assist wider economic development and regeneration in the Lake District. WHS would clearly be a key part of this.
- The NWDA, may be the most appropriate body to deliver the required leadership, however its perceived economic focus may make it difficult for more conservation-orientated organisations to accept this leadership. However, no other organisations have been identified that have a sufficiently neutral, overarching view of regional and local priorities to provide the required leadership.
- The North West is already home to two WHS, the Lake District would represent a third such site and the possible candidature of Ancoats a potential fourth WHS. This would appear to offer significant scope for co-ordinated action s in terms of image enhancement and tourism and also in terms of co-ordinated actions between the sites.
Recommendations