Economic and Heritage-Based Enabling Development: Balancing Conservation and Growth

Introduction

Enabling development is a unique planning concept where a development that would typically be deemed unacceptable is permitted because it provides substantial public benefits that outweigh the associated negative impacts.

This approach is particularly relevant for projects involving heritage assets, where the financial gains from the development can be channeled towards the conservation and upkeep of historically significant properties. It can also be applied to economic enabling schemes. This can be particularly helpful in regenerating schemes that might other wise not happen.

This article explores the principles, criteria, and challenges of enabling development, highlighting successful schemes and discussing the implications of current planning policies.

Enabling Development: An Overview

Principles and Criteria

The key principles and criteria for enabling development are designed to ensure that such projects are necessary, beneficial, and minimally harmful. For enabling development associated with heritage assets Historic England and certain planning authorities provide guidelines to balance the need for development with the preservation of heritage assets.

1. Necessity: Enabling development should be the only viable means to secure the future of a heritage asset. Developers must demonstrate that alternative funding options have been explored and found insufficient.
2. Public Benefit: The benefits of the development, primarily the conservation of the heritage asset, must outweigh any negative impacts. This includes assessing the development’s effect on the character and appearance of the area and the heritage asset itself.
3. Minimal Harm: The development should cause the least possible harm to the heritage asset and its setting. Considerations include the scale, location, and design of the new development.
4. Transparency and Viability: A detailed financial appraisal is required to show that the development is the minimum necessary to secure the asset’s future. This appraisal must be independently verified. It is often the case that the funds realised from the new development will often need to be held in escrow.
5. Public Access and Use: Wherever possible, the enabling development should facilitate public access to the heritage asset. If this is not feasible, the development should still offer some public benefit, such as educational use or community engagement.

Case Study: Ramside Hall, County Durham

A notable example of successful economic enabling development is the project at Ramside Hall in County Durham, led by AMS Planning . This project involved the development of executive homes in the Green Belt, which enabled over ￡18 million in private sector investment in the hotel and the creation of more than 120 jobs.

Key Aspects:

• Necessity: The development was crucial for financing substantial upgrades and expansion at Ramside Hall, ensuring its economic viability and enhancing its facilities. This included new bedroom wings, an entirely new spa and a range of extensive improvements.
• Public Benefit: The benefits included significant economic investment in the local area, job creation, and the preservation of Ramside Hall as a key heritage and hospitality asset.
• Minimal Harm: The development was carefully designed to integrate with the surrounding landscape, minimising visual and environmental impacts on the Green Belt.
• Transparency and Viability: A thorough financial appraisal demonstrated that the project was the minimum necessary to achieve the desired economic and conservation outcomes.
• Public Access and Use: The project improved public access to the hotel and its amenities, fostering greater community engagement and use of the heritage site.

Enabling Development and the NPPF

The latest version of the National Planning Policy Framework (NPPF) might be argued to provide a more challenging context for enabling development, raising the bar for what constitutes acceptable proposals. The NPPF emphasises that impact from enabling schemes on heritage assets requires robust justification and a clear demonstration of public benefits.

Key Considerations:

• Higher Bar for Approval: The NPPF requires that enabling development should only be considered where it can be demonstrated that the benefits substantially outweigh the harm. This places a greater onus on developers to provide compelling evidence and justification for their proposals.
• Viability Assessments: Transparent and robust viability assessments are crucial under the NPPF. These assessments must demonstrate that the development is necessary and that the funds raised will be used appropriately for conservation (or economic) purposes.
• Deferred Contributions: Mechanisms such as deferred contributions can be employed to capture future value increases, ensuring that public benefits are maximized over time.

Case Study: The Mansion at Sundridge Park:

Historical Significance

The Mansion at Sundridge Park, designed by John Nash and Humphry Repton in the early 19th century, is a Grade I listed building renowned for its architectural and historical significance. The building's neoclassical design, coupled with its picturesque setting in Repton's landscaped park, makes it a critical heritage asset. However, by the late 20th century, the mansion had fallen into disrepair, and substantial investment was needed to secure its future.

The Enabling Development Scheme

To fund the restoration of The Mansion at Sundridge Park, a comprehensive enabling development scheme was proposed. The plan included the construction of new residential properties within the estate, the proceeds from which would finance the restoration of the mansion.

Key Aspects of the Scheme

Necessity

The enabling development was demonstrated to be essential for the restoration of The Mansion at Sundridge Park. Alternative funding options, including grants and public funding, were explored and found insufficient to cover the substantial costs of restoring and maintaining the Grade I listed building.

Public Benefit

The primary public benefit of the scheme was the comprehensive restoration of The Mansion at Sundridge Park, preserving its historical and architectural significance for future generations. Additionally, the development provided new housing, contributing to the local housing supply and supporting community growth.

Minimal Harm

The new residential properties were designed to integrate sensitively with the historic landscape. Careful consideration was given to the scale, location, and design of the new buildings to minimize visual and environmental impacts on the heritage setting. The design process involved extensive consultation with conservation officers and heritage experts to ensure that the new development harmonized with the historic environment.

Transparency and Viability

A detailed financial appraisal was conducted to demonstrate that the enabling development was the minimum necessary to fund the restoration. The appraisal was independently verified, ensuring transparency and accountability. The developers committed to using the proceeds from the new residential properties exclusively for the restoration of The Mansion at Sundridge Park.

Public Access and Use

As part of the enabling development scheme, provisions were made to enhance public access to The Mansion and its grounds. This included creating public pathways, hosting community events, and developing educational programs about the mansion's history and architecture. These initiatives aimed to foster greater public engagement with the heritage asset and ensure that the benefits of the restoration were widely shared.

Outcomes and Benefits

The enabling development at The Mansion at Sundridge Park has been widely regarded as a success. The restoration of the mansion has been completed to a high standard, preserving its architectural integrity and historical significance. The new residential properties have been well-received, providing much-needed housing in the area and contributing to the local economy.

Economic Benefits

The project generated significant economic benefits, including job creation during the construction and restoration phases and increased local spending from new residents and visitors. The restored mansion has also become a venue for events and functions, further boosting the local economy.

Heritage Conservation

The restoration of The Mansion at Sundridge Park stands as a testament to the effectiveness of enabling development in heritage conservation. The project has secured the long-term future of a critical heritage asset, ensuring that it can be enjoyed by future generations.

Historic England Guidance

Historic England’s guidance on enabling development provides a comprehensive framework for evaluating such proposals. Key points include:

1. Assessment of Need: Detailed analysis of why the enabling development is necessary, including exploration of alternative funding sources.
2. Design and Impact: Ensuring that the design of the new development is sympathetic to the heritage asset and causes minimal harm.
3. Financial Appraisal: Rigorous financial scrutiny to confirm that the development is the minimum necessary and that the funds raised will be appropriately used for the conservation project.
4. Legal and Planning Controls: Use of legal agreements and planning conditions to ensure that the benefits are secured and delivered as proposed.

Planning Policy and Viability

Planning policies, such as those outlined in local plans and the NPPF, emphasize the importance of viability in enabling development. These policies typically require:

1. Viability Assessments: Developers must provide transparent and robust viability assessments to support their proposals.
2. Deferred Contributions: Mechanisms such as deferred contributions can be used to capture future value increases and ensure that public benefits are maximized.
3. Sustainable Development: Enabling development must contribute to sustainable development goals, balancing economic, social, and environmental considerations.

Conclusion

Enabling development is a valuable tool for securing the future of heritage assets when other funding options are insufficient.

It requires careful balancing of public benefits and potential harms, rigorous financial scrutiny, and adherence to planning policies and principles. The cases of Ramside Hall and Sundrige Park exemplify how enabling development can be successfully implemented to preserve valuable heritage assets or deliver significant economic benefits alongside public benefits.

Enabling development, when executed appropriately, offers a pathway to harmoniously blend economic growth and heritage conservation. By adhering to the principles of necessity, public benefit, minimal harm, transparency, and public access, and navigating the stringent requirements of the NPPF, planners and developers can ensure that these projects not only protect but also enhance our cultural heritage for future generations.

References

• Historic England GPA4: Enabling Development and Heritage Assets
• AMS Planning Ramside Hall Case Study
• Carter Jonas: Enabling Development and Financial Viability Assessment
• National Planning Policy Framework (NPPF)