Heritage Economic Regeneration Scheme at

Transcription

Heritage
Economic
Regeneration
Scheme
at Paignton
final report 2009
contents
INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2 1.0
1.1
1.2
1.3
Purpose of the HERS Final Report . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
The Context of the HERS Submission . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
The Strategic Framework and Complementary Initiatives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
The Winner Street HERS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
2
2
5
6
METHODOLOGY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 2.1
2.2
2.3
2.4
2.5
2.6
2.7
2.8
2.9
2.10
2.11
2.12
Issues Causing Concern . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 Problems facing the area . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 Selection of the Target Area . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9 Aims of the HERS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12 The Original Anticipated Outputs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13 The Funding. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .14 Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .14 The Steering Group. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .15 Targeted Enforcement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .16 Effective Planning Policy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .16 Grant rates. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .16 Grant Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .17 RESULTS AND ACHIEVEMENTS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18 3.1
3.2
3.3
3.4
3.5
3.6
3.7
3.8
3.9
3.10
Building repair and reinstatement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .18 The Pilot Project. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .19 Building Repair Works . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21 Individual Projects . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .24 Overall Impact of building repair and reinstatement. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .32 Environmental Enhancement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .32 The Palace Theatre . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .39 Private Sector Housing Grants . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .41 Complementary Housing Projects . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .42 Feedback from Grantees . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .44 DISCUSSIONS AND LESSONS LEARNT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46 4.1
4.2
4.3
4.4
Environmental Enhancement-Traffic Flow . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .46 Solutions to this problem? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .47 Time scale for completion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .48 Engagement by the Council . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .48 CONCLUSIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 50 5.1 Building on the HERS - Complementary initiatives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .50 5.2 Future Activity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .52 APPENDICES
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INTRODUCTION
1.0 Purpose of the HERS Final Report
The purpose of this document is to celebrate the success of a recent Heritage Economic Regeneration
Scheme in Paignton. It describes in some detail the circumstances, which pertained in the area which
generated the need for the scheme, how the Council with its partners set about making lasting change
and how the area is today – a thriving local centre much valued by the people of Paignton. It is hoped
that those reading it will recognise how the scheme evolved and was implemented and may benefit from
the approach taken when considering similar projects in other areas. It is also a lasting testimony of the
Paignton HERS clearly showing how public private partnerships can deliver.
1.1
The Context of the HERS Submission
It is hard to remember how depressing it was to walk along Winner Street in the autumn of 1997. It
had become part of the Old Paignton Conservation Area in May 1976 and there were 19 listed buildings
which fronted onto it. However, the street was lined with parked cars and there was a constant stream
of vehicles. The narrow pavements were drab and the shops lacked vitality. A proliferation of metal
roller shutters and dilapidated dutch blinds made it difficult to see you were in an historic place at all.
Another shop had just closed, bringing the total to fifteen and the Council was being asked to consider
an application to change its use to a dwelling. Although an attempt had been made to spruce up some
of the buildings under the Paignton Town Scheme which ran between 1988 and 1991 it was hard to see
what benefit this had brought to the local traders who were expecting the Council to do something.
The place was clearly on a downward spiral. Crime statistics were already on the rise and the need for
heritage led regeneration was obvious.
When English Heritage informed the Council that there was a bidding round for Heritage Economic
Regeneration Schemes, Old Paignton jumped out as a likely candidate although Torbay’s Design and
Conservation Team had not tackled such a project in the past and the need for partners in the local
Community was paramount.
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INTRODUCTION
As it turned out, the potential partners were already active. Helen Hallett, a local shopkeeper, led the Winner Street
Traders and Tony Moss was campaigning to save the street on behalf of the Paignton Preservation Society.
When everyone met together at Paignton Baptist Church to look at the problems faced by Winner Street, it was not
too difficult to put together a powerful case for investment in the area and a bond of mutual respect and co-operation
between the Council and local people was formed which ultimately underpinned and sustained the success of the
whole project.
A working group was established at this early stage and
this was the body that put together the initial bid for HERS
funding. The level of community involvement at the
outset has been recognised as a key factor in identifying the
Historic Heart of Paignton as a worthwhile HERS project.
English Heritage (EH) was immediately interested
and helpful. Its Historic Areas Advisor challenged the
partnership to sort out priorities for the area amongst the
issues it faced and identify clearly what would be needed to
turn its fortunes around. The need to think about the longterm economic viability of the street soon emerged because
Members of the working group
of its declining performance and its location in a secondary
community within the wider Torbay area. The EH Historic Areas Advisor proposed that it would not be enough simply
to improve the quality of the existing fabric and a marketing strategy would be needed to raise the profile of the area
and sustain its economic revival. The problem of sourcing the expertise to produce the marketing strategy was solved
by the offer of assistance by Alan Kilkenny who was recommended by EH as a top-flight marketing consultant.
Although there was suspicion about the value of this at first, it succeeded in energising the traders to think about
transformational activities which would have a lasting value. The idea would be to create a distinctive identity and
unique selling point for the area, building on its past and current character, through niche and community service/
level shops and activities. Alan Kilkenny recommended the involvement of Mary Mullin who as the Marketing
Consultant brought out the ‘view of the street’ from the outsider’s perspective and suggested a range of ideas for
improving the experience of visiting Winner Street so that people would want to go there again and again. She
also highlighted the importance of the cultural life of the area with its focus on the Palace Theatre (Full Report at
Appendix 3).
Mary was also responsible for encouraging the incorporation of art projects with a childhood theme which has led to
one of the most attractive and memorable legacies of the project thanks to the artists involved at the SCRAP store as
well as local artists Spencer Larcombe and Karen Green.
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INTRODUCTION
When Signpost Housing Association joined the partnership and agreed to develop the local Co-op project, it was
realised that significant physical change was possible. It was no longer merely a facelift of the existing buildings
but major investment in the built environment. Becky Bettesworth, another local artist was commissioned by the
developers design partners to highlight this and create further contributions to the artwork in the street.
The confidence all this generated in the area has been a significant outcome of the HERS initiative so that a major
investment in new build and conservation projects has transformed it.
One can now look at the early photographs of Winner Street in the 1880s and clearly recognise the street today. The
street is looking forward and is no longer lined with empty shops. Trade is improving and the activity in the street is
lively and attractive. The Mermaid which now stands at the entrance to Winner Street from Totnes Road signifies all
the little visible changes which have been introduced in the HERS scheme which add to its distinctiveness and attract
a new generation to enjoy Old Paignton. Anybody who was at the Street Party to celebrate the Queen’s Jubilee in
2002, or any of the other events organised in Winner Street since the HERS scheme started, will attest to the upbeat
atmosphere and sense of strong community, somewhere which is no longer pessimistic about its future.
For Torbay Council, another major legacy has been the development of its capacity to deliver heritage regeneration
projects. Since the HERS project came to an end in 2005, a successful bid has been made to the Heritage Lottery Fund
for the Torquay Waterfront Regeneration THI which is now in its second year and showing similar signs of success.
It has also developed an expertise in managing its own historic environment by identifying priorities and working in
partnership to achieve objectives, which benefit its heritage.
The photograph above shows
Winner Street in its prime
condition in the 1850s. It was
a bustling street that served the
surrounding local community.
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INTRODUCTION
1.2 The Strategic Framework and
Complementary Initiatives
In the year 1999, Winner Street had
reached a critical condition. The HERS
area is located in the Coverdale Ward
which, at the time of the bid, was one
of the poorest wards in the country (as
measured against DETR indicators).
in order to address the problems of
decline, an innovative, integrated approach
from all stakeholders was essential. The
Council’s in-house conservation team took
the lead through extensive consultation
with local traders, amenity and religious
groups and businesses. The conservation
policies set out in the Torbay Local Plan
(1995-2011) and the Devon Structure
Plan First Review (1995-2011) formed the
Left: Winner Street prior to the commencement of the HERS project
basis for the preliminary bid for funding.
English Heritage was also keen to change its approach to regeneration. It had just issued new guidance to promote
regeneration by tackling more than just building repairs and reinstatement; its aim was to understand and address the
problems behind the economic decline and the reasons for them as part of the regeneration approach.
Objective 2 funding was not available as the area fell outside the designated boundaries. Once-anticipated funding
from the Single Regeneration Budget was also denied due to this source coming to an end.
To best use the funding available, the Council carried out an ‘Audit of the Fabric’ within the Winner Street area prior
to the HERS implementation.
Priority initiatives were formed to complement the HERS as follows:
N
A survey of the ownership of buildings and vacancy rates of buildings within the area carried out by the Winner
Street Traders’ Association.
N
Proposals for a Traffic Management Zone (TMZ) (areas where facilities for pedestrian, cyclists and public
transport will be improved) within the HERS area were put forward and ran alongside the HERS with the aim of
completion in year 2. The HERS was made a priority for TMZ over other potential choices. Its main aims were
to improve the streetscape, contributing to the overall character of the townscape, improve car parking and ease
traffic and pedestrian movement.
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INTRODUCTION
N
A key building in the area, the Palace Theatre needed help. Proposals for refurbishment were an integral part of
the HERS. The Council already had £200,000 committed and planned to invest in refurbishing the Palace Theatre
to provide the area with a much needed community focus.
N
At the time, Torbay Council employed a town centre manager, whose post was partly funded by the Chamber of
Trade. The manager introduced a range of initiatives to improve the shopping experience offered in the area. This
included celebrating special events, improved CCTV and monitoring of shop window displays etc.
N
The Council negotiated with a local housing association about a ‘Living Over the Shop’ project. This had the aim
of improving entire buildings as opposed to targeting only shopfronts.
N
Agenda 21 funding was used to produce a local publication called ‘The Street’.
N
Most importantly, the Council established strong working links with the local community, traders and the
Paignton Preservation Society who had begun fund-raising and self-help initiatives and were fully committed to
regenerating the area.
1.3 The Winner Street HERS
N
In 1999 Torbay Council submitted its initial bid to English Heritage requesting a contribution of £100,000 per annum
towards a Heritage Economic Regeneration Scheme in Winner Street, Paignton, lasting for a total of three years.
N
In April 2000, the Council was informed that the bid was successful. English Heritage was to contribute
approximately £50,000 per annum. Further funding would come from the Council and other partners, The Arts
Council for England and other Owner/Private Sector organisations.
N
As a result of the success of the scheme and the need for further regeneration, the Council was informed by
English Heritage at the end of the first three years that its bid for a fourth year of HERS in Winner Street was
successful.
N
The complete scheme, which brings together environmental, cultural, economic and social initiatives, has proved
to be a great success. It has provided both social and economic resurgence within, and surrounding, the area.
In summary, the Winner Street HERS bid identified the potential for dynamic conservation-led regeneration. Through
strong partnerships between key stakeholders, the HERS provided the opportunity to repair dilapidated buildings and
reinstate architectural features whilst working to achieve a unique identity for the area, which would be both thriving
and sustainable. This in turn would provide social and economic resurgence with new employment opportunities and
a focus for community life.
For the purpose of this report, the results and achievements will be analysed under the headings of ‘building repair and
reinstatement’ and ‘environmental enhancement’, with additional projects and knock-on effects considered separately.
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methodology
2.1 Issues Causing Concern
The original bid for a HERS scheme at Paignton was the response to a local problem.
The Winner Street traders approached Torbay Council in November 1998 because they were concerned
about the continuing decline of the original centre of Old Paignton. The Paignton Preservation and
Local History Society raised concern about the decline in the historic heart of Paignton in which they
already had a stake.
The issues giving rise to this concern were as follows:
1. Empty shop units
2. Number of applications for the conversion of shop units to residential flats.
3. The perceived failure of the street enhancement scheme carried out by Devon County Council in 1991.
4. The lack of investment in building maintenance.
5. Vacant upper floors
6. The lack of care and attention being paid to the historic heart of Paignton.
7. The impending closure of the Palace Theatre – a key focal point in the local community.
The actions taken by the Design and Conservation Team at Torbay to address these issues were as follows:
1. To arrange a meeting with the Paignton Preservation Society and representatives of local traders.
2. To carry out a condition survey of all the buildings in Winner Street and Church Street.
3. To count the number of empty shops and assess the amount of vacant space on upper floors.
4. To review the traffic management and pedestrian environment.
8
methodology
2.2 Problems facing the area
The problems that face the area are a mix of geographic, economic, social and physical issues.
N
The Coverdale Ward in which Winner Street is located became one of the poorest wards in the Country against
DETR national standards.
N
Paignton itself has been seen as a poor relation to its neighbour Torquay. Its tourism industry was suffering from
foreign competition.
N
Paignton’s main shopping centre had also moved towards the sea, leaving Winner Street without a powerful draw
to attract visitors.
N
The traffic and parking systems were neglected and continued to dysfunction with a serious lack of parking spaces
and an inappropriate one-way system.
N
There was an increasing number of empty shops as shown below.
N
The traffic and parking scheme which had been introduced by Devon County Council was carried out with
inadequate consultation.
N
Visually, the area was in decline. Poor standards of repair and maintenance encouraged anti-social behaviours,
increased crime and disorder problems. Drug rates were high, shops were being burgled and windows were being
left in an unsightly condition.
N
The process of economic decline led to both poor maintenance and unsympathetic alterations of many important
historic buildings and they became ‘at risk’.
N
The upper floors of some properties were unused.
9
methodology
The character of the Conservation area had become jaded by economic stagnation. Morale of the traders was low. What
was once the hub of the local community became swamped by charity shops and uninteresting businesses. The area was
trapped in a spiral of decline and, without intervention, the future was bleak. Previous initiatives that targeted the area
including a highway improvement scheme carried out by Devon County Council (prior to Torbay Council becoming a
unitary authority), had been unsuccessful due to poor consultation between the Council and the local community.
The Paignton Preservation Society took on the role of researching archives of illustrations and photographs to trace
the changes of shopfronts in the past.
The Winner Street Traders’ Association offered to survey the ownership and vacancy rates of buildings within the area.
Officers of the Design and Conservation Team carried out a condition survey based on the indicators of risk in English
Heritage’s Buildings at Risk Advice and produced the maps.
The Highway Engineer agreed to address the traffic, pedestrian movement and car parking by programming a Traffic
Management Zone in Old Paignton for the 2001-2002 financial year.
By combining the information on the Condition Survey with the location of empty shops and empty upper floors, it
was possible to see where the most need for investment lay
2.3 Selection of the Target Area
Selection of the target area was important. The old commercial centre of Paignton was identified first. Although
known traditionally as a sea-side resort, Paignton developed close to Bishops Palace and its centre is likely to have
been at the junction of Church Street and Winner Street.
Winner Street was the main road through the settlement and derives its name from the Bishop’s vineyards that once
stood beside it. It remained Paignton’s main street from the medieval era until the coming of the railway in 1859.
After that time, the new town developed around the station and Winner Street gradually declined in importance.
The next task was to assess the quality of the historic environment.
Several early buildings survive in Winner Street and the property boundaries still show the distinctive pattern of
burgage plots often found in medieval settlements.
There was some early nineteenth century development of two and three storey town houses in both Church Street
and Winner Street with complementing detached villas erected around the junction with Totnes Road. By the midnineteenth century, speculative terraced developments were being built, such as Palace Place, and, later on, Church
Street and the east side of Winner Street. There remains a very fine row of early nineteenth century shops on the west
side of Winner Street but most shops have been inserted into former houses. By the late nineteenth century it was
normal for new development to incorporate shops at street level, with the upper stories as living accommodation.
In some cases, new parades of shops have been built in former front gardens. There is a variety of good examples
of shopfronts from different periods. The development of Paignton Co-operative Society from 1906 introduced a
10
methodology
large-scale retail business into the street but by this time the prime shopping area had been established at the junction
of Torquay Road with Victoria Street at the far end of Palace Avenue. Other large retail premises were introduced by
amalgamating shops, but in recent years businesses have moved out and a number have been converted into flats.
Figure 1: Location of target area in Paignton
The focal point was identified to be between Palace Avenue and New Street. The decision was made to carry out the pilot
project on an empty shop at 36 Winner Street in this area. This would provide experience on what repairs might be needed
on a typical shop and guidance on the costs involved. It was one of the properties with underused upper floors which could
benefit from Environmental Health grants under the Housing Act for a Living Over The Shop initiative. Above all, it would
provide an example of what could be done and encourage owners of shops to see the potential benefits to them.
The second priority area was around the junction of Church Street with Winner Street. This is where a number of
shops had been converted to dwellings in the recent past. It was recognised that there would be reluctance to invest
in shops in this area until the fortunes of the area started to improve.
The target buildings were those in the worst condition and these were scattered throughout the HERS area. Initial
take-up was in the focal point area and to the south towards the entrance to the area. A key partner was the Housing
team in Environmental Health who set up a LOTS scheme to concentrate their grants on the repair and improvement
of upper floors in the HERS area from Totnes Road – often at the same time as the HERS funded shopfront repairs.
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methodology
Aerial photograph of HERS area
Exit to Marldon Road
Well Street
Church Street
Winner Street - runs
vertically, central to the
photograph
Palace Avenue
The Palace Theatre and
Palace Gardens
New Street
Entrance from Totnes Road
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methodology
2.4 Aims of the HERS
Prior to the commencement of Winner Street HERS, an implementation plan was drawn up by the Council under the
guidance of English Heritage on what needed to be achieved through the HERS.The following topics were decided
upon. Results of these projects are discussed later in further detail.
N
Building repair and reinstatement
N
Environmental enhancement through a Marketing Consultant
N
Arts projects
N
The Traffic Management Scheme (TMZ)
N
The Palace Gardens
N
The Palace Theatre
N
Private Sector Housing Grants
It proved much harder to generate grant-aided activity in the Church Street area in the first two years, but there was
an encouraging development in Well Street where new housing was introduced by the Devon & Cornwall Housing
Association on a disused garage site. Later on several former industrial buildings were converted to residential use.
This has transformed a rather rundown and unattractive part of the town into a new community which has enhanced
the townscape. More recently, Swan Court has been developed on a gap site in the ‘Narrows’ of Winner Street which
illustrates the confidence in the area which has been generated by the HERS scheme.
During year two the Environmental Health grants came to an end and this reduced the incentive for owners to participate.
However, for the second year of the HERS the grant rates were reviewed and this encouraged a better take up
throughout the area in years 2 and 3.
The appointment of a marketing consultant made a significant contribution as it provided the traders with a wide
variety of possible approaches to the generation of better business in the area. Physical changes such as the adoption
of the childhood theme and the inclusion of sculptural copper projecting signs in each shopfront project had a
considerable impact.
The biggest set back was the failure to secure the street improvements because of the decision to await the conclusion
of the Paignton Traffic Study. The confidence of traders to go for a change of approach was lost and the Winner Street
Traders opposed the traffic management proposals for Winner Street. Much time and effort then had to go into
finding the best way forward.
Another key aspect of the HERS project was the revitalisation of the Palace Theatre. With the offer of support
from English Heritage, it was possible to develop a scheme for the repair and improvement of the theatre as an arts
centre as well as restoring the Palace Avenue Gardens. When the Heritage Lottery Fund discouraged Torbay’s bid, a
much reduced scheme had to be drawn up but this has now been delivered – with economic success. It is now the
acknowledged cultural base for Paignton.
13
methodology
It was clear from the outset that the project team would need to closely engage with potential applicants for grant-aid
if developments were to come forward. One officer in particular spent a lot of time on the street knocking on doors
and encouraging repairs.
Many of the works were listed in schedules of repairs prepared by council officers and priced by at least three
contractors to complete applications for grant-aid. Officers were very ‘hands on’ in ensuring that all the paperwork
and plans were right.
The new shopfronts introduced in schemes of reinstatement were designed by the conservation team leader following
evidence on the building backed by the study of historic photographs. Close links were formed with local architects
and contractors to ensure that only quality schemes came forward.
The role of English Heritage in supporting the development of capacity to deliver heritage regeneration in Torbay was
considerable. The advice offered to the Council about building partnerships and taking action to reverse economic
decline was the key to developing a successful scheme.
The appointment of a marketing consultant to work with the project team to initiate transformational activities was an
untried area for the officers. A great amount was learnt from this initiative and the work by Mary Mullin in particular
set the project on course by identifying with the traders themes which could be taken forward.
The identification of areas for development within the HERS area was another key component of the project. The
first scheme proposing new development was carried out in Well Street by a local building firm for the Devon and
Cornwall Housing Association. It was recognised as a positive development for the area and effort was put in to
ensure that it would stand as an exemplar for the future.
The other developments in Well Street and Winner Street which were completed during the HERS project resulted
from the confidence inspired by the HERS investment in the area and the partnership with Signpost Housing
Association over the redevelopment of the Winner Street Co-op.
The identification of Palace Theatre as the key to the cultural life of the HERS area was instrumental in the bid for a fourth
year of the HERS project and English Heritage committed £80,000 to ensure that the theatre project was completed.
2.5 The Original Anticipated Outputs
By targeting the repair of buildings and environmental enhancement under the guidance of English Heritage, the
Winner Street HERS aimed to achieve the following outputs for the first three years of the scheme.
Targets
Year 1
Year 2
Year 3
Commercial properties improved
6 (10)
17 (32)
(0)
Residential properties improved
9 (13)
11 (18)
19 (17)
Number of jobs created
12
4
4
Number of jobs safeguarded (net of baseline figs)
0
34
30
Number of construction jobs (person weeks)
360
180
220
Numbers in brackets indicate the number of grants offered
14
methodology
2.6 The Funding
The Scheme was match-funded by English Heritage and Torbay Council. Over the lifetime of the project, the time
scale and the budget were increased to enable a more extensive programme of environmental enhancement and
regeneration of the Palace Theatre.The breakdown of allocation is as follows.
Budget
English Heritage
Torbay Council Housing
Torbay Council
Conservation
Torbay Council Highways
Torbay Council Palace
Theatre
Year 1
allocated
£49,938
Year 2
allocated
£49,400
Year 3
allocated
£49,950
Year 4
allocated
£100,000
Total
allocated
£249,288
£64,994
£66,000
£66,000
£18,625
£9,600
£8,700
£0
£2000,000
£0
£200,000
£20,000
£0
£100,000
£200,000
£196,994
£20,000
£56,925
The common fund (English Heritage and Torbay Council) was then matched with private contributions from property
owners.
A further breakdown of allocation of funding and outputs follows in the appendix.
2.7 Management
When the Winner Street HERS commenced in 2000, the Council had the challenge of getting the local community
interested and involved. With a limited budget, the Council made an active decision to deliver grant packages without
assistance from external architects. Owners of properties were originally shown artists’ impressions of potential
designs for their shopfronts. If interest was shown then a full specification was prepared.
Wherever possible, planning applications were avoided as the shop owner who would have to pay the fees in advance
of the project saw them as a barrier. In order to gain necessary tenders, Torbay Council developed partnerships with a
range of local contractors. This was kept to six companies who agreed always to tender for the work. Property owners
were encouraged to use Torbay’s list to obtain their own tenders but could also seek a tender from a contractor of
their choice. Once the lowest tenders had been established, a presentation was then made to the HERS steering group
for the final decision. A land charge was placed on buildings requiring repayment of grant within the agreed time-scale
if the building was sold and the owner of the building was seen to be making excessive profit as a result of the grant.
Although the HERS project was managed by Torbay Council, the Winner Street and Church Street Traders and the
Paignton Preservation and Local History Society have provided essential assistance. An independently organised
unanimous petition of support demonstrated local enthusiasm for the HERS objectives.
15
methodology
The project team consisted of the following:
Tony Garratt - HERS Project Officer
Judy Close
- HERS Finance Officer
Terry Lowe
- Area Planning Officer
Fred Weston - Environmental Health
Malcolm Webley - Highways
This team was backed by the Council as a whole to the extent that the allocation of Budget to support the fourth year
bid was secured without difficulty and the Council’s commitment to the Palace Theatre was unwavering. Members
recognised the importance of the HERS to Torbay and wanted it to be successful.
2.8 The Steering Group
It was decided during bidding stages of the scheme that a steering group would be appointed. This group took overall
responsibility for the direction of the scheme including the allocation of grants.
The Steering group is made up of the following:
N
One representative from Winner Street and Church Street Traders
N
A member of the Paignton Preservation and Local History Society
N
Head of Development and Conservation Planning
N
A Ward Councillor
N
Conservation Officer (HERS Project Officer)
N
English Heritage Historic Areas Advisor
N
Other officers of the council as required
Meetings were agreed to be held on a monthly basis or more regularly if required. The Steering Group produced six
monthly review reports including quarterly offer and payment returns required by English Heritage.
The Council also introduced a resort management team for Paignton which included representatives from the Winner
Street Traders and the Paignton Preservation & Local History Society. This has benefited the scheme as it has helped
to gain proper recognition of the role the area plays in the commercial activity of Paignton.
From the outset, the HERS team realised that improving the built fabric of the area alone would not achieve
regeneration. A change in perception and long-term use was also required. An established independent marketing
consultant, Mary Mullin, was therefore employed. Her recommendation for the HERS and the results of her
involvement are discussed in further detail later in this report.
16
methodology
2.9 Targeted Enforcement
Soon after the commencement of the HERS, surveys were carried out to establish an audit of what planning
enforcement action might be taken.This audit was repeated on an annual basis.
It has been essential to keep the role of Planning Enforcement Officer and HERS Officer separate.This allowed the
HERS Officer to enjoy a better working relationship with prospective grantees.
In many cases it was only necessary to serve Section 330 Notice requisitioning information regarding building
ownership to achieve the desired result. Rather than complete this documentation, reluctant building owners would
contact the Council to try to resolve matters. Rather than formal repairs notices, Section 215 abatement notices were
the most effective tool. Although this only required simple tidying of the building, once owners were in negotiation
it was possible for the HERS Officer to demonstrate that it was cheaper for them to use the money that they had to
spend anyway to comply with the 215 Notice as match funding for a full grant. Grant-aid was never offered for works
which could be dealt with solely by legal action.
After the second year of the scheme, most of the simple enforcement cases were dealt with. It became more difficult
to make headway without substantial dedicated enforcement time. Proactive enforcement was difficult to prioritise
against an increasing level of complaint-driven enforcement cases. Some effort was made by the HERS Officer to
undertake this work but the working relationships with potential grantees became more difficult and adversarial.
In future schemes it would be helpful to ensure an enforcement resource is available for the entire period of the scheme.
2.10 Effective Planning Policy
The HERS has bought about many exciting development opportunities within and surrounding the HERS area.Torbay
Council’s Planning Officers have worked closely with the HERS Steering Group to ensure that development within
the area contributes positively to the scheme. It has also been important to maintain strict planning controls over
inappropriate new schemes. One application in particular to convert an empty shop in Church Street (46) was refused
and challenged at appeal. Pleasingly the appeal was dismissed and the inspector showed a good understanding of the
wider regeneration goals of the scheme.
2.11 Grant rates
Grant rates were derived depending on particular conditions of individual properties but as a guide, the level of grant
would not exceed a ceiling of 80% and the following formula was used.
Owners Contribution= New value of the business- Initial Value of the business
Grant Contribution= Initial Value of the Business+ cost of repairs- New value of the business
It was envisaged that the grant-aid would be lower for the reinstatement of shopfronts. However none of the proposed
17
methodology
applications in the first year were taken forward as the cost was not economically viable for property owners. The
Council therefore consulted with local estate agents and decided on higher grant rates.The Scheme worked on a
reducing scale, with the highest grants given to the projects proposed in the first year.
The Council Housing Team contributed to the HERS by deciding to focus on this area to tackle the repairs of
residential property above the shopping frontages utilising its Housing Renovation Grant budget.The overall aim was
to repair whole buildings in both residential and retail use, thus maximising the impact of improvements.
2.12 Grant Process
The following figure demonstrates the grant giving process.
Owner agrees to
project
Architect and HERS officer prepare
tender document detailing repair and
reinstatement
NO
HERS officer prepares evaluation of scheme and grant rate
HERS steering
group make
decision
YES
Owner confirms
acceptance in writing
HERS Finance
Officer allocates
Torbay Council
Funding
Architect or owner
obtains quotes
Owner submits
application form
and quotes
THI Officer advises owner
in writing
Letter archived for ten years
Above English Heritage
Referral limit
Refer to English Heritage for
Decision
English Heritage Grants officer
sends formal grant offer
Letter archived for ten years
HERS Finance
Officer allocates
English Heritage
Funding
HERS Finance Officer advises
allocation to English Heritage
Funding
The Pilot Project, discussed in further detail later in the document, was 100% funded by Torbay Council. It was
a project that enabled the Council to learn about the construction process and to encourage public confidence. It
provided an example of what was possible with the HERS and demonstrated its benefits.
18
results and achievements
3.1 Building repair and reinstatement
The results of the Shopfront Survey of 1999, which revealed a marked concentration of historic
shopfronts in need of repair, gave the restoration of shopfronts priority in the Winner Street HERS.
Building repair and reinstatement of historic detail have been an integral part of the Winner Street
HERS.The list of Target Buildings was drawn up following external inspection and a photographic
survey conducted in May 1999.
The potential commercial viability of businesses was identified as follows:
N
Empty shops or businesses that appear not to be viable.
N
Shops which seemed currently viable but were not making a positive visual contribution to the
Conservation Area, or business which seemed currently viable but becoming less viable.
Further information was required about viability and also to show that with improvement to the
building, the investment was likely to provide new employment opportunities and a sound economic
future for the business.
Shopfront Repair
It was proposed that HERS funding would concentrate on the repair of shop fronts as they are the
most significant part of the street. Repair of shopfronts involved replacing joinery that was decayed or
missing and fixing the fittings that already existed.
N
Only historic shopfronts in need of repair were selected. It was emphasised, however, that only when
there was adequate evidence about the original fabric upon which repairs could be based could this
work be grant-aided. Historic photographs were often available to assist in this respect. Early blinds
and shutters were reinstated wherever possible based on such evidence and the original fascias and
lead coverings were also revealed and reinstated once the modern fascias had been removed.
19
Shopfront Reinstatement
Reinstatement involves the complete removal of an existing shopfront and replacement with a new one. Priority was
given to those which were of poor design, with modern unsympathetic materials not in harmony with the character
of the street. A known historical record and traditional design was preferable and a considerable archive of historic
photographs was available to inform reinstatement projects.
In all cases every effort has been made to bring dilapidated or unattractive properties back to their original design
and quality.With the help of Torbay Council’s own ‘Shop Front Design Guide’, local builders planned to renovate stall
risers, re-create shop signs and reinstate historic window frames. Shop front alterations are based on the design of
19th Century examples which were still to be found in Winner Street.
It was originally anticipated that a substantial number of schemes for reinstatement of shopfronts would be completed
in the first two years of the scheme.Take-up of grants, however, was slower than expected due to the amount of
grant-aid being offered to property owners proving insufficient to generate viable schemes.
The grant rate for reinstatement was therefore increased from 20% to 75%, generating a marked amount of interest
and reducing the pay back period of investment from approximately fifteen years to seven years; a significant
reduction, making the grant assistance more appealing.
Local contractors have been under strict guidance from both English Heritage and Torbay Council to complete repairs
to a high quality standard. Regular site inspections and strong communication links between the council, traders and
the construction companies have been vital.
Work took approximately three to four weeks to complete whilst the shops stayed open using temporary signage to
advertise their trade
To further encourage shop owners to participate in the scheme, the Service Manager of the Design and
Conservation Team produced detailed design drawings for reinstatement projects so that estimates could be
obtained for tendering purposes.
3.2 The Pilot Project
The pilot project at 36,Winner Street was an example for the other grant projects. It provided valuable experience
to the officers of Torbay Council in a project for the repair of an historic shopfront. Its achievement encouraged other
property owners to participate in the HERS.
The vacant shop at the end of a late nineteenth century three-storeyed terrace located centrally in the HERS area was
restored to what was believed (from historic photographs and locals’ information) to be its original condition.Works
included the renovation of all exterior woodwork, the replacement of glass, the replacement and renovation of floor
tiles, the repair and reinstatement of the wooden roller shutters, the renovation of iron pillars, the reinstatement of
Victorian style shop awning, and a final repaint of the entire shop front.
20
BEFORE
AFTER
Due to the success of this development which brought Platform One, a new model railway shop, into the street,
subsequent repair and renovations took a similar process. An unexpected result of the scheme has been the
development of the conservation skills of local contractors. Expertise in historic tiling and the fabrication of
traditional shop blinds has developed particularly well. This has benefited the wider area as there is now a group of
local contractors who are happy to work closely with the council’s Conservation & Design Team. In return, council
officers have gained a respect for their abilities and learnt from them.
21
3.3 Building Repair Works
Decorative Features
Many shopfronts in the Paignton conservation area have timber or rendered stone pilasters with decorative features.
These frame the shop front and separate shop units from one another.These features lend originality and character to
each building and have had high priority in repairs (as shown by example of ‘Gadgets n Things’ below).
BEFORE
AFTER
Stall risers
Stall risers provide a solid visual base to the window displays of shopfronts. Even so, many of the stall risers along
Winner Street have been mistreated, resulting in a shabby and unattractive appearance. Stall risers have therefore been
reinstated and tiled.
137Winner Street
BEFORE
22
AFTER
Entrance Doors
Many of the traditional shopfronts in the
Winner Street area have recessed entrance
doors with tiled floors that are both attractive
and practical.They are characteristic of
Winner Street and have been protected and
enhanced at every opportunity.
33a Church Street on
completion of the HERS
AFTER
Timber mullions
Of the shopfronts that have been replaced
by plate glass, timber mullions that were
traditionally used to separate panels have been
restored.
Fascia boards and signs
AFTER
BEFORE
Prior to the HERS, garish, poorly
maintained fascia boards and signs often of
large size and using aluminium and brightly
coloured perspex dominated the street
scene. Many fascias have been redesigned to correspond with their historic appearance in old photographs.These have
been sign-written to reiterate the traditional theme of the street as demonstrated at 109 Winner Street below.
109Winner Street
BEFORE
AFTER
23
Shops with too many signs featuring in the windows were
discouraged as they detract from the intrinsic architecture of the
building and the character of the conservation area.
Following the advice from the marketing consultant, it was agreed
that each HERS funded project should include the production
and hanging of traditional copper signs for additional advertising
purposes.They greatly improve the quality of the street scene and
complement the public art schemes that will be discussed in further
detail.They also act as a permanent indicator of the projects that
were assisted by the HERS.
Colour Schemes
Painted timber has been encouraged in the redesign of
shopfronts. Particularly popular is the use of a pastel
colour with a complementary darker colour to accord
with the traditional design practice in this area.
Blinds, Canopies and Shutters
Under the guidance of HERS, roller blinds have been both repaired when they already existed and installed when
absent.They contribute to the high quality and authentic appearance achieved throughout the area.
24
3.4 Individual Projects
The following properties in Winner Street have had a particularly successful impact on the streetscape.
8, 6 and 4 Winner Street- DJ Carpets
What is now DJ carpets and occupies 4, 6, and 8 Winner Street was
once ‘Coast to Coast’.
Priority funding was given to this group of properties due to their
dilapidated condition and their prominent location.
Total cost - £ 15571.38
Grant offered - £ 8021.26
Although these listed properties are separate, they all have the same
owner and function as one business.They are therefore addressed here
as one project.
The grant of almost 50% was given not only due to the run down
appearance of these properties, but also their gateway location at
the entrance to the HERS area.They are located in close proximity
8Winner Street
to the Totnes Road entrance where the new ‘landmark’ celebrating
the streets’ successes has been installed (discussed further in the
conclusion).They are highly visible to passers by and a positive first impression to all audiences is identified as critical.
The previous shop tenants had gone bankrupt and the proposed refurbishments were necessary to breathe new life
into the business and encourage investment. An entire refurbishment of the shop front was therefore part-funded by
HERS.
The upper floors of the three properties lacked attention and had also deteriorated to a poor condition with
disproportionately large replacement windows. As part of the HERS, the upper floors were repainted and window
frames reinstated to correspond with the original appearance on historic photographs.The Council paid great
attention to detail and strongly advised the property owner not to put plastic stickers or unattractive advertising
material in the windows. Alongside this commercial development, the rear of the property was converted into
attractive residential dwellings.
The development has been viewed as a good example of what can be achieved with the scheme.The results are as
follows.
25
The three shopfronts were fully
repaired and underwent an entire
repaint. Both a light and a dark
colour were used to co-ordinate
with the shopfront design guide.
Upper floors have been
repainted. Steel windows
have been removed
and sash windows of a
traditional design installed.
The removal of the shutters between
Nos .6 and 8 Winner Street and the
replacement of these shutters with
an attractive galvanised wrought iron
gate was not funded directly by HERS.
The gate has been built as part of the
planning permission agreement for
the improvement of the residential
property situated behind no.6.
The refurbishment included the
replacement of existing stall risers
with dark brown tiles. At No.8, a new
pavement gully has been installed.
Cills and fascia have been
reconstructed.
The scheme has encouraged and provided a
new and attractive shop name and sign.
Victorian style roller blinds have
been installed on Winner Street Nos
6 and 8.
The existing doors of No. 4 were
removed and replaced with a new set
of opening double doors and a weather
board.
The brass set of Georgian lever lock
furniture and Victorian brass letter plates
greatly complement the colour scheme.
The doors of No.6 and No.8 have also
been replaced.
26
67 and 69 Winner Street- Hallett’s the Bakers
Although Nos. 67 and 69 were funded as separate projects, they functioned at the time as one business; Hallett’s the
Bakers and the Bakery.
These terraced shopfronts with upper floor accommodation are also located in a significant location in the HERS area;
central to Winner Street and on the corner of the New Street junction into the shopping area.
Following the guidance of the marketing consultant, it was agreed that a ‘central point’ in the street should be
established (which included the pilot project).The bakery is one of the three buildings involved. Not only has the
improvement of the property played a central part in the regeneration scheme, but also Helen Hallett, a joint owner
of the Bakery, has had an active role in the general organisation and upkeep of the street prior to, during and after the
scheme.
Total cost - £10,660.00
Grant offered- £5330.00
67 and 69Winner Street prior to the HERS.
27
Hallett’s Bakers
The Bakery is the larger of the two shopfronts and has received an extensive amount of work to improve its
appearance.
The blind that was fixed prior to the HERS was not only unsightly, but also the lorries that had to turn the sharp
corner opposite the store in order to access the shopping street frequently damaged it.
A new, traditional-style Victorian roller blind has therefore been supplied and fitted.The new blind is more discreet
and complements the new traditional design of the property.
The new colour scheme has individual character and blends well with the surrounding properties.The hand-written
sign, gold theme and brass edges at the lower front step all add to the visual appeal of the shopfront.
Cills have been replaced and new gold tiles have also improved the shopfront.
The Bakery
The adjoining Bakers shop has also been refurbished to the same design as the bakery. It too follows the gold and
blue theme, has a new Victorian-style blind and the sash windows, door and frame have been repaired.
The Bakery is unique in that it has been targeted as part of the public art scheme funded by the HERS. Not only
has the new shopfront got additional brass steps leading to the doorway, but it was one of the first properties to be
supplied with a copper artwork, in this case designed in the shape of a gingerbread man.
28
77-89 Winner Street
The regeneration of the row of
properties, 77-89 Winner Street
has been a major project of
the HERS, tackling the longest
consecutive row of shopfronts.
The regeneration of this strip
was inspired by the success of
77 Winner Street,‘The Pantry
Café’. This was the first Grade II
listed building to receive grant aid
under the HERS Scheme.
Total Cost- £7584.00
Grant Offered- £3792.00
77Winner Street,The Pantry
The Café shopfront has been reinstated
to a quality traditional design including
a unique side wall mural created by
SPARC, a local arts charity discussed in
more detail further in the project, and a
copper hanging sign.
Once the shopfront had been reinstated
to its original design, the condition of
the upper floor was improved to the
same high standard.The other properties
in this terrace were also Grade II listed
buildings but had lost most of their
architectural features and did not contribute positively to the streetscene. Once the
Pantry Café had been completed, development on the adjacent property, 79-81 Winner
Street,‘The Bargain Box’, began. As shown in the photograph below, local designers
and contractors have collaborated to reinstate the stall riser tiles to the same design and
used the same colour scheme on each property, achieving consistent quality.
29
The Bargain Box,Winner Street
The refurbishment of the ‘The Bargain Box’ has been the
biggest project targeted by the HERS. It is one of the
largest shopfronts centrally located on Winner Street.
Total Cost- £18,450.00
Grant Offered- £9,225.00
The regeneration of this property included the upper
floors, which were in need of serious repair, and was
grant aided under the Housing Act.
Upper floor windows were removed and replaced with
sliding box sash windows, designed to match the adjoining
property, No. 77.
Redundant cables were also removed from the upper
floors to tidy the appearance.
The side door, which permits access to the upper floors,
was also painted in the matching colour scheme and brass
fittings have been supplied.
Under the HERS, original
woodwork has been reinstated
and detailed to its traditional
appearance. The wooden
doorframe has also been repaired
and the fanlight above restored.
Unattractive steel grilles have
been removed and replaced
with removable shutters, which
are both more attractive and
function better.
30
The new sign has been designed and handpainted by a local artist with a template of
the original shop sign in mind.
83-87 was also treated holistically in architectural
design and colour scheme.The above photographs
show 83 Winner Street,‘The Discount Store’
through to 85-87 Winner Street,‘The Second Hand
Department Store’ in their condition prior to
HERS, and the below show their enhanced current
condition.
To achieve these results the following work was
carried out on each property;
N
N
New shop doors with new brass fittings have
been supplied and installed
83Winner Street
All existing paintwork has been burnt off prior to
the repair of the woodwork and all has been completely redecorated.
N
New shopfront surround and fascia supplied and fixed in new joinery quality
softwood, preservative treated for exterior use.
N
A new traditional Regency style roller blind in its box was installed.
N
All floor surfaces were treated at entrances with red floor paint.
N
Carry out extensive work to improve the joining between the two separate
businesses.
N
Repaint of sign-written sign on fascia.
N
Fix new copper sign in the form of a sofa above
the door.
85-87Winner Street
31
Pot Black
Within the HERS area, there has been an ongoing problem of historic buildings that have been unsympathetically
altered due to the specific requirements of business use. Over time, these alterations have had a particularly negative
impact on the public realm. Under the conditions of HERS laid out by English Heritage, building repair is prioritised
for historic buildings. However, it was proposed that in exceptional circumstances, grant aid would be offered for
minor building adaptations that would facilitate the removal of unsightly features, in order to sustain the building’s
current use.
The Pot Black Snooker Club is part of a landmark building at a visually important gateway to Winner Street.The club
occupied the first storey of the building and all of its 14 window openings were boarded up to provide the blacked out
conditions necessary for the snooker club.
It was in the interest of the scheme that the upper storey was renovated and made more attractive. Inspection showed
that the original windows existed behind the boards, which could be removed to restore the upper storey to its
former glory. Grant-aid was necessary for the provision and installation of blinds and new internal signs; a project that
the owner was unable to fund independently.
The HERS has visually transformed Pot Black’s upper storey.The colour scheme now matches the property below, the
window boards that remain are symmetrical, neat and attractive, and roller blinds are currently in use to obscure the
light through windows when required.
32
3.5 Overall Impact of building repair
and reinstatement
The effort put into improving the public realm through shopfront repair has clearly been a major success in the
Winner Street HERS.
The general aim was the revitalisation of the area’s appearance, which would contribute to a reappraisal by the local
community of the shopping experience on offer in the street.This in turn would encourage more economic activity,
resulting in new jobs attracting people back into the area. An improvement in design quality has been applied to
the shopfronts and through this design, a clear identity has been established.The pride of the property owners and
residents in their area has now been restored.
A reduction in crime rates can be seen as a direct achievement of building repairs. By assessing the current condition
of the buildings against their original state, the dramatic improvement has discouraged graffiti and other anti-social
behaviour.The Council demonstrated to the local community the dramatic impact of simply painting over existing
graffiti and encouraged them to maintain improved conditions through public consultations.
Interviews with a local policeman show a dramatic improvement in the atmosphere of the area.
‘The new public toilets have reduced public drug abuse and the opportunity for anti-social behaviour.There is an
active CCTV system.This extends to the refurbished Palace Avenue Gardens, which has reduced drug abuse. Antisocial behaviour is improving.’
Local Policeman, Interviewed 2005
3.6 Environmental Enhancement
The environmental enhancement of the HERS area involved both the improvement of the road layout and traffic
control and the upgrading of pavements and street furniture to create a unique and attractive place.
The problems of traffic congestion were approached with a Traffic Management Zone (TMZ).
On the advice of English Heritage a marketing consultant was appointed to bring together the key aims of the HERS;
to recover the economic viability of Winner Street and Church Street and for the area to better serve the local
community by improving the shopping experience. The main role of the consultant was to create an identity for the
area; one that would be associated with heritage and prosperity.
Each project is addressed in turn.
33
The Traffic Management Scheme (TMZ)
a.The Vision
The TMZ was considered to be an essential element of the HERS scheduled to take place in the first year of the
scheme. At the end of the first year of the HERS Torbay Council announced that highway consultant Parsons
Brinkerhoff was to undertake a wider study of Paignton’s traffic problems.
Originally a decision was made to delay the implementation of the TMZ by three months in order to take account of
the findings. Effectively this was to cause a delay of more than three years in the implementation of the TMZ.With
local building cost inflation running in excess of 15% per annum, the amount of work that could be achieved with
the allocated £200,000 was reduced dramatically. Unfortunately, the TMZ proved to be the single most divisive issue
affecting the HERS.
The Winner Street and Church Street Traders’ Association was the original group which approached the council to try
to secure funding for improvements to the street.
In formulating the Paignton Traffic Study, Parsons Brinkerhoff engaged the local community using a range of methods.
These included public meetings, leafleting and a series of focus groups.Traffic surveys were undertaken and it was
demonstrated that the vast majority of cars arriving in Winner Street did not stop to shop and were using the street
as a short cut. Because of the strong interest shown by the Winner Street and Church Street Traders’ Association, they
played an important part in the focus groups. However, all traders in the street received a leaflet asking for their input
and were invited to attend a pubic exhibition held in the Paignton Connections Office literally a stone’s throw from
Winner Street, but response from local people was limited.
The input from the Winner Street and Church Street Traders’ Association into the focus group suggested that the
problem of ‘rat running’ through Winner Street had to be addressed.They wanted to improve the ambience of the
area by creating a small pedestrianised area at the core of the street while maintaining vehicular access to all but the
historic core.These views were taken forward into the wider proposals for the street. After publication of the Parsons
Brinkerhoff proposals, a different group of traders initiated a campaign to oppose pedestrianisation of the street.
This campaign grew strongly, with many shops showing large ‘No to Pedestrianising Winner Street’ posters in the
windows.This group held rallies at council meetings with strong press coverage. Unfortunately they also became
hostile to Winner Street and Church Street Traders’ Association and its organisers.
As a result of this situation, grant-assisted work in the street became very difficult to achieve.Traders linked the
HERS Officer with the Traffic Study and co-operation was withdrawn in several cases. Unfortunately this all led to the
disbandment of the original group.
A new organisation, the Winner Street and District Association, was formed. Initially this group took forward many
of the initiatives of the Winner Street and Church Street Traders’ Association. However, heavy responsibility fell on
a limited number of members. Despite this, the group has been able to take forward new initiatives including bank
34
holiday street festivals which have been well attended. Unfortunately, to some extent the strategic direction originally
provided by the previous group has been lost.
The debate regarding the Paignton Traffic Study continues today. In 2003, members conceded that the Winner Street
element of the scheme could not be achieved and it was withdrawn from the wider study.The TMZ was agreed at the
meeting of the Transportation Strategy Working Party in October 2003 to be included for implementation during the
financial year 2004/05.The Council Engineers, in consultation with the Planning Department Landscape Officer,
carried out design works and a contract was then prepared and tenders sought, also by the Engineers’ Department.
The contract for the works commenced in January 2005 and was substantially complete by mid-April 2005.
b. The Results
The TMZ had a big influence on the Winner Street Scheme largely due to the fact that a 20mph zone could be
introduced.This allowed the introduction of additional traffic calming road humps, which were designed and
constructed in special materials to blend in with the historic nature of Winner Street. Additional road humps were
introduced near the New Street and Church Street junctions and the footways widened.The road humps, or raised
tables, in Winner Street, as well as slowing traffic, also act as crossing places for pedestrians and have a two fold safety
effect.The original road humps in the main shopping area of Winner Street were also re-laid in more appropriate
materials.
A major part of the scheme was to improve the running qualities, strength and appearance of the ‘worn out’ and
untidy looking road.The road surface had been destroyed over the years by statutory undertakers and service
companies and had numerous and very unsightly trench reinstatements of varying materials. As a result the whole of
the road was reconstructed in new bituminous macadam materials.
Due to the fact that the street was now in a 20mph zone it was not necessary to have a multitude of road hump
warning signs, which are normally required, helping to reduce the clutter of road signs.
A further traffic-calming device was introduced by the inclusion of a Give Way order, markings and signs at the
junction of Winner Street and New Road.This changed the priorities and is another help in reducing the speed of
traffic in Winner Street.
The footway in ‘’The Narrows’’ section of Winner
Street was also widened to help pedestrians, and now
allows them to pass without the need to walk in the
road area.
The whole of the road, footways and streetscene were
improved by the introduction of a more appropriate
design of street furniture including good quality benches,
the bespoke ‘Coverdale’ bollards,Victorian Lamps,
hanging baskets, good quality litter bins and planters.
35
The introduction of the street furniture both improved the appearance
of the street and prevented vehicles parking on the footways and
widened visibility splay areas. Vehicles had often parked on the footways
under the earlier road layout and had damaged many paving slabs as well
as causing obstructions to visibility and pedestrian pathways.
The footway paving in the whole of the street has been considerably
improved by replacing untidy concrete areas, bitmac reinstatements and
broken paving slabs with new small element ‘’Formpave’’ paving slabs,
which are the same as those used in the earlier traffic calming scheme.
Unfortunately, the newer slabs, although of the same colour and specification, do not quite match the colour and
appearance of the older slabs at present and may take a few years to weather and blend in with them.
The Winner Street Traffic Management Zone and the 20mph Zone was introduced to include Winner Street, parts of
New Street, Palace Avenue, Church Street and Well Street. It had always been intended to introduce traffic calming
and improvements in Well Street but finances were not available before the HERS ended. A scheme to introduce
traffic-calming and to construct new footways, where there were none in Well Street has subsequently been
implemented by the Urban Design Team.
The Marketing Consultant
In 1999, an independent marketing consultant, Alan Kilkenny, provided advice on how to improve the shopping
experience and the environment at large of the HERS area. At the end of the first year, this consultant recommended
Mary Mullin who was then appointed in 2000 following a presentation of ideas to the Steering Group.
A wide range of issues were considered which were then evaluated as options for action to raise the profile of Winner
Street as a shopping experience with a clear identity. Of these options, the following were
adopted by the HERS:
N
Public Art Displays
Consultation with Mary Mullin led to
the adoption of the theme of ‘children’s
play’ for the street.This was in order to
attract new clientele, make the street
‘family friendly’, and to create an image
different from nearby tourist centres
such as Totnes and Dartmouth to
eliminate direct competition with them.
This idea is being used to influence both
public art displays and shop window
displays.
36
One of the first new businesses to relocate in the street was a charity called SPARC. This charity specialises in arts
projects for the local community based on recycled products.
SPARC have worked closely with local primary schools and produced interesting ceramic murals in Sign Walk based
on the contents of traditional shop windows.
The entrance to the Crown and Anchor Way car park,
the only car park linked directly to Winner Street, is no
longer dark and threatening, but bright, inspired and
well recognised.
N
Hanging Signs
As recommended by Mary Mullin, an identity was
established in the area during the HERS.The shopfront
restoration schemes have provided many opportunities for art projects that support this.Where possible, building
repairs or reinstatements have included an individually designed hanging sign produced by copper sculptor, Karen
Green.
These individually reflect the trade of the shop.
A business owner recently located on Winner Street
(Marshalls News) has already cited the hanging signs
as being one of main reasons why they relocated to the
area. At a cost of just £200 per sign (£100 from the
HERS and £100 from the shopkeeper) this response
represents excellent commercial value.
The locally produced art work now flourishes in the street, and continues with
more displays planned for the future (see conclusion). All works make a unique
contribution to the historical ambience of the area.
N
Street Events
The Golden Jubilee celebrations
of 2002 came at a perfect time for
Winner Street. With two years of
the scheme completed the street
had the opportunity to advertise its
achievements.
In June 2002, the Street became
pedestrianised and sported a
37
traditional fair with local food stalls, puppets, live music and theatre.
It was the ideal occasion to unveil the new Golden Jubilee sculpture designed by local
artist Spencer Larcombe. It stands as a symbol of the street’s success and of the local
community’s commitment to the scheme and their appreciation of ‘heritage’.
N
The encouragement of food services
The encouragement of food stores, cafés and restaurants selling local produce was also
identified as a niche theme that could attract new visitors and provide regular activity in
the area.This applies particularly to night-time activities that have struggled to thrive in
the area.
N
The development of Speciality Shopping
Mary Mullin emphasised the value of developing the area as a site of speciality shopping.The heritage and character of
Winner Street is displayed in its element in the rejuvenation of the speciality shopping experience offered by the area.
The high quality shop front design has generated much interest in specialist businesses.The selection of the shops the
street has to offer now is its own advertisement of the scheme’s successes.
The street offers the chance to buy second hand furniture, military memorabilia, flowers, old books, musical
instruments and household products. In terms of convenience, the now attractive anchor store, the Co-op is
complemented by grocery stores, hardware and electrical stores and independently refurbished newsagents.The
HERS has encouraged local food produce to attract a niche market.There is now a flourishing range of bakeries,
butchers, cafes and bars.The selection of hairdressers and the laundrette completes the self-contained group of
businesses required for local and visiting shoppers to comfortably survive without having to move further afield.
The vast reduction in empty properties along Winner Street is an outstanding demonstration of the economic
improvement of the area.
In 1999, prior to the scheme, there were 14 empty properties in the HERS area, many of which were located on the
main stretch of Winner Street. After the first two years of the scheme, a reduction down to 11 empty properties had
been achieved.
By 2006, there have been further reductions with only four properties remaining empty. None of these however have
an offensive or untidy shopfront. 84 Winner Street for example was offered grant aid, used to improve the shopfront.
The owner has shown no interest in filling the shop, despite numerous attempts by the council who have searched for
and offered possible tenants.
N
The enhancement of the approaches to the Street
Shops, businesses and entertainments need customers. Prior to HERS, the district was hidden from all but the local
residents.The consultant suggested ways in which persons from the outside community could be attracted to the
street.
38
The gateway project at the entrance to Winner Street from Totnes Road has been the most visible outcome of this
initiative, but the regeneration of the Palace Theatre has also made a significant impact on attracting people to Winner
Street from the Town Centre.
N
Recognition of flowers and gardens
The marketing consultant suggested that Paignton could exploit an interest in flowers and gardens in order to raise
national interest.There were many opportunities to develop this idea in Winner Street as its name derives from the
mediaeval vineyards that were once located next to it and Palace Gardens are in close proximity.
The Rejuvenation of Palace Gardens
Palace Avenue Gardens lie directly opposite the Palace Theatre and were designed as an integral part of the Palace
Avenue townscape.The photograph below shows the gardens in their original state in approximately 1910.
The regeneration of these gardens, which took approximately £5000 of HERS funding, has made a major
improvement to the public realm around the Theatre. It is a safer and more pleasant area which is less susceptible to
crime and anti-social behaviour.The funding has gone
towards a redesign of the gardens layout with the
vision of an outdoor stage in mind. There is improved
access for the public and the disabled, new planting
and new themed seating provision.
Improvements to the gardens have encouraged more
people to move from the Paignton town centre up to
the HERS area.The increase in foot-fall in these areas
is exactly what Winner Street needs to retain the new
shops and encourage future investment. A group of
local people formed ‘The Palace Avenue Guardians’ to
maintain the appearance of the gardens.
39
3.7 The Palace Theatre
Lying on the edge of the HERS area, the Palace Theatre occupies a pivotal location between Winner Street and the
rest of the town centre. It is a key building in the Old Paignton Conservation Area, acting as a landmark and giving
identity to the town.
If Paignton is to have a cohesive and vibrant shopping and leisure role,Winner Street needs to be linked to the main
shopping area in Victoria Street and through to Torbay Road and the seafront. It has always been recognised that
Winner Street is somewhat out on a limb in these terms. The Palace Theatre was identified to build this link.
Local people have for many years used the theatre and the adjacent badminton hall for local events, amateur and
professional productions, and music and dance festivals. The community regard it very fondly. The Palace Theatre
draws people into the area and has great potential to do more.
The marketing consultant highlighted many areas of possible synergy between Palace Theatre and the HERS area with
benefits for bars, pubs and restaurants nearby and new theatre/arts-related shops could be attracted to the area. The
use of Palace Theatre is therefore of great importance to the regeneration of Winner Street.
While not listed, the Palace Theatre is a very good building in architectural and heritage terms and considered worthy of
listing. At the ‘gateway’ to the HERS, the theatre makes a significant contribution to the historic character of the area.
Refurbishment of the Palace Theatre
‘Celebrating the area’s rich and diverse heritage
through artistic media and education in historic space’
(Palace Theatre- Audience development plan)
Built in 1890, The Palace Theatre is a 397 seat Victorian
proscenium arch theatre, owned and managed by
Torbay Council.
Although there have been improvements in recent
years, such as an additional box office area and a
renovated bar, the general appearance and maintenance
of the theatre has gone into decline.
The project began with a Council bid for £2.9 million
from the Arts Capital Programme in January 2001.
However, this was rejected in June 2001 spreading
community concern for the future of the theatre.
Numerous options to save the theatre were considered
and it was concluded that HERS funding was the
logical and most practical option to begin the project
and encourage private investment. HERS funding of
40
approximately £80,000 was offered to the project in accordance with the Fourth Year Implementation Plan.
Other potential sources of funding were identified as the Heritage Lottery Fund, the Torbay Council reserved finance
from the sale of Festival Theatre and the Arts Council of England and fundraising from the Friends of the Palace
Theatre group who had a personal target of £100,000.
The revised plan aimed for the theatre to be refurbished to the standard shown on the superimposed photograph below.
The lack of support and funding from the Heritage Lottery Fund came as a great disappointment to the HERS team. It
was inevitable that the scheme would take much longer to complete and that funding would have to come from alternative
sources.The scheme went
under continuous amendment
until a final plan ws produced
which could be delivered into
the £936,800 budget (HERS
included).
Work to the theatre had to
begin in 2005, four years later
than intended.The project has
included general repairs of the
roof and stonework, improved
disability access, tiered seating,
an enlarged bar, and re-addressed
health and safety issues.
The theatre project was completed in February 2007 and looks noticeably improved in appearance. It has been
reinvented as a hub of community activity, celebrating the area’s rich heritage. Individuals and community groups
involved in the HERS will be able to use the theatre hall as means of advertising their achievements through displays,
art galleries and/or public consultations.Those interested in being involved in their heritage by promoting activities
that make more people aware of how important the building and surrounding area are to Paignton and Torbay will be
encouraged to visit and set up events at the new theatre site.
Torbay held its Time and Time Conference at the theatre in September 2007 to highlight the role of heritage in
regeneration.
It is envisaged that local partnerships will be encouraged with the vision of strengthening links with the community,
museums, schools and groups; a ‘Palace Theatre community’. Local theatre groups, children’s organizations and
educational groups will have the chance to flourish and perform bringing unique character and a new, more diverse
clientele to the area.
Popularity of the theatre as a tourist site will improve with time, encouraging night-time activity in Winner Street
and the HERS area.This will not only discourage any remaining anti-social behaviour, but also diversify the types of
business that are located in the area.
41
results and achievements 3.8 Private Sector Housing Grants
The HERS was planned to run alongside a major Private Sector Housing
investment to completely renovate the building stock in Winner Street and the
surrounding area. It is summarised as follows:
N
£285,853 of improvement work carried out
N
£147,443 of Housing Grants approved
N
£123,123 work completed
N
26 Properties (approx. 125 residences) improved
The main focus of the project was a ‘Living Over the shop’ initiative.
This would encourage property owners not only to consider their
shopfronts, but their residential accommodation on the upper floors
that also had a significant impact on the appearance of Winner Street
and Church Street.
The aim was to treat properties as a whole; where the ground
floor was being renovated, so should the upper floors. This has led
to a comprehensive improvement in the building stock and made
the area more attractive to live, work and shop. The following
photographs clearly show how beneficial these changes have been,
with big improvements in the numbers of houses in good repair and a
corresponding major reduction in those in substandard property..
‘Gadgets n things’, owned by a representative of the Winner Street District Association, has been transformed thanks
to the HERS.
Total Cost- £6556.99
Grant Offered- £3258.50
The new copper sign supplied
by the HERS draws the eye to
the neat upper floor repaint,
window repair and pillar repair.
42
3.9 Complementary Housing Projects
The improvement within the HERS boundary has encouraged development of the surrounding housing stock.
Independent property owners have been inspired to improve their accommodation and now offer pleasant and
desirable properties for people looking to live in the area.
There has been a significant improvement in the
three storey housing stock in New Street.
Well Street as a whole has been greatly improved due to
the redevelopment of a derelict garage site in Well Street to
provide a new block designed by S. Parkes for the Devon &
Cornwall Housing Association and the subsequent conversion
of the former industrial premises into residential units.
Crown and Anchor Court is a modern and attractive
conversion of a former barn and dovecote in close proximity
to Winner Street and Palace Avenue. It enhances the street
and draws attention away from the garage opposite.
Signpost Housing Association / The Residential Organisation
During the first year of the scheme two major organisations expressed an interest in becoming involved. The
Residential Organisation based in London is a property acquisition company with a proven record of investment in
difficult urban areas. Any property acquired by them is subsequently sub-let to the Signpost Housing Association, a
Westcountry based association which up to now has not been strongly represented in Torbay. Signpost are using the
HERS to increase its property portfolio, as it is confident that it will deliver a quality environment for its tenants.
These two organisations have brought much to the area as they actively target problem sites. Signpost Housing
Association is the driving force behind the £1.3 million flagship redevelopment of the Co-op in Winner Street.
43
results and achievements Signpost Housing also delivered a range of smaller residential projects in the street and have been strong supporters
of the regeneration scheme, sponsoring local community events.Their involvement in the scheme at an early stage
provided confidence in the local economy and made a major contribution to the scheme
The Co-op
The Co-op is one of Winner Street’s anchor stores, located on
the corner of Palace Avenue.
The closure of its furniture and white goods department had
a dramatic effect on the streetscape.They have retained the
food retailing section on the site but with a reduced area at the
front of the store. Negotiations took place in order to match
the developers’ interests with the HERS aspirations and a
planning application was submitted.The total cost of the work
is estimated at £1.3 million.
The Co-op 1999
The Co-op Housing and Arts project
Approximately 75% of the building has been converted to residential use for
the Signpost Housing Association, bringing new residents to the area and a
high quality restoration of this important art deco building. The aluminium
shopfronts inserted in the 1960s have been removed and the original timber
shopfronts reinstated.The project also allowed the restoration of the existing
Crittall windows on the first floor and the repair of the faience cladding which
was in a very poor state. Although some shop frontage has been lost in Winner
Street, an innovative idea to place interpretation panels displaying local history
has been installed along the Winner Street frontage and is shown below.
44
3.10 Feedback from Grantees
When the HERS had been completed, an independent researcher was hired by Torbay Council in order to report the
overall impact the scheme had had to the lives of the grantees and locals.This study took place for a period of one
month, where the researcher had continuous interaction with representatives of the local community.
Information was then reported back to the Council in order to assess the relevance of the outputs on everyday life
within the renewed Winner Street.
This information was also used to inform the conclusions of this final report.
On the whole, responses to the scheme were extremely positive.The grantees, many of whom belonged to the
Winner Street District Association, were keen to show their appreciation and support for further developments
under the conditions of the HERS post completion of the scheme.The strength of community cohesion and the strong
commitment the majority have to the scheme is clearly recognisable in the long-standing establishment of the Winner
Street and District Association, the Palace Avenue Theatre Action Group, and the Palace Avenue Guardians.
N
N
Tony Moss (Paignton Historical Society)
“There is a good mix of shops. Most of which are orientated around the encouraged ‘food scheme’ and have good
trade.The shops offer a positive selection of products and facilities suitable for locals.”
Ron Sharpe (Chairman of the Traders’ Association)
“Winner Street now has a ‘raised profile’. It is a better place to ‘live, work and shop.”
“It has a ‘better tone’.The HERS scheme has done a ‘superb job’. It has ‘achieved a goal”
The HERS scheme has raised profile of shop fronts with the grants, meaning the level of businesses and the quality of
people have gone up.There are new, more regular customers
N
Councillor Doggett
“There are both night and day attractions in the street. (Cafés, Public Houses etc.)”
“The development of residential properties in the Narrows is a better long term solution to the declining businesses and closing shops.”
N
Community Policemen
“There is an active CCTV system.This extends to the refurbished Palace Avenue Gardens which has reduced drug
abuse.The appearance of these Gardens has also greatly improved.”
“The new public toilets have reduced public drug abuse and the opportunity for anti-social behaviour.”
“The new system at New Street has slowed the traffic down and the road has become less of a rat-run. It is now
‘smooth flowing’.”
N
Tony Garratt (Conservation Officer for the Council)
“Church Street is a ‘booming area’ with specialist, cheaper businesses. It is advertised (although not sufficiently) by
the ‘Shops’ sign and the Golden Jubilee motif on Winner Street.”
45
results and achievements There were however some negative responses to the scheme.This was expected in a scheme of this nature which
aims to target a wide audience who may have naturally conflicting ideas.These comments were taken on board when
considering what lessons have been learnt from the scheme.
N
Tony Moss (Paignton Historical Society)
“Some traders did not want to take the grants because they would have to pay considerable amounts of their own
money.The scheme worked on a reducing scale, so later projects with less priority had to pay more.”
“Private landlords and multiple ownerships hinder developments of single room rental into flat rental.”
N
Ron Sharpe (Chairman of the Traders’ Association)
“Despite being very attractive, the Golden Jubilee motif is in the wrong place. It is not central to the street and not
enough people see it.”
“The project has fallen short of completion and requires a second stage.”
N
Councillor James
“Road safety has ‘not gone far enough’. Need to develop parking regimes and delivery arrangements to suit shoppers and traders.”
46
DISCUSSIONS AND LESSONS LEARNT
Although the achievements of Winner Street HERS are clear, there have been a number
of problems that have occurred throughout its course.This next chapter highlights
these issues and describes how they have been addressed.
4.1 Environmental Enhancement-Traffic Flow
Despite the Traffic Management Zone, one of the most obvious problems in the area continues to be
dysfunctional traffic flow.
The Traffic Management Zone Scheme was a process that allowed for a solution. However, its delay and
subsequent problems transformed the local communities’ perception of the scheme, losing confidence
and discouraging involvement.
The problems of the TMZ are still evident today.
The imbalance between the number of cars or vans stopping in the street and the parking provision
remains to be a serious concern; cars continue to park illegally on double yellow lines or in loading
bays and continue to outstay the length of
their visit, reducing turnover in vehicles
passing through.
Cars parked on the corner as in this
photograph cause major congestion
problems, heightened by the one way
system already in place.
This becomes a particular problem at
delivery times, where vans and larger
vehicles cannot gain access to the
narrower parts of the road.
47
The one way system and the widening of the pavement have
produced a very sharp bend. For large lorries it is difficult to
manoeuvre and at times, causes them to collide with the traditional
blinds of some of the properties.
Parking provision is minimal along the main street, and even more restricted towards the Church Street exit where
there are more double yellow lines. In some circumstances, individual businesses resort to putting their own
restrictions on the pavement which are both unattractive and impractical.
4.2 Solutions to this problem?
Firstly the Council has adopted far more rigorous control over illegal parking with a strict parking regime. Although
the recipients of parking tickets are sometimes aggravated, there has been an enormous improvement overall in
Torbay’s streets which are now much more convenient to use and safer.
However, more site-specific solutions for Winner Street are needed. It requires its own detailed plan beyond the
Traffic Management Zone.The Council will pursue this. For example, there is some derelict land in, or surrounding,
the area which could be used for conversion into parking bays.
Also, a parking permit scheme for existing residents could be developed to eliminate competition between residents
and shoppers.
Further signage to the Car Park is also part of the solution, in order to reduce pressure of parking on the main street.
The Local Plan for Torbay aims to ensure that movement of freight is adequately controlled and suitable provision
made so that penetration of lorries and commercial vehicles into residential areas, pedestrian zones and focal points
can be achieved without unacceptable environmental consequences.This now has to be enforced and control of the
size of lorries entering the street needs to be considered.
48
Graffiti is a serious problem threatening the whole of Paignton but is not tackled specifically in the local plan or
community plan. In the HERS area, graffiti is particularly troublesome as even a small amount can distract from the
achievements.The Steering Group has therefore decided that a zero-tolerance policy must be enforced.
Emptying of bins is occasionally delayed causing rubbish to spill out onto the street.This is currently being tackled in
the Torbay Waste Strategy and monitored by individual residents and traders.
A small working party has been set up in order to tackle the remaining problems so that confidence in the
achievements is not lost.
4.3 Time scale for completion
The up take on grants became a fairly complex process during the second year of the scheme. As already mentioned,
the scheme highlighted a list of priority buildings which would receive their grants first. However, uptake was slow
and when property owners realised that they wanted to be part of the scheme, having seen other successes, there was
a rush to get construction work under way and completed.
Some properties produced unsatisfactory results, where work completed was to a contrasting design and in
some cases was to a lower than required standard. However, these problems were overcome through persistent
communication on behalf of the council with locals and construction workers and the majority of these problems have
been resolved.
The scheme also worked on a reducing scale, meaning later projects, with less priority, had to pay more, not
encouraging involvement.
However, the Council persisted and continued to encourage locals and succeeded in completing the majority of their
projects.
4.4 Engagement by the Council
At the outset, only a small team of Council officers was involved in the HERS. The bid for HERS funding was put
together by the members of the Design and Conservation Team in discussion with other Torbay Council Services.
On becoming a Unitary Authority,Torbay Council had decided to provide all its Historic Environment services
in-house instead of using Devon County Council’s Historic Environment Record formerly Sites and Monuments
Register). This meant that there was a budget to employ a part-time archaeological officer to strengthen the team.
The decision was taken to use the budget allocated for financial assistance for the repair of historic buildings and the
budget allocated for Conservation Area Enhancement to commission Conservation Area Character Appraisals for all
23 Conservation Areas and to provide match funding for external funding bids in the historic environment.
Alongside this,Torbay had commissioned its own Heritage Strategy to identify what actions were needed in the years
ahead but this was not formally adopted until 2003.
49
There has not previously been recognition within the Council that Heritage can play an important role in
regeneration. The success of the HERS project has helped to promote the message within the Council that heritage
led economic regeneration is worthwhile.
During the preparation of the Implementation Plan, the members of the Design and Conservation Team gained
valuable experience in the detailed analysis of an historic area to gain a sound understanding of its problems and needs
so that priorities for action could be identified.
It was through this process that the involvement of other parts of the Council in the area was confirmed and
consequently widened the engagement of the Council in the HERS scheme.
It became clear that the decline in Winner Street had been a product of the concentration of investment on other parts
of Paignton. This was exemplified by the highway scheme that had been carried out by Devon County Council in the
1980s which had clearly failed to meet the needs of the local community.
The HERS scheme has given the local community a voice so that its local Ward Councillor can speak up for Winner
Street without any need to explain where it is. It has established itself among the mainstream activities of the Council
and is highlighted on the Guide and brochures distributed to visitors to the Bay. The Council members who came to
the Time and Tide Heritage and Regeneration Conference at the Palace Theatre cannot have missed the link between
the HERS project and the economic regeneration it has brought about.
It is still possible, however, for things to go adrift. One example recently has been the decision to give planning
consent for the change of use of Solo Stores to an employment centre. This is just the sort of issue the HERS team
debated at length in Steering Group Meetings. It is now possible for such an application to be decided without any
consultation as a decision delegated to a case officer.
This must be addressed in the Paignton Conservation Area Management Plan which is being prepared but it is also
clear that the understanding of what the HERS scheme delivered is widely communicated within the Council.
This Final Report will be a step towards the provision of this information but the lessons it had taught us need to be
embedded into the decision-making process for all future projects.
50
conclusions
5.1
Building on the HERS - Complementary initiatives
The ‘Gateway’
By the end of 2006, it was officially decided that Torbay Council would commission a new public art
work to highlight and complement the achievements of the Winner Street HERS.
This public art work is a landmark located at the opening of Winner Street, attracting visitors and
passers-by to appreciate and celebrate the regeneration of the area. It complements the existing
artworks, reinforcing the local identity of the area and, in general, enhancing the public realm.
The initial brief for the artist was as follows:
“We are looking for an artist who sees collaboration as part of
their practice, who is prepared to research the area as part of the
process of creating the final work, in order to be directly relevant
to the site and the people who use it and visit it.”
The artist has been be sensitive to the locals’ needs and
requirements working on a budget of £9,500 funded from
O’Dwyer’s Developer’s Contribution (Section 106), which
includes design development, attendance at meetings,
manufacture, delivery to site and installation.
The gateway landmark was installed in 2007 and has been very
well received. It consists of a copper mermaid created by Karen
Green who was also responsible for many of the copper shop signs
in the HERS area.
This is set on a gilded ball on top of a steel ladder frame displaying
symbols of Old Paignton.
51
conclusions
Tourism and Marketing
Members of the local community have already taken the initiative to produce a Winner Street Website and a leaflet,
which is distributed in local tourist centres and hotels etc raising awareness of the successes to date.
Further marketing is required however. Local organisations must work together to raise standards in the tourist
industry by investment in both new and existing tourist facilities and work with all sections of the tourist industry to
ensure that Winner Street is effectively and sensitively marketed as a major, year-round, quality resort.
As expressed,The Palace Theatre Refurbishment will have a major role to play in the development of Winner Street as
a tourist attraction.
The overall impact of the Winner Street HERS
Summary of Outputs
This report has demonstrated the achievements made throughout the Winner Street HERS. Looking in more detail,
the following have also been achieved throughout this scheme.
N
1 conservation area improved
N
2482 Square metres of commercial floorspace improved
N
10 vacant commercial buildings brought back into use
N
87 dwellings improved
N
29 shopfronts repaired or reinstated
N
29 small or medium sized enterprises assisted as a result of works to buildings
N
32 Jobs created
N
29 Jobs safeguarded
N
206 Construction jobs created
N
Extensive local input
N
Improved local media coverage
(A detailed summary of Outputs is available in the Appendix)
The achievements made in the Old Paignton Conservation Area have been largely due to the corporate yet flexible
role of English Heritage.Their open approach and clarity of thinking has given the Council the confidence to fully
invest in a holistic approach to regeneration.The Council became involved in the scheme at the highest possible level,
being a source of match funding and getting many of its departments involved.The increasing focus on empowering
52
conclusions
the public to become stakeholders and decision-makers for their local services has also been acknowledged in the
experience of Paignton.The contribution of the Local Preservation Society, the local business people and the police
have been invaluable.
Community awareness now takes priority in Winner Street as demonstrated in the Winner Street District Association’s
prominent role in decision making. Despite some problems identified, the links between the community and the Local
Authority have been well established, and there is no doubt of the continuing effort these partners will put into the
future development of the area.
It is this well prepared, strategic early intervention and holistic approach that will be remembered in the Winner
Street HERS and must apply to any other local scheme embarked on by the Council.
The scheme’s overall success was due in no small part to constructive and early engagement with all stakeholders
and the highly influential work of the specialist marketing consultant, without whom many of the developments
may not have been made to such a unique and high quality.The site-specific and personal land-use consideration has
encouraged culture to thrive.The combination of imaginative and appropriate shopfront repairs and reinstatements
with the public arts projects has created a place visually rooted in the past, with a community identity thoroughly
connected with the present.
The re-established connection with the past has resulted in a sense of well-being. Economic prosperity, a wider variety
of specialised businesses, reduced crime rates and physical improvements all contribute to the local community feeling
more secure in their environment. Private Sector Housing developments which have not directly received grants
but have come about due to the HERS have attracted a new clientele to the area and make it a more appealing and
convenient location to live.The area has become a more vibrant shopping destination and further marketing of its
assets, including the Palace Theatre, will only continue to have positive results.
The team that came together to deliver this HERS scheme has been on a learning curve throughout this project
and has proved that it has the capacity to deliver successful heritage based regeneration projects. This experience
has led to a successful bid to the Heritage Lottery Fund for the Torquay Waterfront Regeneration THI which is now
approaching its third year.
The lessons learnt during the HERS scheme have been applied to the THI so that it should deliver successful
outcomes.
The Old Paignton Conservation Area within which the HERS area is located, has its own adopted Character Appraisal
which has recently been edited to include many of the developments brought about by the HERS. It is noteworthy
that it has allowed Torbay for the first time to identify new developments as positive enhancements to the character of
the conservation area.
53
conclusions
5.2 Future Activity
It is a high priority in the Business Plan to produce the Management Plan for the Paignton Conservation Areas and
this will ensure the commitment of all stakeholders to the maintenance of the benefits which the HERS scheme has
brought to the area.
The Winner Street HERS aims to date have not been met in full.The Traffic Management Zone continues to cause
access problems to and within the area and there is still a shortage of signage and marketing. Nonetheless, these
problems are being addressed and the commitment to the scheme shown by both the locals and the Council is
essential at a time when momentum is crucial.With no further funding available and a lack of continuing investment,
innovative plans must be sought. Despite this challenge, the scheme has turned the area around, both economically
and socially and its impact is expected to be long-lasting and sustainable.
There are still a number of possible areas of activity which were raised in Mary Mullins Report which have not so far
been taken up. It is hoped that the Winner Street Traders Association will revisit these recommendations and explore
other possibilities for raising the profile of the area.
The enthusiasm and energy shown by the local
community has so far been rewarded by a change for
the better. They deserve to reap the rewards of what
has been achieved and enjoy a sustainable future.
Winner Street through the ages, 1850, 1999, 2006
54
6032/0109
This document can be made available in other languages and formats. For more information please contact 01803 207787

Heritage Economic Regeneration Scheme at

Transcription

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