Buildings at Risk in Wales Cadw is the Welsh Assembly Government’s historic environment service, working for an accessible and well-protected historic environment for Wales. Cadw is proud to celebrate a quarter century of active conservation and promotion of Wales’s historic environment in 2009. Cadw, Welsh Assembly Government, Plas Carew, Unit 5/7 Cefn Coed, Parc Nantgarw, Cardiff CF15 7QQ Tel 01443 33 6000 Fax 01443 33 6001 www.cadw.wales.gov.uk ISBN 978-1-85760-276-0 © Crown Copyright 2009 Cover photograph: Dolbelydr, a grade II* listed late sixteenth-century gentry house near St Asaph, Denbighshire, following a successful programme of conservation and restoration by the Landmark Trust with grant from Cadw. © Barry Hamilton. Introduction For many years Cadw has funded local planning authorities across Wales to survey their stock of listed buildings and to prepare a register indicating which of these buildings — of all grades — are at risk. A grant covering eighty per cent of the cost of the survey by an outside provider is offered, provided that the survey records a minimum of information according to a template designed by Cadw. As a result, as of October 2009, all authorities bar one have a Buildings at Risk Register. Most of the local authority surveys were undertaken by The Handley Partnership. In 2007 Cadw commissioned them to prepare a baseline evaluation report which brought together the information from the local authority registers. This information was updated in 2008 and is presented in the following summary report. Although the report focuses on the findings of the local authorities that employed The Handley Partnership to undertake their survey, the results are generally consistent across all twenty-five local planning authorities. Cadw has commissioned this report to identify trends and to inform future actions. It is hoped that local planning authorities will use it as a tool when considering their priorities and future strategies for listed buildings in their area. The publication of this summary report is one of the actions highlighted by the Minister for Heritage, Alun Ffred Jones AM, in his Strategic Statement on the Historic Environment of Wales of September 2009. A separate report covering listed chapels at risk will follow. In addition, the Strategic Statement commits Cadw to commissioning an all-Wales buildings at risk survey programme in 2010. The results of this survey will not only be of assistance to local planning authorities in the exercise of their duties and functions but will also help Cadw — and others — in considering the future direction and targeting of grant schemes. Sker House in Porthcawl, Bridgend, was rescued from dereliction by the Buildings at Risk Trust. It was fully repaired and restored and is now a private home. © Chris Jones-Jenkins. Buildings at Risk in Wales 3 Overview ➚ Trend arrows A red arrow shows an undesirable trend and a green arrow shows a desirable trend. A black arrow shows the numerical trend for cases where a rise or fall is not important, for example, for non-usable structures. The direction of the arrow denotes an increase or a decrease in the value. By applying the percentage values to the full stock of listed buildings in Wales the following approximation as to the number in each group can be made: Number of buildings At risk — 2,882 Vulnerable — 5,145 Not at risk — 21,869 Analysis of risk status of listed buildings (2007 versus 2008) At risk (%) List grade Vulnerable (%) 2007 2008 5.75 6.00 7.74 7.55 II 10.45 9.88 All grades 10.16 9.64 I II* (1) Trend ➚ ➘ ➘ ➘ 2007 2008 19.73 18.44 17.26 17.89 17.47 17.14 17.47 17.21 Not at risk (%) Trend ➘ ➚ ➘ ➘ 2007 2008 74.52 75.56 75.00 74.56 72.08 72.98 72.37 73.15 Trend ➚ ➘ ➚ ➚ Analysis of condition profile of listed buildings (2007 versus 2008) List grade I Very bad (%) Poor (%) Fair (%) 2007 2008 Trend 2007 2008 Trend 2007 0.82 0.67 1.71 1.48 II 1.95 1.77 All grades 1.91 1.73 II* (1) ➘ ➘ ➘ ➘ 6.03 6.00 9.07 8.92 11.13 10.38 10.89 10.19 ➘ ➘ ➘ ➘ Good (%) 2008 Trend 41.10 37.56 43.59 43.44 41.71 40.90 41.84 41.02 ➘ ➘ ➘ ➘ 2007 2008 Trend 52.05 55.78 45.62 46.17 45.21 46.96 45.36 47.06 ➚ ➚ ➚ ➚ Analysis of occupancy profile of listed buildings (2007 versus 2008) Vacant (%) List grade 1 Grade II* buildings are considered to be more important than grade II buildings. There is, however, clear evidence that their condition and use levels do not always reflect their importance. This group may need a new approach to provide adequate protection in the future. 4 Buildings at Risk in Wales Partly occupied (%) 2007 2008 Trend 2007 2008 Trend I 3.56 3.33 II* (1) 4.57 4.65 II 4.75 4.50 All grades 4.70 4.49 ➘ ➚ ➘ ➘ 5.75 6.00 9.33 9.03 9.42 9.53 9.34 9.43 ➚ ➘ ➚ ➚ Fully occupied (%) Structure (%) 2007 2008 Trend 2007 59.73 59.56 30.96 31.11 70.56 70.40 65.47 65.47 65.80 65.75 ➘ ➘ ➙ ➘ 2008 Trend 15.55 15.92 20.36 20.49 20.16 20.34 ➚ ➚ ➚ ➚ Risk status There has been little significant change in the overall risk status. However, this does not mean that there have not been significant changes at a local level or in certain building groups. Care must be taken in interpreting the figures to avoid missing underlying trends which can be masked by overall changes. For example, it may be that new buildings are becoming at risk as quickly as others are rescued. A more detailed assessment of the data would suggest that commercial development has played a very large part in removing buildings from the ‘at risk’ list. Given the current change in economic circumstances, this mechanism cannot be relied on to further reduce risk in the next few years. Condition profile Again, there has been little apparent change in the overall condition profile. Where changes have occurred, these tend to suggest a slight improvement. Although not included in the data, it has been noted that, in very recent times, a reduction in some routine maintenance may be taking place. This may be masked by looking only at the overall profile which will include buildings which were in a very poor condition and which have been rescued. Occupancy profile2 Much of the change in this profile relates to new buildings added to the sample. That said, any falls in levels of full or partial occupancy do give cause for concern. Occupancy levels need to be closely monitored in the future. It is often the case that buildings become at risk as a result of disuse. This can be true, but often falling conditions due to a lack of maintenance can result in lower and lower levels of use, leading in time to complete disuse. This again points to the need for close monitoring and promotion of maintenance as a way to keep buildings in use. Yr Hen Siop in Tretio, Pembrokeshire — an eighteenthcentury vernacular cottage before (above) and after (above left) restoration using traditional methods. 2 The way in which buildings decline is complex. It is believed that, in general, their condition declines following loss of use. This is the case, but the data would also show that an ongoing reduction in use also follows from a lack of maintenance. It is difficult to bring a disused building back into use in an accessible way, but dealing with the maintenance backlog before disuse occurs may be able to play a key part in reducing long-term risk levels. Buildings at Risk in Wales 5 Potential rate of change in condition No significant decline 40.05 Slow rate of decline 15.60 Very slow rate of decline 12.91 Little or no decline 11.10 Short-term action required 9.89 Medium-term action required 4.69 Rapid decline likely 3.17 Complete loss possible 1.32 Rate of decline may increase 1.26 0 10 20 30 40 50 % of total stock Changes over time and action profiles Troedrhiwfallen, Cribyn, Ceredigion, before (top: © Tim Jones) and after (bottom: © Greg Stevenson) restoration which included the reinstatement of a thatched roof. 1 At the current time the way in which the buildings at risk data is collected is based on the requirements of local authorities. There is a strong case for putting a national reinspection plan in place to ensure consistent data and a regular resurvey period. 6 Buildings at Risk in Wales Due to the way in which the data has been collected to date it can be difficult to draw conclusions as to the way the levels of risk have been changing over time.1 A more structured ongoing survey can deal with this issue and will also enable a more detailed forward prediction to be made. By looking at compatible data for areas of the country over the last ten years, it is possible to make some initial comments on the changes over time. Over the last ten years levels of risk across Wales appear to have fallen slightly (by around 1 to 1.5 per cent). In particular areas the changes have been far more significant (a decrease of up to 5 per cent). This shows the clear variation over the country and reflects the fact that, while a national picture is valuable, the levels of risk and vulnerability can be very different at a local level and for different building types. To deal with the problems a ‘kit of tools’ rather than a single approach is required. Due to resource limitations the level of proactive action by local authorities has, in general, been low. Whilst resources will continue to be limited, by making use of the data now available and by applying an agreed set of action priorities, more can be achieved than has been the case to date. Additionally, national grant schemes such as the redundant rural building grant can play an important part by both funding work and by raising the profile of building groups most at threat. The recent increases in property prices have led to pressure to redevelop many ‘at risk’ and ‘vulnerable’ buildings. There is a clear link in the reduction in risk levels and the rise in property values over recent years. Of course, it may also follow that the changes in the housing market will lead to a similar reduction in development activity in the next few years. This may mean an increase in ‘At risk’ and house price index 1.2 1.1 Index 1 0.9 0.8 0.7 0.6 0.5 0.4 1999 2000 2001 2002 2003 2004 2005 2006 2007 Year ‘At risk’ index Dolbelydr during conservation and restoration: the original floor beams were retained where possible; a roof truss being lowered into position; the new roof timbers in situ. © Landmark Trust. House price index levels of risk and this will add to the pressure for prioritized action2 by all authorities. The chart above shows the link between rising property prices and falling risk3. There is no doubt that this is not the only factor at work, but the pressure for development sites could have played a part in 60 to 70 per cent of the reduction in risk over the period shown. The data used to calculate the ‘at risk’ index compares change over time for groups of buildings in particular areas. From this data it can be seen that overall levels of risk in the full stock have reduced (as shown in the overview tables), but the index shows that the rate of this reduction is slow and and may now have reversed. Data collected during the cyclic reinspections over the next one to two years will allow this to be investigated further. In general, the rate of change of condition of all listed buildings is slow or very slow (see graph showing the potential rate of change in condition on page 6). This means that there is almost always time to adequately prioritize action to make a difference in the future. 2 Due to the limited resources available at a local level, prioritized action plans are essential if real progress is to be made. The way in which The Handley Partnership has collected the buildings at risk data means that, provided the action priorities and required outputs are defined locally or nationally, the prioritized action list can be generated with little further input by conservation staff. 3 There are many reasons why buildings change in condition. Further work is ongoing to identify these. It is clear, however, that in recent times commercial activities have played a major part. Buildings at Risk in Wales 7 In the case of vulnerable buildings over 60 per cent of the defects present relate in one way or another to a deficit in maintenance. Over time, without intervention, the condition will worsen and the rate of decay will increase. However, all of the evidence available suggests that, in general, the rate of decay is relatively slow1 and it can be turned around with well planned interventions. Around 20 per cent of vulnerable buildings do, however, need attention in the short term. For this group a combination of work to the building and an intensification of use is often required. Dealing with these vulnerable buildings in the short term will have a real effect on reducing the number of buildings at risk in future years. The condition and action profile for the ‘at risk’ buildings is very different to that for the ones considered to be vulnerable. That said, in many cases, the progression from vulnerable to ‘at risk’ can be identified. A lack of maintenance over a long period and a reduction in use levels clearly lead to a poor condition, a need for major repairs or replacement of numerous elements and possible structural failure. Dealing with buildings at this stage is difficult and potentially expensive. There is clear evidence, as noted above, that over recent years much of this type of activity has been carried out commercially. It is not clear if this will continue over the next few years. In planning the best way forward to bring about a reduction in risk and vulnerability in the stock of buildings, timing is important. The surveys carried out to date in many parts of the UK show that buildings at risk can be rescued, but often during this time further buildings have become at risk.2 This means that over the long term there is a chance that there will be little reduction in risk in real terms. Condition/defect profile (%) Condition/defect group 8 At risk Vulnerable Not at risk No significant work needed 0.00 0.95 54.53 Secondary item maintenance needed 0.20 9.39 12.94 Reduced maintenance levels 0.71 11.80 14.78 Maintenance backlog building up 3.51 37.07 12.15 Serious lack of maintenance 3.51 11.18 3.65 Ongoing steady decline 9.00 11.07 1.54 Full refurbishment required 7.38 6.56 0.19 Major repairs needed to many areas 20.76 9.39 0.21 Some critical items need replacement 9.55 1.94 0.01 Many items need replacement 12.87 0.53 0.00 Very poor condition 18.78 0.13 0.01 Structurally unsound 13.69 0.00 0.00 Buildings at Risk in Wales Allt-y-Bela, in Monmouthshire, was once at severe risk, but has been rescued and returned to residential use through a programme of repair and restoration by the Spitalfields Trust. 1 The rate of change in most buildings is slow. This means that there is generally time to put an action plan in place before further significant decay has occurred. This should not, however, be used as a reason for deferment. Such a course of action will lead to little long-term reduction in risk. 2 Dealing with ‘at risk’ buildings alone is unlikely to lead to a long-term and sustainable reduction in the number of buildings at risk, as new buildings can appear on the register as others are removed. It is often difficult to accurately assess the rate of decay of a building but a coarse approximation can be made. The likely future rate of decay of the vulnerable buildings is not the same for all buildings in the stock. In many cases action is required in the medium to long term, which gives a huge opportunity for plans to be put in place which can make a real difference. Those buildings in the vulnerable group which need short-term intervention are likely to form the next group of buildings to become at risk. Identification of this group allows formulation of action plans for them. In many cases, these do not need significant resources, but instead may lean towards identifying ways to increase future use and putting these in place before it is too late. Rates of decay for the buildings currently at risk are very difficult to predict as their condition often means that, for example, a storm or other single event can lead to significant further loss. Sixty per cent of the ‘at risk’ buildings need action in the short term to prevent further decay. It should be borne in mind that, whilst this is a high percentage, the action required may often be small, for example, urgent works to make buildings safe or weather-tight may be all that is required to slow the decline to a manageable level. Rate of change profile (%) Rate of change group At risk Vulnerable Not at risk No significant decay 0.00 0.95 54.58 Little or no decay 0.20 0.00 12.94 Very slow rate of decline 0.71 9.39 14.78 Slow rate of decline 3.51 37.07 12.15 Medium-term action required 8.76 12.52 2.31 Short-term action required 31.89 25.67 3.28 Rate of decline may increase 9.55 1.94 0.01 Rapid decline likely 31.65 0.66 0.01 Complete loss possible 13.69 0.00 0.00 The Shell House at Cilwendeg, near Boncath, Pembrokeshire. The dilapidated interior of the garden building before its restoration; repairing and recreating the details of the shell- and bone-work; the interior of the Shell House following restoration; the exterior of the Shell House. © Roger Clive-Powell. Buildings at Risk in Wales 9 10 Buildings at Risk in Wales 100% % of buildings in type group At risk 80% 60% Vulnerable 40% Not at risk 20% er cia l m Co m l vic Ci io na uc at Ed c io us Re lig l ta es ti D om l ita Co as H os p e ur ns nit Tr a ur St re et f po rt io n er Fo rt O ific at th en t ry ing da on um M W at Bo un er bu ild de n G Pr ar oc es s g y din ar bu il O ut ur icu lt Ag r An cil li al an t al tr i Va c us Ind Ex tr a ct ive 0% % Distribution of ‘at risk’ and vulnerable buildings (2008) 25% At risk 20% 15% Vulnerable 10% 5% of the ‘at risk’ and vulnerable domestic buildings are farmhouses.3 This again confirms the need to take account of the changes in agricultural land use patterns in devising a plan for all farmstead structures. 1 The upper chart shows the risk distribution in each building type group, for example, 54 per cent of ‘Extractive’ buildings are at risk. The lower chart shows how risk and vulnerability are distributed across the whole stock, for example, of all the buildings at risk 19 per cent are domestic buildings. ss uc at io na l H os pit al Co as ta l Ed ce Pr o Ci vic n rt ific at io din g Fo ry lia bu il W at er cil An re Va ca nt nit u en ar d St re et fu r G t io us Ind us tri al Co m m er cia l Ex tra ct ive lig Re t ns po r Tr a en r th e on um M O y ar din g un d Bo ra l ult u ut bu il O Ag r ic om es tic 0% D The overall stock of listed buildings is made up of a wide range of buildings and structures. Each of these face different threats and present different opportunities. Any action plan must take into account the different issues each type of building presents. The levels of risk and vulnerability vary greatly with each building type. It can be seen that some building types have very high levels of risk.1 This may, in part, follow on from changes in the way that buildings are used. However, in many cases, although a high proportion of buildings in a certain group may be at risk, this only represents a small proportion of the overall stock of listed buildings. The building type data is useful in deciding priorities. For example, if a small type group has a high proportion of ‘at risk’ or vulnerable buildings, then it may be appropriate to target action towards the best examples in the group in order to ensure preservation of a representative sample for the type.2 Alternatively, to tackle overall levels of risk, efforts are best targeted towards the building types which represent the larger parts of the overall stock. The data would, at this stage, suggest that a mix of the promotion of maintenance, together with group- and area-specific actions, would be appropriate. In particular, a more targeted plan is required to deal with agricultural and ancillary buildings. Given the changes in land use, an imaginative approach regarding future use may be needed, if sustainable uses are to be found for these buildings. A failure to adopt such an approach may mean that the resources required to deal with the issues are simply not available. The majority of the vulnerable and ‘at risk’ buildings are domestic in nature. This reflects the fact that such buildings represent around 43 per cent of the full stock. It should be noted, however, that over 60 per cent Risk distribution by building type group (2008) % of total in stock Building types 2 For some building types, particularly unoccupiable structures, there may be no reasonable use in the future. In such cases retention of all such buildings may be very difficult. Targeted preservation of the best examples, together with thorough recording may be the best option. 3 The original use for many agricultural buildings has gone or changed in such a way as to make the buildings unsuitable. Often owners and occupiers of such buildings find investment for buildings with no economic use very difficult to justify. Spatial plan areas Wales is divided up into six spatial plan areas. The areas have fuzzy, or overlapping, boundaries and they are a good base for regional analysis. Each of the listing buildings, for which data is available, has been added to the relevant plan areas to provide the summary data shown below. Analysis of risk status of listed buildings Spatial plan area3 At risk (%) Vulnerable (%) Not at risk (%) 2008 2008 2008 North-West Wales1 9.61 North-East Wales 9.93 Central Wales 1 ➘ ➚ ➚ ➘ ➚ ➘ 10.00 2 Pembrokeshire Haven2 Swansea Bay Compared to all Wales 8.31 10.77 2 South-East Wales 8.63 All Wales 9.64 Compared to all Wales 17.83 18.20 17.76 15.55 20.03 16.62 17.21 ➚ ➚ ➚ ➘ ➚ ➘ Compared to all Wales 72.54 71.86 72.24 76.14 69.20 74.74 73.15 ➘ ➘ ➘ ➚ ➘ ➚ Analysis of condition profile of listed buildings Spatial plan area3 Very bad (%) Poor (%) 2008 2008 North-West Wales1 1.93 North-East Wales1 2.30 Central Wales2 1.80 Pembrokeshire Haven 1.13 Top: Whiteford Lighthouse, Burry Estuary, Gower, is recorded as ‘vulnerable’ in the buildings at risk register. Above: Navigation Colliery, Crumlin, Caerphilly, is a fine example of a group of coalmining buildings at risk. Swansea Bay 1.67 South-East Wales 1.31 All Wales 1.73 Compared to all Wales ➚ ➚ ➚ ➘ ➘ ➘ 9.34 9.91 11.71 7.72 9.88 8.90 10.19 1 The data for the county of Denbighshire is due for update in the short term. 2 The data for the county of Ceredigion is due for update in the short term. The data for the county of Powys is currently being updated. Fair (%) Compared 2008 to all Wales ➘ ➘ ➚ ➘ ➘ ➘ 41.46 42.40 43.52 36.73 39.17 39.04 41.02 Good (%) Compared 2008 Compared to all Wales to all Wales ➚ ➚ ➚ ➘ ➘ ➘ 47.27 45.39 42.97 54.42 49.27 50.76 47.06 ➚ ➘ ➘ ➚ ➚ ➚ 3 For areas where data is not available on a compatible basis an approximation for the spatial plan area has been made. In general, this is felt to be valid, but the summary information will be updated as new compatible survey data is added to the main sample. Buildings at Risk in Wales 11 Old Farmhouse, Waen Farm, St Asaph, Denbighshire — the agricultural building (originally a sixteenth-century timber-framed house and later, a yeoman farmer’s house) was in a parlous condition before it was restored to serve as a farmhouse. Clear differences can be seen between the spatial plan areas. The differences in levels of risk and vulnerability represent a mix of variations in the occupancy levels and building condition. The tables adjacent rank the areas by reference to key indicators. Analysis of occupancy profile of listed buildings (%) Spatial plan area3 2008 North-West Wales1 5.80 North-East Wales1 4.62 Central Wales2 4.39 Pembrokeshire Haven 3.75 Swansea Bay 5.86 South-East Wales 3.61 All Wales 4.49 Area 1 The CEF score of a building is a score between 0 and 100 which takes into account the condition of all of the elements within the building and its occupancy.The score uses a weighting system to reflect the relative importance of certain items and the combination of defects which may be present. High scores denote buildings with few problems and low scores identify those most in need of urgent action. 2 The Risk Cat is a score reflecting the risk status of the building: 1 to 3 — at risk; 4 — vulnerable; 5 or 6 — not at risk Vacant Partly occupied Compared to all Wales ➚ ➚ ➘ ➘ ➚ ➘ 2008 Compared 2008 to all Wales ➚ ➚ ➚ ➘ ➘ ➘ 10.74 9.46 10.26 8.68 7.92 8.19 9.43 Mean CEF1 Score Ranking Fully occupied Structure Compared to all Wales 62.99 65.35 67.39 66.31 56.75 66.17 65.75 Area ➘ ➘ ➚ ➚ ➘ ➚ 2008 Compared to all Wales 20.48 20.57 17.96 21.27 29.46 22.03 20.34 Mean Risk Cat2 Ranking Pembrokeshire Haven 86.40 Pembrokeshire Haven 5.09 South-East Wales 84.98 South-East Wales 5.06 Swansea Bay 83.99 North-West Wales 4.98 North-West Wales 83.22 North-East Wales 4.95 North-East Wales 81.10 Central Wales 4.94 Central Wales 80.02 Swansea Bay 4.91 Cadw, Welsh Assembly Government, Plas Carew, Unit 5/7 Cefn Coed, Parc Nantgarw, Cardiff CF15 7QQ Tel: 01443 33 6000 Fax: 01443 33 6001 Web: www.cadw.wales.gov.uk 12 Buildings at Risk in Wales ➚ ➚ ➘ ➚ ➚ ➚