Church Commissioners
Annual General Meeting
Report of the Church Buildings (Uses and Disposals) Committee
to the Board of Governors for the year to 31 December 2014
1.
Introduction
1.1
The Committee is a statutory committee under the Mission and Pastoral
Measure 2011 (the 2011 Measure) discharging the Commissioners’
responsibilities for church buildings closed for regular public worship. This
usually involves securing a suitable alternative use where possible and, where
not, deciding between the remaining alternatives of preservation by the
Churches Conservation Trust (CCT) or demolition1. Our terms of reference,
objectives and membership are set out in Annex A.
1.2
The Committee met on 5 occasions and also undertook a visit to churches in
the Diocese of Lichfield (and two churches in the Diocese of Hereford).
2.
Review of 2014
2.1
Below we set out progress on the key areas highlighted for 2014:

Securing support of the General Synod for the CCT Funding Order
covering the 2015 to 2018 triennium, while continuing the dialogue with
Government on challenges facing the CCT and its long-term financial
sustainability.
The Committee’s recommendations for financing the Church’s share of
CCT funding were endorsed by the Board of Governors and approved by
General Synod in July. The Payment to the Churches Conservation Trust
Order 2014 came into effect on 1st April 2015. While cuts in public
expenditure continue to impact on the CCT it has benefited from a number
of successful applications to new Listed Places of Worship Repair Fund.

Participating in the work of the Simplification Group which is currently
reviewing church legislation and considering concerns raised by dioceses
about the constraints caused to the mission and growth of the Church of
England by existing canons, legislation, regulations and procedures. This is
intended to bring forward options and proposals for simplification and
deregulation.
1
The Commissioners’ decision is subject to secular planning controls in respect of new uses, possible non-statutory
public inquiries in certain contested demolition cases, and the right to seek Leave to Appeal to the Judicial Committee
of the Privy Council where closure and the future of the building are dealt with in the same scheme.
1
Canon Bob Baker served on the Simplification Group which reported in
November. Among its recommendations were proposals to streamline
current consultation arrangements including removing the requirement for
statutory consultation on alternative uses for closed churches (except
where burials may be affected). It also proposed amending Canon B.14A
to enable the Bishop to direct use of a building for occasional services only
to facilitate “Festival Churches”.

Dealing with a possible increase in contested demolition schemes including
those where the receipt of qualifying objections could result in Non
Statutory Public Inquiries.
While this has not so far materialised, we continue to prepare the
groundwork for bringing forward draft schemes in a small number of cases
where suitable alternative uses have not been secured for listed buildings
and demolition seems the only realistic option.

Devising a strategy to maximise the benefits of the widened scope of the
Closed Church Buildings Support Account and the opportunities this will
provide to enable greater pro-activity and achieve better value in the
disposal of closed church buildings.
The Committee agreed new Rules governing the widened scope of the
CCBSA which can now be used in applying for planning permission and
listed building consent. Case officers are looking to identify suitable
buildings and we look forward to progress in taking forward individual
cases in 2015.

Completion of the series of regional seminars on the theme of Mission,
Ministry and Money aimed at helping dioceses to develop co-ordinated
strategic thinking in conjunction with NCI colleagues.
This has now been completed.

Induction and training for new Committee members.
We held Member training sessions on the 2011 Measure, the public
hearing process and governance. The Lichfield visit also provided an
opportunity to engage with diocesan and local representatives on the
challenges of dealing with closed churches or those facing possible
closure.
3.
Closure of Church Buildings
3.1
During 2014 schemes or orders were made closing 23 church buildings for
regular public worship (consistent with an underlying annual rate of around 25
closures since the mid 1990s). Of these, 5 were Grade II* listed, 9 were
Grade II and 9 were unlisted. While 8 settled the future of the building at the
time of closure, 3 of these also provided for replacement places of worship.
2
Closures included Grade II* Cheetham St John (Diocese: Manchester); Grade II Bemerton St John
(Salisbury;) and unlisted Winnington St Luke (Chester)
3.2
Since 1969 some 1,895 church buildings have closed, including 60 partially
(see Annex B). Although more recent figures are unavailable, over 540 new
places of worship opened by 2006. While this is within an overall context of
some 16,000 church buildings in use in around 13,000 parishes, concerns
remain that the rate of closure may increase sharply, as small, often ageing
congregations facing the daunting task of maintaining historic churches often
in need of major repair and sometimes in sparsely populated parishes. This is
not withstanding the very welcome announcement of the Listed Places of
Worship Roof Repair Fund in the Government’s Autumn Statement.
4.
Settling the future of Closed Church Buildings
4.1
There are often significant challenges in securing suitable uses for closed
churches: many are listed, have historical and community significance and are
surrounded by churchyard. Our regionally based specialist professional
casework team work in close partnership with dioceses, parishes and other
interested parties in securing such uses for most buildings.
Alternative Use
4.2
Sixteen schemes provided for alternative uses (including 6 for residential use, 4
for cultural and community use and 2 apiece for worship by other Christian
bodies and educational use).
Welsh Bicknor St Margaret (Hereford) (on the left) sold for monument use to adjoining landowner;
on the right Blackburn St Philip tower (Manchester) to be sold for use for steeplejack training.
3
Churches Conservation Trust
4.3
Three closed churches vested in the CCT, underlining the importance of our
continuing ability to vest outstanding closed churches for which no suitable use
can be found, thereby relieving parishes and dioceses of responsibility for their
care and maintenance.
Grade II* listed Ayston St Mary the Virgin (Diocese: Peterborough) (on the left) vested in the CCT; while
the £4.9m scheme providing new facilities in the CCT church Bolton All Souls (Manchester) (on the right)
was completed.
Demolition
4.4
Five schemes authorised demolition, including 3 providing a replacement place
of worship. The Committee also agreed in principle to publish schemes
providing for demolition of two Grade II listed closed churches.
4.5
Last year we reported the referral of the proposed demolition of Grade II listed
Birch St Peter (Diocese: Chelmsford) to the Secretary of State for Communities
and Local Government. In July we were informed of the Secretary of State’s
decision to hold a non statutory public inquiry into the contested demolition
proposals but await further details and a date for the inquiry, the first in over 20
years.
Grade II listed Stanley St Peter (on the left) was finally demolished after the Secretary of State decided
not to hold a Non Statutory Public Inquiry ; the Committee approved the proposed demolition of Grade II
listed Eastville St Paul (Lincoln) (right).
4.6
Annex B summarises Schemes made in 2014, while Annex C sets out the
position since 1969.
4
4.7
5.
5.1
The breakdown of current cases at the year end was:
Total cases at 31 December
2014
2013
2012
Pre-closure
Use seeking period
57
76
64
70
56
68
Post scheme/legal/amending scheme
55
51
49
Covenants
Total
40
228
45
230
52
225
Committee visit to the Diocese of Lichfield
On our visit to Lichfield Diocese (and two CCT churches in the Diocese of
Hereford) we saw a number of buildings which exemplified the challenges
faced in sustaining historic churches while promoting mission, including where
there was no PCC or local community to care for the building, and the
pressures this placed on local and diocesan capacity and resources. This
underlined the need for a greater strategic response and for support for those
dioceses seeking to take an overview of their building stock as a first step. It
also highlighted the importance of viewing buildings in the wider context of
mission and ministry and the deployment of resources.
A Diocesan presentation on building issues in Lichfield (on the left); while the CCT outlines plans for
developing Shrewsbury St Mary the Virgin as a Gateway Church (on the right).
5.2
We also visited a selection of CCT churches, ranging from a small, remote rural
building at Linley St Leonard to some of the most highly visited and resource
intensive churches in its estate, including Battlefield St Mary Magdalene and
Shrewsbury St Mary the Virgin (the latter attracting 50,000 to 60,000 visitors
each year and a pilot scheme for the CCT’s Gateway Churches to improve
visitor experience and deepen engagement with the building). This raised
issues about where the strategic focus of the CCT should lie and this will be
explored further with the CCT in the context of the Church Buildings Review.
6.
Public Hearings of Representation Cases
6.1
The Committee held 6 public hearings of representations against draft public
schemes (7 in 2013) all of which provided for alternative use, deciding in 5
5
cases that the draft scheme should proceed and in one that it should not,
requiring further consideration of the future of the building.
6.2
The question of whether it was appropriate to hold public hearings in all cases
was raised and there will be a review of these arrangements in 2015.
7.
Financial Issues
Sale Proceeds
7.1
The amount of net sale proceeds arising from the disposal of closed church
buildings and sites was the highest ever achieved at £10.37 million (around
£7.45m arising from capitalisation of the leases of two London closed
churches).
7.2
Since 1969, just over £62 million has been raised in net proceeds, of which
more than £45.4 million were distributed to dioceses to support the work of the
living Church. A breakdown over the last ten years is provided below2; fuller
details are in Annex E.
Year
Total
£
To
DPA
£
CCT/
TMA
£
2005
2006
2007
2008
2009
2010
2011
2012
2013
2014
2,255,097
1,210,951
2,983,336
3,999,759
1,737,109
1,992,383
1,403,731
1,298,168
1,558,669
10,374,768
1,503,398
807,301
1,989,191
2,666,506
1,158,072
1,328,255
935,621
865,445
1,039,113
6,916,512
751,699
403,650
994,445
1,333,253
579,036
664,128
467,810
432,723
519,556
3,458,256
Closed Church Buildings Support Account
7.3
Funded from the one-third share of net proceeds, the statutory Temporary
Maintenance Account has been held by the Commissioners since 1994 to
assist dioceses in maintaining closed church buildings until their future is
settled. This was renamed the Closed Church Buildings Support Account
(CCBSA) and its scope extended, both to assist directly with use seeking
through obtaining planning permission/listed building consent prior to
marketing, and also to assist with demolition costs in suitable cases, for
example where the site was to be incorporated within the churchyard. An extra
£1 million was made available to the CCBSA.
7.4
The Committee agreed separate Rules relating to the extended scope of the
CCBSA in addition to those applying to grants towards care and maintenance
during the use seeking period. Expenditure from the CCBSA in 2014 amounted
to just over £65,500 (with some £8,600 reimbursed following completion of
sales).
2
The figures for net proceeds provided here do not include monies raised from disposal of closed churches applied
towards new churches or places of worship in the context of replacement schemes pursued under section 58 of the
2011 Measure.
6
Financing the Churches Conservation Trust
7.5
The CCT is funded jointly by the Department for Culture, Media and Sport and
the Church Commissioners and preserves, in the interests of the Nation and
the Church of England, closed churches of particular merit for which no suitable
use is found.
7.6
The Church’s funding order for the next funding period commencing 1 st April
2015 to 31st March 2018 was approved by General Synod in July. The
Church’s grant continues to be frozen at £1.355 million per annum. In the event
that the one-third share of sale proceeds available towards CCT funding
exceeds £0.5 million in any calendar year during the next triennium, the
Commissioners will make an additional payment to the CCT from such
proceeds, up to a maximum additional contribution of £0.15 million during the
triennium.
8.
Looking Ahead
8.1
Key areas for 2015 will include:

Work of the Church Buildings Review Group – The Group appointed by
the Church Commissioners and Archbishops’ Council to consider the
functions carried out nationally relating to church buildings began its work
in January 2015. Andrew Mackie and Ian Watmore represent the
Commissioners on the Group and, with the work being set in the broader
context of the Reform and Renewal agenda, it is hoped this will also
address some of the wider strategic issues regarding church buildings
which have been identified in recent years.

Review of Public Hearing Arrangements - A Pastoral Committee
Working Group (chaired by Andrew Mackie and including Bob Baker) has
been reviewing the arrangements for the Pastoral Committee’s public
hearing of representation cases, in particular the need to hold such a
hearing in every case, irrespective of the number of representors or
relevance of issues raised. The Church Buildings (Uses and Disposals)
Committee will review its own handling of representation cases, including
the scope for a prior sifting of cases to reduce the administrative burden on
the Church.

Non Statutory Public Inquiries - A major item will be the NSPI into the
proposed demolition of Birch St Peter, with other potential referrals
possible before the end of 2015.

Use of the extended scope of the CCBSA - We expect that the new
provisions for using the CCBSA to seek planning permission and listed
building consent will be fully operational next year, marking a further step in
the Commissioners’ more proactive approach to casework.
7
9.
Members and Staff
9.1
At the start of the year the Committee welcomed Margaret Davies, Sally
Muggeridge and Ian Watmore as new Members.
9.2
The Committee was again grateful for the professionalism and expertise of the
staff and for the support which it received during the year.
10.
10.1
The Report
The Committee presents this Report of its work during 2014 to the Annual
General Meeting and invites its consideration.
Andrew Mackie (Chairman)
Church House
Great Smith Street
London SW1P 3AZ
June 2015
8
List of Annexes
A
Committee Terms of Reference and Membership
B
Summary of Schemes Made in 2014 and other Transactions
C
Future of Closed Church Buildings and Sites 1969-2014
D
Analysis of Alternative Uses since 1969
E
Sale Proceeds and Financing the Churches Conservation Trust
9
10
Annex A
Church Buildings (Uses and Disposals) Committee
Terms of Reference
1.
The Church Buildings (Uses and Disposals) Committee is a statutory
committee under the Mission and Pastoral Measure 2011 appointed by the
Board of Governors to conduct such business as is referred to it under these
terms of reference in relation to buildings closed for regular public worship
and related matters.
Membership
2.
The Church Buildings (Uses and Disposals) Committee shall comprise:

the Third Church Estates Commissioner (who shall chair meetings of
the Committee);

four members of the clergy;

four other lay persons;

and any such additional members as the Board shall from time to time
appoint.
A majority of the members of the Committee shall be Commissioners. The
Secretary of State for Culture, Media & Sport shall nominate one member of
the Committee.
Functions
3.
The Committee shall be responsible for:(i)
Subject to (ii) below, the functions of the Commissioners relating to:
(a) closed churches; and
(b) churches in use where this involves exercise of the Commissioners’
power under section 57(17) of the Mission and Pastoral Measure
2011 to ask the Churches Conservation Trust to provide advice in
respect of a church in use whose future is under consideration
(such power to be exercised in conjunction with the Pastoral
Committee).
(ii)
any financial matters (including the administration of any schemes of
grants or loans) assigned to the Committee by the Board subject to
such conditions as the Board may impose.
11
4.
The Committee shall have power to do and complete: (i)
(ii)
5.
Subject to (ii) below all the matters assigned to them under paragraph
3, except the following matters where the Committee shall consider
and report to the Board:(a)
any matters requiring new legislation;
(b)
any matters of general policy; and
(c)
any other matters where the Committee so wish.
Where any representation by way of objection is received by the
Commissioners with respect to a draft pastoral (church buildings
disposal) scheme or to provisions relating to closed churches in a draft
pastoral church buildings scheme where the use of a closed church for
non-Christian religious purposes is proposed; the Committee shall: –
(a)
before considering the representation, consult the Board;
(b)
in determining whether the scheme should proceed
notwithstanding the representation, pay particular regard to the
views expressed by the Board; and
(c)
report its decision to the next following meeting of the Board.
The Committee shall submit to the Board each year a report of its work
during the year.
Quorum
6.
The Committee shall have a quorum of three, at least two of whom shall be
Commissioners.
Agreed by the Board on 19 April 2012
12
Church Buildings (Uses and Disposals) Committee
Membership during 2014
Andrew Mackie
(Chairman and Third Church Estates Commissioner)
The Reverend Stephen Trott
(Deputy Chairman)
April Alexander
The Reverend Canon Bob Baker
The Reverend Canon Peter Cavanagh*
John Steel*
The Reverend Simon Talbott*
Sally Muggeridge (from January 2014)
Ian Watmore (from January 2014)
Margaret Davies (nominated by the Department of Media, Culture
and Sport)* (from January 2014)
* Non-Commissioner
Main Objectives
The Committee oversees the delivery by the Closed Churches Division of its main
objectives to determine the future of closed church buildings as laid down by the
Mission and Pastoral Measure 2011, securing a suitable alternative use in as
many cases as possible and thereafter arranging for the best churches to be
preserved. To these ends, the Division:(a) works with dioceses, the Church Buildings Council’s Statutory Advisory
Committee (SAC), English Heritage and local planning authorities to secure
suitable alternative uses for closed churches, providing all necessary
guidance and encouragement.
(b) works with the SAC, the Department for Culture, Media and Sport (DCMS)
and the Churches Conservation Trust (CCT) to ensure the preservation of
the most meritorious closed churches for which no suitable uses can be
found, taking full account also of financial and pastoral implications;
(c) provides for the demolition of those closed churches for which suitable
uses are not found and which are not vested in the CCT; and
(d) carries out these and other divisional functions as economically as is
consistent with providing a high quality service.
13
14
Annex B
Church Closures 1969-2014
120
100
80
60
40
20
0
1969
1974
1979
1984
Closures
1989
1994
1999
2004
2009
2014
5 Year Rolling Average
Summary of Schemes Made in 2014
In 2013, 24 schemes (21 in 2013) were made to settle the future of closed church
buildings, of which:
 23 made initial provision for the future of buildings;
 3 amended earlier schemes;
 16 provided for alternative use;
 3 provided for preservation in the CCT;
 5 provided for demolition (1 of which included replacing of the old church)
Of the 23 schemes making initial provision for a building, 8 were at the time of
closure, 5 within 2 years, 6 between 2 and 4 years, and 4 over 4 years after
closure.
The most common new uses provided for in schemes made were: residential (6),
cultural and community use (4), educational (2) and worship by other Christian
bodies (2).
15
16
Annex C
Futures of closed church buildings and sites settled 1969 to 2014
The futures of 1,902 former church buildings or sites have now been settled under
the Mission and Pastoral Measure3 since 1969 (including 68 closed under earlier
legislation, for which an amending scheme has made new provision and 94 sites
of churches demolished other than under the Measure). In addition 20 closed
churches have been restored to parish use during this period, while 4 others have
been subject to Compulsory Purchase Orders.
Over the whole period alternative uses have been found for well over half of all
closed churches dealt with (this proportion has been steadily increasing; between
2000 and 2014 alternative uses were found for over 77% of churches whose
futures were settled by scheme).
The Table below sets out the current authorised futures for closed church
buildings dealt with under the legislation4.
Future of Closed Churches 1969-2014
3
These statistics relate to schemes brought into effect and Deeds of Variation.
The Table includes the sites of the 94 church buildings demolished other than under the Mission and
Pastoral Measure (including 4 demolished following closure under the Measure but not by scheme). It
excludes those closed churches subsequently restored to parish use and those subject to Compulsory
Purchase Orders. Where provision has been made more than once for a building, only the latest authorised
outcome is shown, including where this has been provided for by Deed of Variation following disposal of the
freehold.
4
17
18
Analysis of Alternative Uses since 1969
Annex D
Alternative Uses
Adjuncts to adjoining estates
Arts, crafts, music or drama
Civic, cultural or community
Educational
Light industrial
Monument
Museums
Office or shopping
Other
Other church related
Private and school chapel
Residential
Sports
Storage
Worship by other Christian bodies
6
34
149
36
8
150
17
59
5
74
26
300
13
20
169
Sub Total
(inc 15 partial)
(inc 1 partial)
(inc 1 partial)
(inc 1 partial)
(inc 20 partial)
(inc 1 partial)
1,066 (inc 39 partial)
Preservation
Churches Conservation Trust
Diocesan Boards of Finance
Secretary of State
347
5
4
Sub Total
356
Demolitions and Site Disposals
The pattern of site disposals for closed church buildings which have been or are in the course of
being totally demolished (including 16 demolished under faculty) is as follows:Additions to Churchyards
Housing Associations
Local Authorities
New Places of Worship
Other Community Purposes
Other purchasers
Not yet decided
53
83
70
64
31
169
10
Sub Total
480
Grand Total
1,902
19
20
F R O M T H E C H UR C H
Church To tal
Fro m the Church
Co mmissio ners
Sale pro ceeds
F R OM T H E ST A T E
To tal Grant
Fro m the DCM S
Church
State
5th Quinquennium
and 1st triennium
(1989-97)
£
2nd Triennium (19972000)
£
3rd Triennium
(2000-2003)
£
4th Triennium
(2003 to 2006)
£
5th Triennium
2006 to 2009
£
6th Triennium
2009 to 2012
£
7th Triennium
2012 to 2015
ANNEX E
4th Quinquennium
(1984-94)
£
FINANCING THE CHURCHES CONSERVATION TRUST
1st and 2nd
Quinquennium (1969- 3rd Quinquennium
79)
(1979-84)
£
450,000
1,350,000
900,000
£2,900,000
1,450,000
483,000
1,450,000
967,000
£7,010,446
4,206,268
919,848
2,804,178
1,884,330
30%
70%
£22,668,580
15,888,006
2,716,000
6,780,574
4,064,574
30%
70%
£10,624,285
7,437,000
1,007,188
3,187,285
2,180,097
30%
70%
£12,612,000
8,829,000
697,585
3,783,000
3,085,415
30%
70%
£12,729,305
8,872,162
1,559,136
3,857,143
2,298,006
30%
70%
13,088,294
9,161,806
2,911,488
3,926,488
1,015,000
31%
69%
13,219,938
9,154,758
1,362,560
4,065,180
2,702,620
33%
67%
12,154,000
8,089,000
2,495,000
4,065,000
1,570,000
£
900,000
40%
60%
£
£2,250,000
50%
50%
84.4%
88.5%
94.3%
919,848
483,000
350,000
100,000
13.3%
15.6%
11.5%
5.7%
6,917,293
3,086,729
3,038,711
1,740,421
100.0%
100.0%
100.0%
100.0%
£
60%
40%
T o tal
86.7%
14.1%
40.4%
34.0%
34.4%
30.9%
49.4%
28.0%
20.4%
100.0%
100.0%
100.0%
100.0%
100.0%
100.0%
100.0%
100.0%
1,200,000
1,516,000
1,007,188
697,585
1,559,136
2,911,488
1,362,560
2,495,000
14,601,806
N O T E : A ll ye a rs a re 1 A pril - 3 1 M a rc h
8,503,359
(c )
3,747,968
(d)
2,964,450
(d)
2,028,128
(d)
5,037,783
(e)
5,891,167
(f)
4,872,686
(d), (g)
12,230,872
(d)(h)
60,059,567 (c ), (e), (f),(g) &(h)
85.9%
59.6%
66.0%
65.6%
69.1%
50.6%
72.0%
79.6%
T o C hurc he s C o ns e rv a t io n
£
A P P LIC A T IO N O F S A LE P R O C E E D S O F C LO S E D C H UR C H B UILD IN G S
T o D io c e s a n P a s t o ra l A c c o unt s
£
£
1969-74
(a)
1,149,810
(b)
490,611
1,640,421
1974-79
(a)
2,004,820
(b)
683,891
2,688,711
1979-84
(a)
2,041,366
(b)
562,363
2,603,729
1984-89
(a)
4,271,099
(b)
1,726,346
5,997,445
1989-94
(a)
5,965,228
(b)
1,338,131
7,303,359
1994-97
(a)
2,231,968
2,231,968
1997-2000
(a)
1,957,262
1,957,262
2000-03
(a)
1,330,543
1,330,543
2003-06
(a)
3,478,647
3,478,647
2006-09
(a)
2,979,678
2,979,678
2009-12
(a)
3,510,126
3,510,126
2012-15
(a)
9,735,872
9,735,872
T o t a ls
45,457,762
( a ) T o t he D P A - 2 / 3 rds o f pro c e e ds
( b) S urplus dis t ribut e d by C hurc h C o m m is s io ne rs ( pa rt o f 1/ 3 rd pro c e e ds , plus int e re s t )
( c ) E xc lude s £ 2 5 0 ,0 0 0 t ra ns f e rre d f o r t he C lo s e d C hurc h B uilding S uppo rt A c c o unt
( d) Inc lude s s urplus s a le pro c e e ds ( plus int e re s t ) f ro m pre v io us f unding pe rio d a pplie d t o wa rds t he wo rk o f t he
C C T in t he f o llo wing f unding pe rio d.
( e ) E xc lude s a f urt he r £ 2 0 0 ,0 0 0 t ra ns f e rre d f o r t he C lo s e d C hurc h B uilding S uppo rt A c c o unt
( f ) E xc lude s a f urt he r £ 2 5 0 ,0 0 0 t ra ns f e rre d f o r t he C lo s e d C hurc h B uilding S uppo rt A c c o unt
( g) E xc lude s a f urt he r £ 4 0 0 ,0 0 0 t ra ns f e rre d f o r t he C lo s e d C hurc h B uilding S uppo rt A c c o unt
( h) E xc lude s a f urt he r £ 1,0 0 0 ,0 0 0 t ra ns f e rre d f o r t he C lo s e d C hurc h B uilding S uppo rt A c c o unt
21