'Gateway' Methodology - Stages of heritage-led regeneration

INHERIT
GATEWAY METHODOLOGY / STAGES OF HERITAGE-LED REGENERATION
Each member / city of the INHERIT network is at a different stage in the regeneration
process. The identification of ‘Stages of Heritage-Led Regeneration’ or a ‘Gateway
Methodology’ provides a potential framework for improving each city’s understanding of
the structures and processes involved in successful heritage-led regeneration, as well as
giving a basis for the work of INHERIT.
1. BACKGROUND
2. DETAILED AUDIT
i. Heritage Resource and Heritage Issues
ii. Environmental Issues
iii. Economic Issues
iv. Social Issues
v. Cultural Issues
3. STRATEGY
i. Civic Vision
ii. Programme Timescale
iii. Funding Package
iv. Themes of Heritage-Led Regeneration
a) Strategic Aims and Objectives
b) Identification of Goals and Outputs
4. PROJECT STRUCTURE
i. Project / Partnership Board
ii. Partners
iii. Project Team
5. PROJECT IMPLEMENTATION
i. Individual Projects / Initiatives under ‘Themes of Heritage-Led Regeneration –
Strategic Aims and Objectives’ Identified in Stage 3
ii. Promotion and Marketing

6. MONITORING / EVALUATION
i. Regular Monitoring of the Regeneration Process against the ‘Themes of
Heritage-Led Regeneration – Identification of Goals and Outputs’ Identified in
Stage 3
ii. Independent Evaluation of the Success of the Regeneration Process
iii. Promotion of the Success of the Project
7. FORWARD STRATEGY AND MAINTENANCE – SUSTAINABLE
REGENERATION
i. Forward Strategy Following Completion of the Regeneration Process
ii. Maintenance Charter
APPENDIX 1
LESSONS LEARNT FROM THE GRAINGER TOWN PROJECT –
IDENTIFICATION OF GOOD PRACTICE IN HERITAGE-LED REGENERATION

INHERIT GATEWAY METHODOLOGY / STAGES OF HERITAGE-LED
REGENERATION IN GRAINGER TOWN, NEWCASTLE UPON TYNE.
1 BACKGROUND
“Two things which the eye can see and the aesthetic sense appreciate, distinguish
Newcastle from Leeds or Bradford or Sheffield or any other industrial city of the North, one
is the river the other Richard Grainger…In what way Grainger’s work forms a special
distinction needs nowadays hardly be emphasised. He gave the whole centre of the town
a dignity and orderliness which even the twentieth century has not succeeded in
destroying” (Grundy et al, 1992, p 408).
Grainger Town covers approximately 90 acres and comprises a complex mix of buildings
and spaces for office, retail, residential, leisure and cultural uses. It takes its name from a
series of elegant streets of ‘Tyneside Classical’ architecture, including Grey Street, which
was described by Pevsner as ‘one of the finest streets in England’, that were conceived as
a whole and built by Richard Grainger between 1834 and 1839. The area also includes a
Mediaeval 13 th century Dominican Friary, remnants of the old Town Walls and many fine
Victorian Buildings.
The area possesses a richness of character and is an asset of international importance
that is quite unique. Virtually all of it is included within Newcastle’s Central Conservation
Area, one of the first to be designated in England (1968). Within the area 244 (40%) of its
640 buildings are listed as being of special architectural or historic interest, of which 20%
are grade I and 12.5% are grade II*. The majority of the buildings are in private
ownership.
Although innovative in its day, by the 1990’s Richard Grainger’s legacy was in poor shape.
A study carried out in 1992 concluded that the area was exhibiting all the classic
symptoms of urban decay and calls for selective clearance of listed properties and whole
streets were widespread.
A programme of conservation-led property development and environmental enhancement
had been introduced in 1993 involving Newcastle City Council and English Heritage. This
had tackled many of the worst buildings at risk and had started to halt the spiral of decline
by utilsing the area’s rich architectural assets. However, in 1996 both parties, along with
English Partnerships, agreed that the area could no longer be left to take care of itself and
must develop a new role in the context of the changing structure of Newcastle as a
European Regional Capital. Although it was generally acknowledged that Grainger Town
possessed the potential to power the engine for the City’s economic growth, the real issue
was how to manage the regeneration in such a way which respected the past but secured
its long term future.
In 1996 consultants EDAW were commissioned to produce a regeneration strategy for
Grainger Town and to prepare a bid for Government funding. An ‘in depth’ analysis of the
area’s problems was immediately undertaken which included a detailed building audit.
The consultants recognised that Grainger Town represented a complex urban system and
that its revival must be tackled in a ‘holistic’ way which respected its fine grain nature.
They produced a ‘civic vision’, which reflected the aspirations for Grainger Town.

This vision was endorsed by all parties and arrangements were put in place to realise it
through a six year (April 1997- March 2003) £120 million regeneration programme, led by
the Grainger Town Partnership. The Grainger Town Project brought together £40 million of
public funding from One North East (formerly English Partnerships); the Single
Regeneration Budget; English Heritage; Newcastle City Council; and the Learning and
Skills Council (formerly Tyneside Tec Ltd) and aimed to attract £80 million from the private
sector. The investment sought to strengthen and develop Grainger Town as a mixed use
historic urban quarter based on seven inter-related regeneration themes.
The Grainger Town Project came to an end on 31 st March 2003. The successful
regeneration of the area by the Grainger Town Partnership brought a total of
approximately £45m public funding and £194m private sector investment into the area;
generated over 1900 new jobs; assisted the start up of over 300 new businesses; enabled
the construction or conversion of over 500 dwellings; and assisted the restoration and
conservation of 121 buildings.
The work of the Project generated an environmental, economic, social and cultural
renaissance that has enhanced the quality and reinforced the identity of the City centre,
bringing life back to the heart of Newcastle. Now completed, it is recognised that the
Project succeeded in promoting change, reversing decline and helping to produce more
positive perceptions of the area. It is now widely used as an example of good practice in
heritage-led regeneration and has won several planning and regeneration awards.
2 DETAILED AUDIT
The ‘Grainger Town Study’ (1992), commissioned by Newcastle City Council and English
Heritage and funded by the Department of the Environment, carried out a detailed audit
and assessment of the area in order to determine its underlying environmental, economic
and social problems. It concluded that Grainger Town was exhibiting many symptoms of
urban decay and economic and social decline.
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Heritage Resource and Heritage Issues
- 640 buildings within the Grainger Town boundary, of which 244 (39%) are listed of
special architectural or historic interest. Of those listed 20% are listed grade I,
12.5% are listed grade II* and 67.5% are listed grade II.
- Virtually all of it is included within Newcastle’s Central Conservation Area, which
was one of the first to be designated in England (1968).
- At the time of the study 47% of the listed buildings were classed as ‘at risk’ and
29% were classed as ‘vulnerable’.
Environmental Issues
- Very poor environment and low standards of public realm.
- Traffic congestion and limited parking provision detracted from the environment
and the townscape and hindered regeneration.
Economic Issues
- Over 1 million sq. ft of vacant floorspace - particularly in the upper floors.
- Increasing unemployment in the area (14,682 in 1992 to 9,892 in 1997).
- Rapid turnover of occupiers (1,144 businesses in 1992 to 950 in 1997).
- Property market was weak and characterised by hope value.
- Lack of developer, investor and occupier confidence.

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Social Issues
- Decreasing residential population (fell to 1,200 in mid 1990s and was continuing to
decline).
Cultural Issues
- Area perceived by locals and developers as a poor part of the City. Not recognised
as an area of architectural or historic importance.
3 STRATEGY
The Grainger Town Project possessed a very clear ‘strategy’ to guide its work programme.
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Civic Vision
‘Grainger Town will become a dynamic and competitive location in the heart of the
City. Grainger Town will develop its role in the regional economy within a high
quality environment appropriate to a major European regional capital. Its reputation
for excellence will be focussed on leisure, culture, the arts and entrepreneurial
activity. Grainger Town will become a distinctive place, a safe and attractive location
to work, live and visit.’
Programme Timescale
This ‘Civic Vision’ provided the basis for a six year regeneration programme (April
1997 – March 2003).
Funding Package
It was a £120 million regeneration programme bringing together £40 million of
public funding from One North East (formerly English Partnerships); the Single
Regeneration Budget; English Heritage; Newcastle City Council; and the Learning
and Skills Council (formerly Tyneside Tec Ltd), with the balance from the private
sector.
Themes of Heritage-Led Regeneration
Importantly the Grainger Town Project had strategic aims and objectives under
a) specific regeneration themes and development principles, which aimed to
strengthen and develop Grainger Town as a mixed-use historic urban quarter; and
b) identified goals and outputs, which were established through the public sector
funding regimes to measure the success of the Project.
This provided a multi-layered conservation-planning approach, which was designed
to complement the architectural and historic character and significance of the area,
not to work against it
a) Strategic Aims and Objectives
Rengeneration Themes:
1. Quality of Environment- to improve the quality of the public realm and traffic
management and create an attractive environment which promotes confidence in
the area.
2. Business Development and Enterprise- to develop existing businesses and
promote the formation of new businesses.
3. Housing- to increase the residential population by creating a range of affordable
housing for rent and sale.

4. Non-Housing Property Development- to secure the re-use of historic buildings
and the re-development of key sites for office, retails, arts and leisure uses.
5. Access to Opportunity- to improve training and employment in Grainger Town for
residents in the adjoining inner city wards.
6. Arts, Culture and Tourism- to promote the area as a centre for arts, culture and
tourism.
7. Management, Marketing and Promotion- to improve the overall management and
marketing of the area.
Development Principles:
1. Extend the retail core south from Eldon Square and Northumberland Street.
2. Re-introduce housing in the west of the area, focusing on sites on Clayton Street
and Grainger Street.
3. Strengthen the office core around Grey Street, Collingwood Street and Mosley
Street.
4. Create a leisure/cultural corridor to run from St Nicholas Cathedral through
Newgate Street to Stowell Street and from the proposed Centre for Life to
Newcastle Opera House.
5. Promote the major public transport nodes and high profile leisure and tourist
attractions to act as magnets in Grainger Town to increase pedestrian flows and
footfall throughout the area.
6. Improve the hard and soft spaces between buildings to form the glue which
binds the various development projects and visitor attractions together.
b) Identification of Goals and Outputs
- Jobs Created
- Training Weeks
- New Business Start Ups
- Area of New / Improved Floorspace
- New Dwellings
- Buildings Brought Back into Use
- Private Investment Attracted
4 PROJECT STRUCTURE
The regeneration programme was delivered by the Grainger Town Partnership, a
company limited by guarantee.
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Project / Partnership Board
The Partnership’s Board, which brought together a range of expertise, had 20
directors, comprising six City Councillors, six nominated by the various public
agencies involved in the regeneration programme, six from the private sector and
two Grainger Town residents.
Partners
The Board was supported by six specialist advisory panels, for instance the Urban
Design and Public Arts Panels, and community ownership was built up through
monthly meetings of both Residents and Business Fora.
Project Team
The Project was implemented by a dedicated professional Delivery Team of 14
officers based in Central Exchange Buildings at the heart of Grainger Town.

5 PROJECT IMPLEMENTATION
i Individual Projects / Initiatives under ‘Themes of Heritage-Led Regeneration –
Strategic Aims and Objectives’ Identified in Stage 3
1. Quality of Environment
Major Public Realm improvements completed throughout the area costing over
£5 million (based on an agreed Urban Design Framework) in conjunction with the
installation of many successful Public Art and Creative Lighting schemes.
2. Business Development and Enterprise
Over 300 new businesses set up, largely through the Grainger Town Business
Development Fund and PNE’s Youth Enterprise Support Scheme.
3. Housing
Over 500 flats and apartments, many located within the Grainger Street and
Clayton Street areas with their high concentrations of ‘Buildings at Risk’.
4. Non-Housing Property Development
80,900 sq. m. of new and/or improved commercial floorspace mostly in listed
properties.
121 buildings (many of them listed properties and classified as ‘Buildings at Risk’)
brought back into use.
Major Conservation Area Partnership /Heritage Economic Regeneration Scheme
projects completed, all jointly funded by English Heritage and Newcastle City
Council.
5. Access to Opportunity
Over 1900 jobs created, directly by the Project, plus a further 800 in Grainger Town
generally due to the increased confidence in the area.
6. Arts, Culture and Tourism
Organisation of numerous successful business, arts and culture and promotional
events, including the Grainger Town Fashion Show; the Streets Alive! Festival; and
Chinese New Year Celebrations.
7. Management, Marketing and Promotion
Production of several promotional and educational and publications aimed at the
general public, developers and schoolchildren. These included ‘Investing in
Heritage’, ‘Grainger Town Maintenance Manual’, ‘Grainger Town Shopfront Guide’
and ‘Inside and Outside Worlds’.
Development a comprehensive website and produced a video diary of the Project.
Organisation of an International Heritage Conference, ‘Investing in Heritage’,
focusing on Grainger Town and the Grainger Town Project.
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Promotion and Marketing
The Project produced several promotional and educational and publications
including ‘Investing in Heritage’, ‘Grainger Town Shopfront Guide’ and ‘Inside and
Outside Worlds’. In addition, the Team gave numerous presentations and tours
about and around the area and the Project to promote its work. It also developed a
comprehensive website and produced a video diary of the Project and organised an
International Heritage Conference, ‘Investing in Heritage’, focusing on Grainger
Town and the Grainger Town Project.

6 MONITORING / EVALUATION
i
Regular Monitoring of the Regeneration Process against ‘Themes of Heritage-
Led Regeneration – Identification of Goals and Outputs Identified in Stage 3.
• Jobs Created : Target 1900. Forecast 2299 (March 2006)
• Training Weeks : Target 5415. Actual 5080 (March 2005)
• New Business Start Ups : Target 199. Forecast 329 (March 2006)
• Area of New/Improved Floor Space msq : Target 74000. Actual 80900 (March
2005)
• New Dwellings : Target 522. Forecast 572 (March 2006)
• Buildings Improved and Brought Back into Use : Target 70. Actual 121 (March
2005)
• Private Investment Attracted : Target £80m. Actual £45m public funding has
generated £194m private investment (March 2005)
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Independent Evaluation of the Success of the Regeneration Process.
Independent interim and final evaluations on the Grainger Town Project have
been carried out.
An independent interim evaluation undertaken in 2001, led by Fred Robinson of
Durham University, concluded that:
“It has been successful in promoting change, reversing decline and helping to
produce more positive perceptions of the area. The Project has been well managed
and the process of regeneration has worked well”.
The independent final evaluation completed in September 2003, again by Fred
Robinson, concluded that:
“The Grainger Town Partnership is widely regarded as a demonstration of ‘what
works’… The Project revitalised the area and did much to save its threatened
architectural heritage. The achievements of the last six years need to be maintained
and secured and further regeneration has to be encouraged and supported in
Grainger Town”
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Promotion of the Success of the Project
In July 2002 the Project hosted an International Heritage Conference to promote
Grainger Town area and the success of the Project. The Conference marked the
launch of the INHERIT network.
7 FORWARD STRATEGY AND MAINTENACE – SUSTAINABLE REGENERATION
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Forward Strategy Following Completion of the Regeneration Process
During the last two years of the Project, the Partnership developed a Forward
Strategy, in line with Newcastle City Council policies and the Council’s Unitary
Development Plan, to ensure that the process of regeneration continued after the
termination of the Partnership on 31 st March 2003 and to provide a seamless
transition to successor bodies.
The Forward Strategy comprised five key elements:-
• A critical and objective assessment of the Project’s achievements in relation
to the original vision.

• Proposals for future action to enhance the City Centre’s overall
attractiveness and viability after the Project.
• Successor arrangements for the Partnership Board, Fora and Panels.
• An assessment of the financial implications of the Forward Strategy for such
bodies as the City Council.
• Arrangements for protecting the assets created by the Partnership, for
example, through agreed management and maintenance contracts and
service level agreements for public realm improvements and other key
projects.
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Maintenance Charter
In addition to the Forward Strategy, the Grainger Town Partnership also established
a Maintenance Charter which set out the maintenance requirements of the area up
until 2008. This included elements such as the cleaning and repair of the high
quality public realm, the innovative public art, and the bespoke Grainger Town
street furniture.
The Strategy and Charter will be monitored by the City Council’s City Centre Team and
Panel who will champion future improvements and help to protect and maintain the
Grainger Town legacy.
The Project’s impact on all facets of Grainger Town life is now clear for all to see and its
successes are increasingly being recognised both at home and abroad. The work of the
Project has generated an environmental, economic, social and cultural renaissance that
has enhanced the quality and reinforced the identity of the City centre, bringing life back to
the heart of Newcastle. The area has clearly turned the corner and its future as an
internationally significant historic urban quarter and a European Regional Capital now
seems secure.
Fiona Cullen
Heritage Officer
Newcastle City Council
20/01/06

APPENDIX 1
LESSONS LEARNT FROM THE GRAINGER TOWN PROJECT – IDENTIFICATION OF
GOOD PRACTICE IN HERITAGE-LED REGENERATION
The Grainger Town Project is now widely recognised as an exemplary regeneration
scheme and its approach is being applied both in the UK and abroad. So what key lessons
have been learnt
1. The need for a heritage audit and detailed survey of the area at the start of a
regeneration programme to establish the significance of its historic environment and
the main issues which need to be addressed.
2. The need to change perceptions of heritage by promoting a new ‘civic vision’ with a
strong emphasis on urban quality, city living and cosmopolitan lifestyles.
3. The importance of ‘early wins’ and the selective use of compulsory purchase order
powers to demonstrate resolve and commitment. All regeneration projects need high
profile early successes to send a strong message to the property market that positive
change is underway.
4. The importance of creating an ethos of quality and excellence in design through
demonstration projects, informative and promotional handbooks, design guides and
location marketing.
5. The importance of a coherent yet flexible strategy to help build up investment
confidence based on a detailed assessment of the area’s strengths and weaknesses.
6. The need to raise aspirations of the wider community by learning from best practice in
the UK and other European cities.
7. The importance of integration with an emphasis on a holistic conservation-planning
approach to regeneration.
8. The need to establish broad-based partnerships to provide ambassadors for change
and community ownership.
9. The importance of having a dedicated professional project team, based in the area with
strong links to the development industry.
Fiona Cullen
Heritage Officer
Newcastle City Council
20/01/06