Planning Applications and Archaeology

Introduction

The County Historic Environment and Archaeology Service is responsible for providing advice on planning matters to the County and District Councils, outside the city of Worcester (which has separate provision). This page provides information on the procedures that will be followed in preparing that advice.

This is important because (through the terms of national government guidance, County Structure Plan and Local Development Plans) archaeology is now an integral part of the planning process. Planning applications can be refused if local councillors do not believe that proper consideration has been taken of protecting the heritage.

The onus is on the developer for financing any archaeological works needed either to provide information to allow a planning application to be considered, or to provide any subsequent fieldwork needed to meet the terms of a planning condition.

Our experience is that potential problems can be removed if developers contact the Archaeology Service at an early enough stage and therefore better understand what may be expected of them. Indeed, developers working in partnership with the archaeologists, now play a key role in helping to preserve our common heritage.

Background

The modern landscape of Worcestershire is the product of human activity extending over thousands of years. This has contributed greatly to the character and attractions of the area. But although many generations have contributed to the multi-layered tapestry of remains, the scale of modern redevelopment has now brought an unparalleled power to sweep this heritage away. Once gone - it can never be replaced.

Archaeological remains should be seen as a finite, and non-renewable resource, in many cases highly fragile and vulnerable to damage and destruction. Appropriate management is therefore essential to ensure that they survive in good condition. They can contain irreplaceable information about our past and the potential for an increase in future knowledge. They are part of our sense of national identity and are valuable both for their own sake and for their role in education, leisure and tourism (see Managing the Archaeology).

1. Identifying an archaeological interest in your development

When a planning application is made to the Local Planning Authority, the Historic Environment and Archaeology Service will undertake a preliminary assessment of any archaeological implications of the proposed work, based on the (Historic Environment Record - formerly the Sites and Monuments Record SMR).

The County HER contains a mapped record of over 15,000 known archaeological sites in Worcestershire. These range from finds of prehistoric axes to World War II pill boxes, and are being constantly added to and refined. More information is being gathered about the archaeology of the county all the time.

A preliminary assessment involves a search of the HER for sites on, or near, the proposed development. Even if your development is not on a known site, it may be close enough to one to suggest that further information is required. Individual sites cannot be considered in isolation. Strategic surveys have been undertaken to establish their context as part of a comprehensive management strategy for the archaeology of the county [see Central Marches Historic Towns Survey].

2. Initial advice

If an archaeological implication is identified, an appropriate course of action will be recommended to the Local Planning Authority. This advice is based on published policies determined by both national and local government. The particular recommendation will depend greatly on the degree of disturbance proposed by the scheme in question.
It is important to be able to obtain as much information as possible about the scheme in order to judge the effects on archaeological remains. A site meeting might also be suggested to discuss the proposals. Initial advice may consist of a number of alternatives and in most cases is dealt with very simply. Indeed, only a very small number of applications require further action at all.

1) No action required.
2) Further information on the impact of the development on the archaeology is required.
3) Development should proceed, but accompanied by a watching brief to simply observe and record features revealed during the course of development.
4) There should be a salvage excavation during development in order to record finds and features.
5) Enough is known about the archaeology to advise ways of avoiding disturbing it through modifying design, possibly in conjunction with selective intensive excavation.
6) In rare cases, the known archaeological importance of the site is such that a recommendation for refusal will be made.

3 Further information may be required - an archaeological evaluation

In some cases the present level of information may not be sufficient to allow an informed decision on the impact of the development to be made.

A request for further information may necessitate a desk-based assessment which may also include a limited field evaluation (geophysical survey, fieldwalking and/or trial excavation). The developer would normally be responsible for commissioning these.  Information on choosing an archaeological contractor  (114.79 KB). The Historic Environment and Archaeology Service will prepare a detailed BRIEF, based on  national government guidance and local Standards and Guidance  (75.97 KB), and advise on the best means of proceeding. The purpose is to establish what might lie on the site, how deeply it is buried and how significant it might be.

This information will be then incorporated into the next step of the advisory process.

4. The next step

Preferred option - building design

The proposed development will need to take into account the results and recommendations of the archaeological assessment.

In most cases it may be possible to accommodate the archaeological interest within the building design, although some modification of plan or foundation method may be required. This avoids the expense on the developer of further large-scale archaeological excavation, although some monitoring (watching brief or `salvage excavation') may still be required. Such design solution might include:

1) moving the building footprint;
2) designing foundations that have minimal impact on buried remains.

Excavation - a choice of last resort

Surprising as it is to many, full archaeological excavation is only considered as an option of last resort. It is preferable to leave the archaeology untouched in the ground for future generations to investigate with improved techniques.

BUT, if the archaeology is not considered important enough for total preservation, or if design solutions to protect a reasonable proportion of the archaeology are not feasible, then recommendations for archaeological excavation may be made. Such excavation will be restricted to those areas under direct threat.

The Historic Environment and Archaeology  Service will provide a project brief for this work. The developer will normally be responsible for commissioning  (114.79 KB) the work.

Refusal

Developers should be aware that one possible consequence of carrying out an evaluation is that the significance of the results may be that the planning application be refused.

This happens only in very rare situations. Experience will probably have already led the Archaeological Service to warn the developer of this possible eventuality in advance.

What if something important is found during operations?

The whole purpose of carrying out early checks with the SMR and any field evaluations that might be advised is to try to avoid the circumstances of a totally unexpected find

Watching briefs and salvage recording are conducted under clear guidelines which are designed to minimise any disturbance to the development. It is not in anyone's interest to create hindrance at this stage. Development work will not be halted.

If a major find is discovered after planning permission is granted then the usual procedure is simply to try to record it during building work. In some circumstances it might be hoped that the developer will cooperate, through negotiation, to find a way of accommodating it within the scheme.

Positive planning and management

Most potential problems can be resolved if an approach for archaeological advice is made by the developer at the earliest opportunity - preferably before a planning application is actually lodged with the planning authority.

The County Historic Environment and Archaeology Service can advise on the likely options that will be recommended as part of a planning process and this advice can be incorporated into the planning application as specifications for an agreed programme of works. This can considerably reduce the frustration, expense and delay that can occur if the archaeology is only considered at a late stage in the planning process. It is even possible that the planning application may be refused because of the failure to take the archaeological aspect into proper consideration.

Remember - the actual decision on a planning application will be made not by the archaeologists but by democratically-elected members of the council who will weigh the archaeological advice alongside other considerations. If you disagree with that decision then you may be entitled to take the matter to appeal before a Planning Inspector.

Scheduled Ancient Monuments

Over 150 sites in the County SMR have been designated as Scheduled Ancient Monuments (SAMs). SAMs were designed to serve as a selective examples of the nation's most important archaeological sites. They include obvious major features such as castles, moated sites and burial mounds. They also include less obvious features such as the `humps and bumps' of deserted medieval villages, and some sites that at first sight might seem completely featureless - such as modern fields where archaeological remains lie buried beneath the ploughed surface

The present SAMs are now recognised as an inadequate sample and a national programme is underway to assess other sites which may be suitable for inclusion in the Schedule.

Legislation has a prime aim to ensure the preservation of such sites. If any development affects a Scheduled Ancient Monument (Ancient Monuments and Archaeological Areas Act 1979) or its setting , then an opinion will need to be sought from English Heritage before proceeding further. The consent of the Secretary of State is required before any works are carried out to the monument. Offenders may be prosecuted.

Detailed guidance notes on how to apply for Scheduled Monument Consent are available from English Heritage. Applicants are advised to discuss proposals with English Heritage at the earliest opportunity.

Further advice can be obtained from the Regional Inspector, English Heritage, 112 Colmore Road, Birmingham, B3 3AG.  Tel: 0121 625 6820  Fax 0121 625 6821

Archaeology and buildings

The repair and alteration of historic buildings often has an impact on the archaeology of those buildings. Aspects of development may therefore be related, although at the present they are subject to their own procedures. Specific advice for dealing with historic buildings is contained within government advice PPG15 (Department of Environment/Department of National Heritage). Again, early consultation with your Local Planning Authority is very important in seeking advice on dealing with historic buildings or developments within Conservation Areas.

Contact District Conservation Officers at addresses below.

Planning Policies

Department of Environment, Planning Policy Guidance Note 16 (PPG16) states:

Local planning authorities can expect developers to provide the results of such assessments and evaluations as part of their application for sites where there is good reason to believe there are remains of archaeological importance. If developers are not prepared to do so voluntarily, the planning authority may wish to consider whether it would be appropriate to direct the applicant to supply further information under the provisions of regulation 4 of the Town and Country Planning (Applications) Regulations 1988 and if necessary authorities will need to consider refusing permission for proposals which are inadequately documented (DoE, PPG16, section 22, November 1990)

The County Structure Plan (1993) states:

There will be a presumption against development which would adversely affect nationally important archaeological remains and their settings. Development which would adversely affect other sites of archaeological interest and their settings will not normally be allowed. (Policy CTC.5)
See also archaeological policies for individual districts as contained in their Local Plans (for addresses see below).

District Planning Authorities

Planning and Tech. Services Officer, Bromsgrove District Council, The Council House, Burcot Lane, Bromsgrove, Worcs, B60 1AA. Tel: (01527) 873232 Fax: (01527) 875660

Planning and Tech. Services Officer, Malvern Hills District Council, Brunel House, Portland Road, Malvern, Worcs, WR14 2TB. Tel: (01684) 892700 Fax: (01684) 862499

Head of Development Control, Redditch District Council, Town Hall, Alcester Street, Redditch, Worcs., B98 8AH. Tel: (01527) 64252 Fax: (01527) 65216

City Archaeologist, Worcester City Council, Queen Elizabeth House, Trinity Street, Worcester, WR1 2PW. Tel: (01905) 722369 Fax: (01905) 722350

Director of Technical Services, Wychavon District Council, Civic Centre, Pershore, Worcs., WR10 1PT. Tel: (01386) 565000 Fax: (01386) 561092

Director of Planning and Tech. Services, Wyre Forest District Council, Duke House, Clensmore Street, Kidderminster, DY10 2JX  Tel: (01562) 820505 Fax: (01562) 748378

For further advice contact
Worcester Historic Environment and Archaeology Service
Woodbury Hall, University College Worcester
Henwick Grove, Worcester WR2 6AJ

Tel 01905 855454 planning enquiries or Planning Archaeologist

Downloadable  leaflet on Planning and Archaeology  (PDF format) available here  (24.30 KB)