Written evidence submitted by the
Seaside Heritage Network

 

The Seaside Heritage Network (SHN) was established in 2022 to bring together individuals and groups with a shared interest in seaside heritage around the UK. (https://seasideheritage.org.uk/ accessed 22 January 2025)

Our focus is on seaside heritage that is linked to popular mass tourism from the 19th century up to the present day. We believe it is important to recognise and celebrate this heritage because seaside tourism was an industry that created its own distinct architectural legacy. It is now the nostalgic backdrop to modern seaside tourism, making our coastal resorts interesting and increasingly dynamic places.

The Seaside Heritage Network also celebrates the unique contribution of seaside heritage to British life and seeks to demonstrate the importance of built and intangible heritage to the continuation of that legacy.

 

Summary of evidence

 

1. What are the most significant challenges facing owners and operators of built heritage assets, and how are they affecting what those sites can offer?

Challenges on the seafront

The seafront is the shop window for a seaside resort and a vital component of the tourist economy. Often the site of some of the most prestigious buildings, these are also often older and therefore expensive to maintain. Many are in local authority ownership and with tightening budgets, it is all too easy to neglect unglamorous, apparently unproductive and often unseen maintenance tasks in favour of more superficial, public-facing works.

Heritage assets on the seafront face the issue of location and the resultant physical challenges. Seafront structures may be light, cheap and hence easily damaged and replaced; alternatively, they may be expensive, being constructed of robust materials designed to overcome the challenges of this location.

There is a need to resist storms on seafronts, with salty spray and rasping, sand-filled winds frequently causing damage to structures and increasing the size of regular maintenance programmes. Under-investment is particularly noticeable and if prolonged, can prove expensive to remedy. Iron, a popular material since the 19th century because of its affordability, practicality and decorative qualities, is prone to corrosion and without regular maintenance rust can turn to rot, with catastrophic results. Wood, particularly any exposed to sea water, can rot and decay very quickly. The story of piers highlights the vulnerability of structures made from both materials.

A seafront location leads to greater costs, but also potentially greater rewards. However, a potentially vicious circle can be created where neglected attractions lead to decreasing popularity and consequently less private and public income to invest, which in turn leads to poorer facilities and therefore fewer visitors. This danger has been recognised by local and national government. In recent years, various national government initiatives have sought to fund a variety of projects designed to keep seaside, and coastal towns, firmly on the country’s tourism agenda. (see question 2) These funds were recognition that seaside resorts must continue to adapt, as they have done for 300 years, to meet the changing tastes and demands of their customers.

 

Economic factors affecting heritage assets

In recent years there has been some significant investment by local and national government money to improve the public realm while meeting the challenges of climate change. However, investment in private sector properties may still be lacking and therefore there may be a significant disparity between the attractiveness of the immediate seafront and the less well-maintained buildings behind. Blackpool and Morecambe are both examples where major programmes of investment have transformed the seafront, but the state of repair of many of the buildings lining this new seafront leaves much to be desired. These are often the buildings in which holidaymakers are fed, watered and entertained, and while there may be a desire to invest in the ground floor, revenue-generating facility, the upper floors of many seafront buildings are largely unused and frequently unloved.

A key factor in under-investment in the private sector is the seasonal nature of the seaside resort, income being plentiful during the middle months of the year, but negligible, or entirely absent, from many businesses for the rest of the year. This inevitably leads to a focus on investing where income can be maximised, leaving the remainder of the property to take care of itself.

The condition of historic buildings in the centres of resorts is often a direct reflection of the underlying social and economic problems that these towns face. A more statistical picture can be gleaned from interrogating the government’s Indices of Multiple Deprivation, a survey carried out every few years. This consistently reveals that seaside resorts feature among the most deprived places in England; of the 151 upper-tier local authorities in England, Blackpool was first in the list. (https://www.gov.uk/government/statistics/english-indices-of-deprivation-2019 file 11, accessed 21 January 2025)

When examining Local Authority District Summaries, of the 317 local authority districts in England, Blackpool still ranks as the most deprived place in England with Hastings at 13th and Great Yarmouth at 24th. Other local authorities with substantial seaside resorts in their area within the 100 most deprived places are Tendring (32nd), Thanet (34th), Torbay (48th), Scarborough (75th), Folkestone and Hythe (84th) and Sefton (89th). (https://www.gov.uk/government/statistics/english-indices-of-deprivation-2019 file 10, accessed 21 January 2025)

When the more detailed figures for smaller geographical areas (the so-called lower layer super output areas, LSOA) are examined, the extent of the deprivation at seaside resorts becomes clearer. England is divided into 32,844 LSOAs, each of which has an average of approximately 1,500 residents or 650 households. Of the 20 most deprived, 12 are in Blackpool and 2 in Tendring DC. A further 13 of the top 100 are also in seaside resorts, with Blackpool having 18 out of the 100 most deprived LSOAs. (https://www.gov.uk/government/statistics/english-indices-of-deprivation-2019 file 1, accessed 21 January 2025)

The low ranking of so many seaside resorts is a combination of the tourist economy being so seasonal and the fact that so many people are on low incomes. Yet, as desirable places to live, house prices are likely to be higher than in equivalent inland towns.

‘An Asset and a Challenge: and Regeneration in Coastal Towns in England’ is an English Heritage report from 2007. Although many years old, the ideas it contains have continued relevance today. It might we worth asking Historic England to look at producing an updated version. (https://www.coastalcommunities.co.uk/knowledge_hub_files/An_Assest_and_a_Challenge_Heritage_and_Regeneration_in_Coastal_Towns_in_England_R8SQ.pdf accessed 22 January 2025)

 

See response to Question 2

 

See response to Question 2

 

2. How effective are the current funding and finance models for built heritage?

For seaside heritage, there are currently no targeted, specific sources of funding. During the last 25 years, there have been a range of coastal-specific funding schemes, including:

 

 

 

 

While the National Lottery Funding has provided £234 million to 864 regeneration projects in seaside resorts, including major grants such as Hastings Pier, Blackpool Museum, and Margate Dreamland, the process to apply and secure NLHF is arduous, requires a skilled team of bid writers, and is highly competitive. Furthermore, as noted in the response to question 4 below, this funding stream is not open to private/commercially owned heritage assets. Restrictions within the grants awarded can impact the financial sustainability of the heritage assets, as illustrated in the case of Hastings Pier.

 

More recently, Levelling Up (2019-2024) has provided funding for regeneration and redevelopment, but relatively few funds were directed to seaside towns which were no longer seen as a priority.

In March 2024, Lord Parkinson announced a ‘dedicated fund to support enhancements to our seaside heritage’ (https://www.gov.uk/government/speeches/lord-parkinson-at-heritage-day-hosted-by-the-heritage-alliance). The Seaside Heritage Network was frustrated and disappointed that the proposed funding stream was not developed. Given the distinctive characteristics of Britain’s coastal communities, the unique heritage assets of our seaside resorts, and the increased challenges of climate change there has never been a more pressing time to protect and restore seaside heritage.

 

To improve the appearance and state of historic buildings in any location, they must be in use. Too many buildings at the heart of seaside resorts are wholly or partially unoccupied all year or for many months each year. Initiatives to improve the hearts of resorts could be achieved via a dedicated seaside version of the successful Heritage Action Zones managed by Historic England.

In 2017 Heritage Action Zones (HAZ) were launched and in the first tranche, two were at seaside resorts – Ramsgate and Weston-super-Mare. The aims of the HAZs were to ‘unleash the power of the historic environment, creating conditions for economic growth and improving the quality of life in villages, towns and cities across England … All this has been done through joint-working, grant funding and sharing our skills and knowledge.’

A key part of the work at Ramsgate and Weston-super-Mare was to carry out research leading to books and reports to raise the profile of the resorts and to understand the towns more fully. At Weston, this work also led to a wholesale revision of the conservation areas. Alongside this, there was targeted funding for works to buildings that were able to be brought back into use. After the success of the HAZs, and due to fears for the future of the High Street, Historic England began a programme of High Street Heritage Action Zones (HSHAZ).

It was the success of the HAZ programme that inspired the Seaside Heritage Network to propose a similar type of fund to the APPG and to Lord Parkinson of Whitley Bay, previously Parliamentary Under Secretary of State at the Department for Culture, Media and Sport. He adopted this idea and announced funding for this proposal in March 2025 (see above in question 2 for more details).

The Seaside Heritage Network believes that a dedicated fund for seaside resorts could go further. It could assist in the revival and repair of heritage assets, but it could also provide money for local and community groups to take ownership of key assets that have long been neglected. In effect, it could provide a low-cost loan or loan guarantee to be repaid over years once a building is occupied. Such an approach has proved successful in Folkestone where a creative quarter has been successful with relatively small amounts of money needed to start the process. (https://folkestone.works/why-here/ambition-growth/creative-quarter/ accessed 22 January 2025)

 

 

3. What role does built heritage play in the regeneration of local areas and in contributing to economic growth and community identity?

External funding opportunities for seaside heritage restoration and maintenance are limited. Many seaside heritage regeneration projects are bottom-up and community-driven. The number of community-driven projects has increased in recent years, with successful campaigns to save and restore seaside heritage assets, including Queens Pier Restoration Trust in Ramsey, Isle of Man, who are restoring their derelict pier bay-by-bay. They currently have 3 of the 10 bays open to the public and the restoration is funded through donations and volunteer hours. Saltdean Lido is the only Grade II* listed seaside lido in Britain, and its restoration has been led by a community trust with funding for the project achieved through donations and grants from the Heritage Lottery Fund and Historic England. Morecambe’s Winter Gardens are being lovingly restored by the Preservation Trust in conjunction with the Friends of the Winter Gardens and preservation volunteers. This Grade II* listed building has now reopened to the public for events and tours. For these communities, seaside heritage assets are icons of local identity and provide a distinctive sense of place and community pride.

 

Some of the largest buildings at seaside resorts date from the late 19th and early 20th centuries and many require significant annual maintenance and large programmes of restoration. Making improving energy efficiency a condition of every grant would seem to be an obvious way to move forward. This would require some modest addition to any grants but should prove cost-effective.

Seaside resorts are popular because people want to enjoy the sun. Large seaside complexes have roofs covering, in some cases, acres. Some of these would be suitable for the installation of solar panels and could in a few years cover the cost of installation. Encouraging the installation of modern heating systems is another obvious way of helping to reach net zero. Both these initiatives could be achieved through targeted grants and loans that would allow buildings to be heated all year round, and therefore better cared for during the quieter months of the year. This would in the longer-term help to reduce maintenance costs.

 

4. What are the financial, regulatory and practical barriers to preserving built heritage?

British seaside resorts are the locations for the heritage of the first sites of mass tourism and mass popular entertainment in the world. This seaside heritage is distinctive and unique but is often unrecognised and undervalued.

Despite its distinctive heritage value, conservation bodies have paid little attention to the architecture of seaside pleasure.  The ‘Principles of Selection for Listed Buildings, published by the DCMS in 2018 sets out the criteria for applying legal protection to a historic building and uses the year 1850 as a crucial boundary. Most buildings which predate 1850 are considered sufficiently rare to qualify for listing. Conversely, those dating from after 1850 are considered more numerous and therefore have a weaker case for protection. Since most buildings associated with the seaside holiday were constructed after 1850, they frequently fall beneath the radar of statutory protection and consideration as “heritage”.

Therefore, much seaside heritage has been lost in recent years, including the Rotunda Amusement Park in Folkestone which was demolished in 2004 (one of 16 funfairs and amusement parks which have closed or been demolished at the UK seaside in the last 2 decades). Brighton’s West Pier, which although Grade I listed, has been slowly decaying since the 1970s and is beyond economic repair since 2003 (fires and collapse). New Brighton Open Air Baths which was damaged by a storm in 1990 and demolished shortly after (and is now the site of a retail park). More recently, the Futurist Theatre in Scarborough was demolished in 2018, despite many attempts to list and save the building. The site is now derelict with no future plans in the pipeline.

 

The Struggles of the Seaside Pier

There are still plenty of examples of seaside heritage remaining around the UK’s coast. Piers are perhaps the most distinctive and provide a key exemplar when it comes to identifying funding challenges.

There are currently 63 seaside piers gracing the coasts of the British Isles. Over half (54%) are in commercial sector ownership, with the remaining 31% owned by local councils and approximately 15% in trust or partnership between public and third sector organisations. For the 34 piers that are privately owned, there are no funding streams accessible to commercial operators; if these piers require significant maintenance or repair this must be self-financed. The operational costs for seaside piers can vary between £250,000 to £2 million per annum (depending on the size, location and usage of the pier). This leaves little money available for regular repair and maintenance, let alone major improvement works. Consequently, there are many commercially operated piers that now require significant investment to secure their future. Examples include Walton-on-the Naze, Teignmouth, and Lowestoft Claremont Piers, all of which have closed part of their decks as they are structurally unsound. None of these piers are listed structures.

The funding challenge is not limited to seaside heritage structures in commercial ownership. The 20 seaside piers in public sector ownership are also facing funding challenges. Council budget cuts combined with inflation and increased spending on social care have resulted in cuts in leisure and recreation services for most councils.

The withdrawal of coastal specific funding including Coastal Communities Fund and Coastal Revival Fund has resulted in limited funding opportunities for council-owned seaside heritage. Perhaps the council owned seaside pier most in need of significant maintenance and restoration funding is Southport Pier. This Grade II listed pier has been closed since the end of 2022. Structural surveys have estimated the total repair cost to be approximately £13 million. Sefton Council are committed to the refurbishment but admit that the cost is beyond the existing budget of the council. They would like to see government establish a national fund, ringfenced for proactive maintenance budgets for heritage assets.

 

Seaside Heritage Network                                                                      2 February 2025

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