Written evidence submitted by Glasgow City Council

We are pleased to submit this response to the UK Government’s Call for Evidence on the Preservation and Management of Built Heritage Assets.

This response is provided on behalf of the Development Team within the City Centre Regeneration Group at Glasgow City Council. The Development Team was established in 2024 as a direct action from the newly published City Centre Strategy 2024-30. Its primary focus is to unlock stalled development within the city centre, with a particular emphasis on the adaptive reuse of vacant heritage buildings and their conversion into residential or mixed-use spaces.

Our submission aims to contribute to this consultation by addressing the key challenges associated with heritage preservation, including ownership and operational difficulties, funding and financial models, heritage’s role in regeneration, barriers to restoration, and workforce skills. We hope that our insights and experiences in Glasgow’s city centre can help inform national policy and support more effective heritage asset management strategies.

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?

• What interventions are needed to prevent the managed decline of heritage assets on publicly-owned land?

The most significant challenges facing owners and operators of built heritage assets include financial and regulatory barriers that hinder their sustainable use and preservation. Specifically:

1. Financial Viability: Conversion projects often fail to stack up financially, with high upfront costs and limited economic returns. Additionally, heritage assets have substantial running costs, especially when attempting to modernize them for energy efficiency.
2. Lack of Financial Support: There is a gap in funding and incentives to support meeting ESG (Environmental, Social, and Governance) requirements, particularly to align heritage assets with modern energy performance standards.
3. Policy Constraints: Repurposing of heritage buildings requires to meet modern energy requirements for retrofit as well as retaining historic features in line with conservation policy.

Interventions to Prevent Managed Decline

1. Enhanced Financial Support: Targeted grants and subsidies are essential to bridge the funding gap for retrofitting heritage assets. Financial models that make conversions more economically viable could encourage private and public investment.
2. Policy Evolution / Technical Assistance:: Tailored solutions that preserve architectural integrity while integrating modern energy-efficient technologies can balance conservation with usability. Many owners and operators lack the expertise to navigate the complex requirements of retrofitting heritage buildings. Providing guidance, resources, and support can make these projects more feasible. One stop shop approach is being developed by GCC, and many organisations across the UK; enhancing resourcing and expertise hubs could help this further.

• What can the Government do to make it easier for communities or local businesses to take ownership of historic buildings?

The Government can take several steps to make it easier for communities or local businesses to take ownership of historic buildings. These steps should focus on financial support, policy flexibility, and capacity-building measures:

1. Financial Support:

• Grants and Low-Interest Loans: Introduce targeted funding to assist communities and local businesses with the costs of upgrading, and maintaining heritage buildings. This should include specific financial measures for energy performance upgrades, helping meet modern living standards and net-zero aspirations.
• Tax Incentives: Offer tax relief for owners and developers who invest in the adaptive reuse of historic buildings.

2. Empower Communities and Local Businesses:

• Training and Guidance: Provide resources and technical expertise to help communities and small businesses navigate the complexities of owning and maintaining historic buildings.
• Partnership Models: Facilitate public-private partnerships or collaborations between local councils, businesses, and community groups.
• Awareness Campaigns: Increase public awareness of the benefits of heritage building ownership and the available support, encouraging greater community involvement.

3. Incorporate Net-Zero Goals:

• Align conservation policies and financial support with the Government’s net-zero ambitions. Historic buildings should not be frozen in time but brought into the present by incorporating sustainable and energy-efficient technologies without compromising their heritage value.
• VAT is charged on conversions but not on new build which is zero rated.  Repurposing buildings can be charged VAT of 5% – 20%. Remove/reduce tax barriers that disadvantage repurposing, particularly for listed buildings

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

• What should long-term public funding for the sector look like?

The current funding and finance models for built heritage in the UK are insufficient, particularly in addressing energy performance upgrades, which are critical for making heritage buildings viable for long-term use. Financial support in this area is fragmented, and the lack of robust incentives is evident when compared to other European countries.

• Innovative ways of funding the repurposing of vacant city centre land and property: Without new sources of financial support, repurposing activities will remain constrained.  Glasgow city centre is particularly affected due to the number of redundant/ underused properties, disproportionate land values, and the large volume of listed buildings.
• Consider more mechanisms such as: Tax Incremental Financing, Growth Accelerator Models, Regeneration Accelerator Model, Equity funding, Enhanced capital allowance, Infrastructure loans or grants, Heritage building support, Infrastructure levy
• Devise a new BPRA style scheme – suggestion is it is revised to align with the priorities of repurposing and re utilising heritage buildings.
• Support the reduction of barriers to the CPO process– time, financial, legal – that facilitates repurposing and reuse of buildings. Provide another legal tool for local authorities to use, without having to buy the property (eg: Compulsory Sales Orders are another legal option to force a property sale with the objective of finding a productive end use and removing a development constraint).
• Energy Performance Challenges: The map in Figure 1, highlights that the UK experiences one of the highest levels of home temperature loss in Europe (3°C after 5 hours), indicating that homes, including heritage buildings, lag significantly in energy efficiency. In contrast, countries like Norway, Italy, and Austria, with more substantial financial incentives for energy efficiency upgrades, perform significantly better.

Figure 1: source: https://www.tado.com/gb-en/press/uk-homes-losing-heat-up-to-three-times-faster-than-european-neighbours

• European Practices: Countries like Italy and Ireland have adopted funding models that provide substantial incentives for both homeowners and private developers. These policies not only improve energy performance but also make heritage buildings more attractive for adaptive reuse and long-term functionality.
• Enhanced Financial Incentives: Introduce grants, tax breaks, and zero-interest loans targeted specifically at retrofitting heritage buildings with energy-efficient technologies.
• Policy Alignment with ESG Goals: Long-term public funding should align with ESG requirements, ensuring heritage assets contribute to carbon reduction goals while preserving cultural value.
• Tailored Funding for Heritage Projects: Create bespoke funding programs for heritage buildings, recognising their unique challenges and opportunities. These should include flexibility to balance conservation requirements with modernisation needs.
• Learning from Europe: Adopt a more integrated and flexible conservation approach where retrofitting is prioritised, allowing for integration of energy-efficient technologies and interpretation of what changes have been implemented.

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

• How can heritage buildings be supported to increase energy efficiency and contribute to the Government’s net zero targets?

Built heritage plays a pivotal role in revitalizing local areas by serving as both a cultural and economic asset:

• Economic Growth: Heritage buildings attract tourism, stimulate local businesses, and create jobs, especially in construction, conservation, and hospitality sectors. Renovating historic sites can spark wider urban regeneration, drawing investment into the area.
• Community Identity and Pride: Heritage assets reflect the history and character of a place, strengthening community identity and fostering a sense of pride and belonging. Adaptive reuse of these buildings connects the past with the present, creating vibrant community spaces like cultural centers, co-working hubs, or housing.
• Social Value: Heritage sites contribute to well-being and social cohesion, offering spaces for shared activities and public engagement.

To integrate heritage conservation with sustainability goals, several steps should be taken:

1. Financial Incentives:

• Grants and Subsidies: Introduce funding to specifically support energy retrofitting in heritage buildings, helping to offset the higher costs associated with conserving historical features during upgrades.
• Tax Relief and Zero-Interest Loans: Financial tools should target property owners and developers who invest in energy efficiency measures while preserving heritage value.
• Community Grants: Support community-led regeneration projects, enabling local groups to take the lead in transforming heritage assets.

2. Clear Path to Net Zero Requirements:

• Create a roadmap tailored to heritage buildings to help them achieve net-zero targets. This should include step-by-step guidance on retrofitting options, allowable changes under conservation policies, and financial resources available for compliance.
• Develop case studies showcasing successful examples of heritage retrofitting to inspire and guide similar projects.

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

• What policy changes are needed to make restoring historic buildings easier and less expensive?

1. Enhanced Financial Support:

• Grants and Subsidies: Expand funding programs specifically aimed at retrofitting and restoring heritage buildings, particularly those incorporating energy-efficient upgrades.
• Tax Relief: Provide tax incentives for restoration projects to encourage private investment and community ownership.
• Zero-Interest Loans: Introduce affordable financing options for restoration and maintenance, particularly for small businesses and community groups.

2. Capacity Building:

• Training Programs: Invest in education and training to develop a skilled workforce familiar with both traditional building methods and the application of modern technologies in heritage settings.
• Community Support: Offer resources and guidance to empower local communities to manage and restore heritage assets effectively.

3. Clear Path to Net Zero:

• Develop detailed guidelines for retrofitting heritage buildings to achieve energy efficiency and align with net-zero goals.
• Showcase successful examples of sustainable restoration projects to inspire confidence and provide a practical roadmap for owners and developers.

5. What policies would ensure the UK workforce has the right skills to maintain our heritage assets?

Addressing the skills gap in heritage conservation requires a combination of training initiatives, workforce planning, and policy interventions. The following actions can help equip the UK workforce with the necessary skills:

1. Comprehensive Skills Gap Analysis

• Conduct a nationwide skills gap analysis to identify shortages in key areas such as traditional crafts (e.g., stonemasonry, carpentry), heritage-focused architectural design, and integrating modern technologies into historic buildings.
• Use the findings to inform training priorities and workforce development programs.

2. Invest in Training Programs and Education

• Specialised Training Courses: Expand training opportunities in heritage skills through vocational programs, apprenticeships, and higher education. These should include traditional conservation techniques alongside modern retrofitting technologies.
• Upskilling Existing Workers: Provide opportunities for the current workforce to gain expertise in energy-efficient retrofitting, sustainable construction, and the use of innovative technologies in heritage contexts.
• Partnerships with Industry: Collaborate with conservation organizations, construction companies, and heritage agencies to develop practical training programs aligned with industry needs.

3. Apprenticeship and Mentorship Schemes

• Heritage Apprenticeships: Expand heritage-specific apprenticeship programs to attract young people to traditional crafts and conservation careers.
• Mentorship Programs: Pair experienced professionals with new entrants to ensure the transfer of specialized skills and knowledge.

4. Incentives to Address Skills Shortages

• Subsidies for Training Providers: Offer funding and incentives to colleges and training centers to develop and deliver heritage-focused programs.
• Support for Trainees: Provide financial support to individuals pursuing qualifications or apprenticeships in heritage conservation.
• Employer Incentives: Introduce tax relief or subsidies for employers who invest in training their staff in heritage-specific skills.

5. Integrate Heritage Skills into Broader Construction Training

• Incorporate heritage conservation modules into standard construction and architecture programs, ensuring that general tradespeople gain a basic understanding of working with heritage assets.
• Develop interdisciplinary training programs that combine conservation techniques with sustainability and modern building standards.

6. Support for Emerging Technologies

• Create training programs focused on using innovative technologies, such as digital scanning, 3D modeling, and energy-efficient retrofitting, in the context of heritage buildings.
• Foster collaboration between tech companies and conservation organizations to develop and implement cutting-edge solutions.

7. Promote Careers in Heritage Conservation

• Launch awareness campaigns to highlight the value and career opportunities in heritage conservation, targeting young people and underrepresented groups.
• Celebrate successful projects and skilled professionals to raise the profile of heritage-related careers.

8. Policy Integration and Long-Term Workforce Planning

• Strategic Workforce Planning: Develop a national strategy to ensure the long-term availability of skilled workers in the heritage sector, aligned with conservation priorities and net-zero goals.
• Coordination Between Agencies: Foster collaboration between government bodies, educational institutions, and industry to align training programs with policy goals and sector needs.