human habitat 2

www.devon.gov.uk

July 2003

The Human HabitatDevon’s Historic Environment

Devon County Council’s Role and Action Programme for the Historic Environment

T H E H U M A N H A B I T A T - D E V O N ’ S H I S T O R I C E N V I R O N M E N T

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For More Information…

◆ …on Devon County Council’scontribution to historic environment,contact:

Historic Buildngs AdviserEnvironment DirectorateDevon County CouncilCounty HallTopsham RoadExeterEX2 4QW01392 382261email: [email protected]

or

County Archaeological ServiceEnvironment DirectorateDevon County CouncilCounty HallTopsham RoadExeterEX2 4QW01392 382246email: [email protected]

◆ …view the Historic Environment Roleand Action Plan through theInformation Devon website at either:www.devon.gov.uk/historicenvironment

◆ …about Devon County Council or ‘Lifein Devon’, visit the ‘Information Devon’website:

www.devon.gov.uk

◆ …about Devon as a tourist destinationvisit the Discover Devon website:

www.discoverdevon.com

◆ …other Devon County Council Role andAction Programmes:

Biodiversitywww.devon.gov.uk/biodiversity/biodiversity.pdf

Coastwww.devon.gov.uk/coast/ourcoast.pdf

Tourismwww.devon.gov.uk/environ/tourism/actionplan.pdf

The Human Habitat - Devon’s Historic EnvironmentDevon County Council’s Role and Action Programme for the Historic Environment

Published by Devon County Council - July 2003 ISBN: 1-85522-887-4

Cover photograph: Kingswear Castle. With its counterpart Dartmouth Castle on the opposite side of theestuary, Kingswear is an artillery fort built at the end of the 15th century to defend the excellent natural harbourat the mouth of the river Dart. The castle is now looked after by the Landmark Trust.

We would like to acknowledge our thanks to Devon Tourism for the use of a photograph of Tiverton Castle, andthe National Trust for the use of a photograph of Knightshayes Court.

Available on request in large print,Braille or on tape. If English is notyour first language we can arrangefor it to be produced in anotherlanguage.

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ForewordsDevon is widely and rightly celebrated for thebeauty and diversity of its scenery, its historicsettlements, ancient buildings and archaeologicalsites. But not everybody, either resident or visitor,realises quite how much our landscape itself is theproduct of generations of human activity. In factthere is almost no element of the Devoncountryside (except for some granite tors) which isunmodified by human action.At the same time, thefabric of the landscape and its structures can tell usabout our own history in ways that nothing else can.The variety of our buildings and their traditionalbuilding materials, from cob to granite to flint, reflectthe diversity of the landscape itself. The fieldpatterns tell us about the history of landholding andfarming. Our mining, maritime and defence heritagehave all left their traces.This is why we have calledthis paper ‘The Human Habitat’, in order toemphasise the interrelationship of Devon’slandscapes and townscapes with its people and itshistory.

One of Devon County Council’s six Strategic Goalsis ‘to look after Devon’s environment, culture andheritage’ and this paper sets out one of the meansby which we seek to achieve this. We value Devon’shistoric environment for itself, for the information itpreserves for future generations, and for thecontribution it makes to our economy. It is a majorcomponent of the county’s attractiveness to visitors.It should also be a key factor in guiding regenerationobjectives: a place’s history forms its character, andthis can provide the catalyst for its futuredevelopment, maintaining its local distinctiveness andsense of place.

This paper sets out how the County Council willwork with its partners to understand, protect andpresent the Devon historic environment for thepeople of Devon, now and for the future.

Councillor David MorrishEnvironment Executive Member

In the preparation of Devon’s Cultural Strategy lastyear, a sample of the Devon population was asked`What cultural activities of the County Council doyou consider important?’ 90% replied that theyregarded protection of the historic environment tobe important or very important – a figure exceededonly by the 96% who favoured protection of `wildlifeand the countryside’.

Devon was one of the first local authorities in thecountry to follow government advice in appointingan elected Member as Champion for the HistoricEnvironment, and I was pleased and proud to begiven this role.The County Council has a longrecord of seeking to protect the historicenvironment, with committed and expert staff to dothis work.They work closely with their colleagues inorganisations such as English Heritage, the NationalTrust and Defra and also with the many local bodiesand individuals who care about Devon’senvironment. Protecting and understanding ourhistory is a team effort.

Nowadays the world around us changes quickly, andpeople in Devon, as elsewhere, value more and morethose traces that link us to the past. Recent yearshave seen many local groups carrying out surveys,preparing parish maps and studying their ownhouses, while television programmes on botharchaeology and buildings history are increasinglypopular. There has never been greater support forthe historic environment, and we are committed toplaying our part in looking after it. We hope tofocus and strengthen our efforts with thisProgramme.

Councillor Chris GaleHistoric Environment Champion

The Human Habitat Devon’s Historic EnvironmentDevon County Council’s Role and Action Programme for the Historic Environment

Contents1. Introduction 5

1.1 Background 51.2 Devon’s historic environment 51.3 Devon County Council’s policies 61.4 The role of Devon County Council

in the historic environment 61.5 The national legislative and

administrative framework 81.6 Partners 91.7 Information 101.8 Research 101.9 Issues and objectives 10

2. Devon’s Historic Environment 12

2.1 Historic landscapes and historic landscape character 12

2.2 Archaeology, archaeological sites and field monuments 12

2.3 Towns and rural settlement 142.4 Greater houses and their settings 152.5 Industrial archaeology 162.6 Land transport 172.7 Religious sites 182.8 Defensive sites 192.9 Palaeoenvironmental archaeology 192.10 The marine and coastal historic

environment 20

3. Impacts on Devon’s HistoricEnvironment 21

3.1 Natural processes 213.2 Agriculture and forestry 213.3 Construction and development 223.4 Care and repair of buildings 233.5 Mineral working and waste management 243.6 Transport and infrastructure projects 243.7 The County Estate 253.8 The defence estate 253.9 Tourism 26

4. Strategic Role, Objectives and Priorities for Action 27

Glossary 51

Contacts and Links 52


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The Human Habitat Devon’s Historic EnvironmentDevon County Council’s Role, Policy and Action Programme for the Historic Environment

1.1 BACKGROUND

Devon County Council is preparing a series of Roleand Action Programmes. These set out a strategyfor delivering the statutory duties and discretionaryservices of the County Council under the themes oflandscape, biodiversity, tourism, maritimeenvironment and historic environment. They willestablish five-year agendas and their actionprogrammes will be reviewed on an annual basis.

The care of the historic environment is shared bymany organisations and among these Devon CountyCouncil has an important role to play. It is thepurpose of this document to record this role, to setout relevant policies and to commit the Council to acontinued programme of action. In this area of theCounty Council’s activities, as in all the others, thestrength of partnership is recognised, and themajority of the objectives described in thisProgramme can only be achieved by working withothers.

Understanding of the historic environment isunderpinned by museums, libraries and archiveswhich conserve irreplaceable sources of informationin the form of documents and objects handed downfrom the past. Devon County Council has specificresponsibility for libraries and archives and supportsthe County’s many museums. However thisProgramme is essentially concerned with thoseaspects of our material past which survive in theiroriginal position – particularly buildings, monuments,landscapes and buried archaeology. It does nottherefore include discussion of the role of theCounty’s museums, libraries and Record Office,although their importance cannot be understated.

The past is fundamental to our understanding of thepresent. The material past in particular provides anessential sense of continuity and place. It gives ananchor in a world of change. Its protection has tobe balanced against the demands of a modernsociety where changes become ever more rapid. Itis hoped that this Programme will help to focus onall the issues involved and, where this crucial part ofDevon’s heritage is concerned, to enable the bestdecisions to be made.

1.2 DEVON’S HISTORICENVIRONMENT

The ‘historic environment’ encompasses all thosematerial remains that our ancestors have left in thelandscapes of town and countryside. It covers thewhole spectrum of human creations from the largest- towns, cathedrals or highways - to the verysmallest - signposts, standing stones or buried flinttools. With continuous human activity through the

ages, the historic environment comprises virtually allthe rural landscape of England.

Public interest and concern for the historicenvironment has never been greater. People caredeeply about it and will fight vigorously to defend itfrom damage or destruction. In response to thisdesire to protect the historic environment from thegrowing pressures of a modern society, a complexset of charters, laws and regulations have been put inplace to provide a set of checks and balancesbetween conservation and necessary change. In theUnited Kingdom most of these protective measuresare linked to the Planning system which has evolvedto control and direct new development to the bestsocial purpose. However, some of the activities thathave most impact on the historic environmentremain subject to very limited control.

The rich and distinctive nature of Devon’s historicenvironment is apparent in its buildings, in itsmonuments and in the landscape around them. Thisespecially high quality and interest is one of thereasons why this county is such a good place inwhich to live and why it is so attractive to visitors.The care, maintenance and protection of bothindividual historic features and the widerenvironment are thus very important for Devon’seconomic prosperity. Informed appreciation andconservation of the highly varied but special localcharacter of the Devon landscape and its builtenvironment will help maintain Devon’s specialattraction. Devon County Council therefore acceptsthat its protection and enhancement must form anintegral part of its role in the administration of theCounty. It can achieve this in various ways, whichare set out in this Role and Action Programme. Inparticular it can guide and educate the citizens ofDevon in the special value of Devon’s historicenvironment, so that they can appreciate it to its full,and play their part in ensuring that futuregenerations can also share in the unique asset that istheir county.

The historic environment provides perhaps thesingle most important component of what isdescribed as ‘local distinctiveness’ and ‘sense ofplace’. A proper understanding of the historiccharacter and value of an area can be a key factor inestablishing parameters for sustainable regeneration,preventing loss of character through incongruousand inappropriate development. It is also a keycomponent of the `sense of place’, through whichwe relate to our local environment. A fullappreciation of the historic dimension can thereforebe of the greatest value to the development ofappropriate and successful regeneration schemes,rather than the impediment that is sometimessupposed. An area’s past, whether it be picturesqueor entirely functional, can be the key to the integrity

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1. INTRODUCTION

of future development. The County Council shouldtherefore ensure that proper consideration of thehistoric environment and of historic character ismade integral to the planning of regenerationproposals.

The protection of the historic environment, a finitenon-renewable resource, is also wholly compatiblewith the principles of sustainability, another keystoneof Devon County Council policy. Sustainability isdefined as development that meets the needs ofpresent generations without compromising theability of future generations to meet their ownneeds and aspirations.

Available resources are very limited for such a widefield of concern and it is essential to focus them toserve the most vital needs of the historicenvironment. This Programme has been prepared tohelp this aim. It has emerged from the DevonCounty Historic Environment Strategy whichsets out in detail the administrative frameworkwhich applies to the historic environment and placesthe County Council and its role in this setting. Itdefines the special character of Devon’s historicenvironment, explains particular issues which areconsidered to be most important for thesecategories, and describes the various modernpressures on the historic environment and theirpotential impact, whether for better or worse.From this it draws out those objectives whichDevon County Council can most reasonably andeffectively strive to achieve.These issues andobjectives are set out in Sections 2 and 3 below.Section 4, ‘Implementation’, puts forward measuresby which these objectives may be achieved andindicates partners for this purpose.These measuresare intended to provide a basis from which specifictargets and time scales can be established and forwhich funding may have to be sought.

This document relates only to the administrativearea of the present County of Devon.Torbay andPlymouth were historically part of Devon, but arenow separate Unitary Authorities within whichDevon County Council has no remit.

1.3 DEVON COUNTY COUNCIL’SPOLICIES

Devon County Council has long accepted that oneof its responsibilities is the protection of the historicenvironment. This is most recently reflected in theDevon County Strategic Plan 2001-2005:‘Making a Difference for the People of Devon’.It includes as two of five priorities set out in itssection ‘Looking after Devon’s Environment, Cultureand Heritage’, the following:

• To promote awareness, support and sustainculture and heritage in the County.

• To promote and conserve Devon’s naturaland historic environment.

The expression of strategic principles within theHistoric Environment Strategy and this Roleand Action Programme builds upon an earlierstatement that was adopted by Devon CountyCouncil in 2000: ‘Protecting Devon’s HistoricEnvironment: Devon County Council’s Role’which sets out four primary objectives for thecounty’s historic environment:

1.Conservation

2. Identification, Recording and Interpretation

3. Provision of Information and Advice

4. Partnership

The Devon Structure Plan, 1995 - 2011 containsPolicies C9, C11 and C12 concerning the protectionof the historic environment in relation todevelopment proposals. These are again includedwith some modification and strengthening as PoliciesCO6, CO7 and CO8 of the Deposit Draft of theFirst Alteration to the Devon Structure Plan2001 – 2016.The emerging Minerals and WasteLocal Plans also include policies to protect thehistoric environment.

The County Council’s Local Cultural Strategy, whichwas adopted in 2002, sets out Aims, Objectives andActions for the County Council’s cultural servicesfor the next three years.Areas of historicenvironment and its conservation fall within theseAims, Objectives and Actions.

The County Council also accepts that its ownextensive estate needs to be managed in a way thatfully respects the historic environment.

1.4 THE ROLE OF DEVON COUNTYCOUNCIL IN THE HISTORICENVIRONMENT

The County Council plays two significant roles inthe historic environment in Devon. In the first placeit actually owns or manages important parts of theCounty’s heritage either as sites which it conservesand maintains for their historic and amenitysignificance, or as buildings or land which it occupiesfor working purposes. In the first category arenotably Stover Country Park, the Grand WesternCanal, and Denbury Camp. In the second are manylisted buildings, including notably County Hall itself,as well as a large number of schools.As HighwayAuthority it is responsible for many historic bridges,together with other highway features such asmilestones.The 4,600 hectares of the County FarmEstate also contain a significant resource oftraditional buildings and archaeological sites. DevonCounty Council recognises fully its needs to protectand enhance this inheritance. Inevitably the demands


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involved in the everyday use of historic structuresand sites can be at odds with their conservationneeds.The County Council endeavours always toreconcile this potential conflict to the best of itsability.

In parallel to its role as a stakeholder in the historicenvironment, the County Council has long beenrecognised as a centre of excellence in theunderstanding and care of the historic environment.The County Council employs in its HistoricEnvironment Service a small team of specialists inthe fields of archaeology, historic buildingconservation and urban design who play an activerole in the conservation and enhancement of thecounty’s historic environment by both strategicwork and direct action.

Until comparatively recently the historicenvironment has been treated in both national policyand operational aspects in two separate ways – as`archaeology’ and as `historic buildings’. For thisreason the County Council’s service has historicallyevolved in separate streams and is not currently fullyintegrated, so that these two branches of the serviceat present operate in different ways. However, bothmodern conservation thinking and currentgovernment policy (in particular the forthcomingproduction of a combined Historic EnvironmentPlanning Policy Statement linked to a review ofconservation designation) will be likely to encouragea more holistic approach, so that the closerintegration of the service would be appropriate.

The archaeological service of the County Council isconcerned with the protection of the wider historiclandscape, the buried archaeological resource,archaeological `monuments’, industrial, marine anddefence sites and the palaeoenvironmental resource.The archaeology team is also responsible forcompiling and maintaining the primary database forthe County’s archaeological resource: the Sites andMonuments Register (SMR), whose upgrading to amore comprehensive `Historic Environment Record’(HER) is at present under consideration.

The historic buildings team is concerned with thepreservation and enhancement of historic buildings,conservation areas and historic parks and gardens.The primary database for this work is the lists ofbuildings of special architectural or historic interestand the register of historic parks and gardensproduced by central government.

The County Council maintains the County Sites andMonuments Register (SMR), which is the principalsource of information about the County’s historicenvironment. It currently contains some 64,000entries, and a major phase of development iscurrently under consideration. This would entailcreating a `Historic Environment Record’, andinclude moving the record onto a GIS base,integrating all Listed Building records with it, andmaking it fully compatible with other GIS layerscontaining the results of the County Council’sHistoric Landscape Characterisation programme,historic mapping and aerial photographic cover ofthe county, as well as other County Council-heldinformation. The question of levels of externalaccess to the database and the necessary safeguardsis currently under review.

Currently, for nationally important sites andbuildings, English Heritage is the lead body. Allworks affecting Scheduled Monuments (exceptcultivation, which on recently cultivated arable sitesis permitted) are handled by English Heritage.District Councils and National Parks deal with allproposals affecting listed buildings, but if they wish toapprove works relating to Grade I and II* buildingsthese must be referred to English Heritage. In thepast applications affecting Listed Buildings andConservation Areas were often the subject ofconsultation with the County Council’s historicbuildings officer(s), but since 1996 the CountyCouncil no longer routinely offers this advice, andsuch cases are now usually addressed by DistrictCouncil and National Park Conservation Officerstogether with other areas of the historicenvironment, including the preparation ofConservation Area assessments, the supervision ofgrant schemes, and design work in historic areas

The primary workload of the County Council’s twohistoric buildings officers currently consists ofindividual casework affecting historic buildings(especially on the County Council’s own estate),strategic planning advice, advice to the Church ofEngland’s Diocesan Advisory Committee, buildingsadvice to DEFRA, the administration of a buildinggrant budget, giving support to other countybuilding-related organisations (such as the DevonHistoric Buildings Trust and the Devon EarthBuilding Association), project work on recordinghistoric buildings and Buildings at Risk, offeringadvice to the public on and the promotion of bestpractice on building repair especially thoroughpublication. The two officers also at present co-ordinate the County Council’s Environmental Audit

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New archaeological sites are discovered in manydifferent ways. This is one of a group of skeletonsdiscovered on the North Devon Coast by local observers.The skeletons are believed to be shipwrecked marinersburied in unconsecrated ground.

procedures as well as the Devon ConservationOfficers Group.

The arrangements for the delivery of archaeologicaladvice are rather different, although the situation inDevon is similar to that in most other English shirecounties. Apart from the County Council, Exeterand the two National Parks (Dartmoor andExmoor), there are no local authorities withinDevon possessing expertise in the archaeologicalfield.Thus for archaeology the County Council is theprimary source of advice both to itself and tooutside bodies. For the historic environment,although Devon possesses excellent localarchaeological and historical societies, there is nooutside body (such as the Devon Wildlife Trust forbiodiversity matters) that possesses the resourcesto deal with the majority of casework issues.The County Council is therefore usually the onlyorganisation that can provide effective comment onaspects of Devon’s archaeological resource (beyondthose having statutory protection) which may beunder threat from whatever cause, so that frequentlythe County Council’s Historic Environment Serviceforms both the single point for advice and the singleline of defence for non-scheduled archaeologicalsites. Cooperation with the District Councils is keyto this task, as through them suitable conditions canbe attached to planning permissions to protect orinvestigate the archaeology of development sites.Within Exeter and the National Parks this role isplayed by their in-house archaeological advisers.

Archaeological/wider historic environment advice isprovided on strategic and local plans, developmentcontrol (all planning applications in the county areassessed by the team), site management, highway andutility programmes,Woodland Grant Schemeapplications, agri-environment schemes and sitemanagement advice. This advice covers wetland,coastal and marine archaeology, industrial anddefence sites, and historic landscapes, in addition toconventional archaeological sites. The workload inrelation to agri-environment schemes is importantand fast growing, and is discussed separatelyelsewhere. The team is also responsible for theupkeep and development of the SMR and theprovision of its information to inquirers (developers,farmers, members of the public, academics etc) inperson, by post or by digital means. Thearchaeological team also engages with local societiesand groups, provides training, carries out aerialreconnaissance and post-reconnaissance work, and isundertaking, in partnership with English Heritage, aHistoric Landscape Characterisation project for thewhole (historic) county.

At present the staff of the County Council’s HistoricEnvironment service consists of two historicbuildings officers, four professional archaeologistsand one administrative officer, as well as 1.6temporary project-funded archaeologists.Devon County Council has historically had fewer

archaeologists per hectare or per recorded site thanany other county of comparable archaeologicalimportance.

1.5 THE NATIONAL LEGISLATIVEAND ADMINISTRATIVEFRAMEWORK

Devon County Council’s role in the care of historicenvironment sits within a complex framework ofnational legislation.This is described in summarybelow as it stands in early 2003. Substantial change islikely in this area in the future and some indicationof this is also given.

The protection and management of the historicenvironment in England is backed by internationaltreaty and convention commitments, including LocalAgenda 21. These are set out in the separateHistoric Environment Strategy.

The UK Government has recently (December 2001)responded favourably to an English Heritagediscussion document on the historic environmentand its future - ‘Power of Place’. In its response‘The Historic Environment: a Force for ourFuture’, the Government confirms its commitmentto the protection of the historic environment and itsbelief in its overwhelming value to the nation -spiritually, educationally and economically. It identifiesfive strands in its support for the historicenvironment: ’Providing Leadership, RealisingEducational Potential, Including and Involving People,Protecting and Sustaining, and Optimising EconomicPotential’.These objectives conform with many ofthe actions proposed in this Programme, albeit at acounty rather than at national level.

In England the formal regulation and protection ofthe historic environment is carried out through two


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Eastacott Cross, a Scheduled Monument in North Devon.

Acts. These are the Ancient Monuments andArchaeological Areas Act 1979, and thePlanning (Listed Buildings and ConservationAreas) Act 1990, which deal respectively withancient monuments and archaeology, and withhistoric buildings and historic areas, although there isconsiderable overlap between the two. Morerecently the Treasure Act 1996 and itsaccompanying Code of Practice has replaced thearchaic ‘Treasure Trove’ system and introduced newcontrols and guidance on the discovery of certainclasses of archaeological evidence. Alongside theseActs runs the Town and Country Planning Act1990 which provides the framework within whichdevelopment is regulated. These Acts areinterpreted through the Government’s variousPlanning Policy Guidance notes (PPGs), particularlyPPG1 - General Policy and Principles (1997),PPG 15 - Planning and the HistoricEnvironment (1994) and PPG16 - Archaeologyand Planning (1990).

The growth of regional government means thatsome of the responsibilities of central governmentare now being devolved to the Government Officefor the South West, whose Regional PlanningGuidance for the South West (2001) sets outgeneral objectives in regard to the historicenvironment. County Councils and UnitaryAuthorities (e.g. Plymouth) form the next tier ofadministration; Devon County Council has generalpolicies on the historic environment within itsDevon Structure Plan 2001 – 2016. Thesepolicies are refined and expanded on in the LocalPlans prepared by District Councils and NationalParks.

This legislative background has provided anextremely complex system of management for thehistoric environment with responsibility dividedamong the various tiers of local and nationalgovernment. It provides for three basic categoriesof protected buildings, monuments or areas:Scheduled Monuments, Listed Buildings andConservation Areas.

There are many elements of the historicenvironment which do not enjoy formal protectionthrough the above mechanisms. In particular theRegister of Historic Parks and Gardensprovides no statutory protection to the sitesincluded in it. However, categories such as these canbe given at least limited protection through otherlegislation, particularly the Planning Acts.

The Developing Scene:

The legislative and administrative situation describedabove is likely to change radically in the near futureas a consequence of various proposals now beingput forward by the Government. The PlanningGreen Paper of December 2001 has been followed

by the Planning and Compulsory Purchase Bill2002 which proposes the abolition of StructurePlans and Local Plans as well as other changes to theplanning system which may all impact on the historicenvironment indirectly.The intention is also toencourage much greater involvement of thecommunity in the planning process; this could wellprove beneficial to the historic environment. TheGovernment is also considering the revision andamalgamation of PPG 15 and 16, as well as carryingout a review of the various protective designationsto examine if these can be combined or altered tomake them simpler to understand and administer. Itis obviously difficult to anticipate these possiblechanges but they may well be considerable in theirimpact.

The future of the countryside and of farming is beingexamined critically, particularly in the context of theFoot and Mouth outbreak of 2001. Issues hadalready been highlighted by the Rural White Paperof 2000 that sought to encourage rural regenerationby various means, some of which were likely to havea direct impact on the rural historic environment.This paper has been followed by three reportscommissioned by the Government to examine theconsequences of the epidemic. The first of these,The Future of Farming and Food, advocates theretargeting of public funds from agricultural subsidytowards environmental and rural development.

The Department for Culture, Media and Sport(DCMS) statement, A Force for the Future,referred to above, will have some impact on theapproach to Devon’s historic environment,particularly with regard to the development of theDevon County Sites & Monuments Register (seebelow).

1.6 PARTNERS

The County Council is only one of many bodies,from national to local level, involved in the care ofthe historic environment. The County Council’sHistoric Environment Section is perhaps uniquelyplaced to facilitate the implementation of nationaland regional strategies at a local level and hasdemonstrated that Devon County Council canprobably be most effective by acting through and inco-operation with such partner bodies.These rangefrom central government organisations such asEnglish Heritage, through the District Councils andNational Parks at a local government level, toprofessional bodies such as the National Trust, andto local organisations with an interest in variousaspects of the historic environment, such as theDevon Archaeological Association and the DevonEarth Building Association.The private owners of thecounty’s buildings and land must always be the frontline in the protection of the historic environment.Without their good will this would not be possible.

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1.7 INFORMATION

Fundamental to the effective conservation andmanagement of the historic environment is a soundinformation base for decision making. In Devon, asin most counties, this is provided by the CountySites and Monuments Register (SMR) and theListed Buildings records. The SMR contains some64,000 records at present. However, there areconsiderable areas of Devon’s historic environmentthat have never been systematically studied.

The proposed migration of the existing DevonCounty SMR and historic building records onto aGeographic Information System (GIS), integratingcomputerised mapping and database, representsboth a massive challenge and opportunity. PotentiallyGIS offers an immense opportunity not only for thepresentation of historic environment information toa wider audience, but for the study of historicenvironment material together with other datasources in ways that have never before beenpossible.

DCMS, in its document The HistoricEnvironment: A Force for the Future (2002)has stated its view that SMRs should expand intoHistoric Environment Record (HER) by theintegration into existing SMRs of material relating tohistoric buildings, battlefields, and historic parks andgardens. All of these areas are already in principlecomponents of the Devon SMR, although the ListedBuildings coverage is at present incomplete. Theintegration of Listed Building records in theirentirety will therefore be in accordance with theemerging DCMS policy.

Despite the technical and resource implications thetransfer of the SMR onto a GIS ‘platform’ must beregarded as a particularly high priority in theimplementation of this Strategy as a whole.Achievingthis objective will be in line with the CountyCouncil’s strategy for Electronic Government.

1.8 RESEARCH

Much of the Devon County HistoricEnvironment Strategy is concerned with mattersrelating to the discovery, understanding, andconservation of Devon’s historic environment, andwith informing the people of Devon about itsmeaning and value. However, it should beremembered that our understanding of this materialis always interim and partial. The ‘resource’ alsoforms the raw material for future generations tostudy their own past, and our own perception of it isalways changing. The work that is done is alwayssubject to review, and new questions emerge to beasked of the material. Research promoted orcarried out by Devon County Council over the lastthirty years has been one major way in whicheveryone’s perception of Devon’s past has been

changed. Today, much effort goes into theformulation of ‘research agendas’, and at the time ofwriting Devon County Council is one partner in anEnglish Heritage-funded initiative to develop aResearch Framework for South West England. Moregenerally, the interaction of Devon County Councilstaff with scholars of many disciplines contributes tothe development of the study of our past, while theSites and Monuments Register provides afundamental resource for a wide range ofresearchers from academics to local historians.

1.9 ISSUES AND OBJECTIVES

The process of describing and analysing Devon’shistoric environment in the Historic EnvironmentStrategy has made it possible to define the mostimportant issues which make an impact upon itsvarious areas. From these issues it is possible toderive specific objectives for the County Councilto seek to achieve in each of these areas (Section 2below) A similar analysis of those processes andactivities which most impact on Devon’s historicenvironment then follows (Section 3 below).

The individual objectives are set out in detail belowfollowing each section of the discussion. Althoughwithin each topic area there are specific objectives,many other objectives share common features orprinciples and these have been combined intooverarching themes.These can be expressed as thefollowing fundamental policy objectives or KeyObjectives defining the essential directions forwork for Devon County Council in relation to thehistoric environment:

It is recognised that the objectives set out below arevery extensive, covering all aspects of the historicenvironment. It is equally recognised that staff andfinancial resources available to Devon CountyCouncil are obviously limited.The objectivestherefore are not to be seen as intended to bewholly achieved within the next few years, but as aguide to those areas of the historic environmentwhere the County Council should focus its work.Specific targets and priorities will be determinedwithin these objectives through a rolling programmeof annual Action Plans.


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Devon County Council will:

KO 1 Seek in all its undertakings to protect,conserve, make accessible and, whereappropriate, enhance the areas, sites,buildings and landscapes that are ofimportance to the historic environment andcontribute to Devon’s local distinctiveness.Seek to emphasise the contribution that thehistoric environment makes to Devon.

KO 2 Seek to identify, record, interpret andpublish archaeological sites, landscapes,townscapes and historic buildings

KO 3 Maintain and enhance the Devon CountySites & Monuments Register and develop itto a full Historic Environment Record.

KO 4 Seek to protect and encourage others toprotect Devon’s irreplaceable historicenvironment resource, and to provideplanning and site and building managementadvice.

KO 5 Seek to provide accessible advice andinformation to promote the protection,understanding, enjoyment and care of thehistoric environment by everyone.

KO 6 Seek to develop partnerships with allrelevant bodies both professional andvoluntary , in order to maximise efforts toprotect Devon’s historic environment

KO 7 Seek the active involvement of the region’sacademic institutions and other partners inthe study of Devon’s historic environmentand encourage links between academicprojects, national agencies andcounty/regional research agendas.

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2.1 HISTORIC LANDSCAPES ANDHISTORIC LANDSCAPECHARACTER

Devon’s landscape overlies a varied geology.Thislandscape of fields, moor and heathland, woods, lanesand settlements is one of the most importantcomponents of the County’s historic environment asit is direct and visible evidence of centuries ofhuman activity. It is vital to local distinctiveness. Thelandscape as we see it today had largely evolved bythe medieval period. However, its pattern of fields,farmsteads and parishes also includes fragmentaryelements of earlier agricultural systems, such asprehistoric field patterns or “open” medieval fields.In a few places there are more recently createdlandscapes, as for instance those of the Tamar Valleymining areas. Historic landscapes are readilydamaged by the removal of boundaries and otherdevelopment and they only enjoy limited formal legalprotection. The properly considered conservationof its historic landscape is essential if Devon’s specialrural character is to be maintained. In order to dothis it is vital to identify its constituent parts,particularly through “historic landscapecharacterisation”- the analysis of its historicelements. Characterisation, in combination with ananalysis of the landscape’s “natural” components, willfacilitate the objective of conserving the distinctiveelements of the Devon landscape within the aims ofthe planning process.

2.1.1 ISSUES

• The proper relationship of the conservation of thehistoric landscape to the modern needs ofagriculture and development.

• The need to achieve wider recognition of historiclandscape character and specifically its recognitionby local planning authorities and countrysidemanagement agencies.

2.1.2 OBJECTIVES


L 1 Promote consideration of historic landscapesand historic landscape characterisation in allplanning and land management decisions.

L 2 Promote the integration of the concepts of‘historic landscape’ and ‘natural areas’ inapproaches to landscape characterisationand the application of this integratedapproach in the planning system at alllevels.

L 3 Undertake and make accessible a HistoricLandscape Characterisation Project forDevon.

L 4 Encourage the adoption of historiclandscape characterisation asSupplementary Planning Guidance.

L 5 Raise awareness of the historic landscapewithin itself, among partner authorities andagencies involved in the planning processand in countryside management and amonglandowners and the public.

2.2 ARCHAEOLOGY,ARCHAEOLOGICAL SITES ANDFIELD MONUMENTS

Archaeology is the study of the past through thematerial remains left by our ancestors. This evidencecan be buried or upstanding, deliberatelyconstructed or the by-product of other activitiessuch as agriculture. The evidence can be as slight asa few artefacts cast up by ploughing, or an ancientplace name. Archaeology is a finite, non-renewableresource, decaying from its inception. Some sites aredurable and visible as on Dartmoor, others arehidden and are only revealed through excavation oraerial reconnaissance. However because thearchaeological resource is irreplaceable, excavation isonly usually appropriate if the site will otherwise bedestroyed without record or if there is a provenresearch need; non-invasive investigation by such


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2. DEVON’S HISTORICENVIRONMENT RESOURCE

Field patterns at Stockland, East Devon. The landscapeitself can tell us a great deal about its history. In theforeground, the irregular fields are of medieval or earlierdate. The circular enclosure centre right is a prehistoricsettlement, and a further one can be seen incorporatedin the rectangular field system upper left. In the upperpart of the photograph, the very regular field patternshow the ‘parliamentary enclosure’ on Stockland Hill,which took place as recently as 1860. Before then, thehigher ground on this greensand ridge was open roughground.

means as geophysical survey is to be preferred.Many monuments and sites are protected by beingdesignated as Scheduled Monuments, but thisprotection is limited (for example, scheduling doesnot prevent continuing cultivation) and only extendsto the more important monuments; the majority ofcomplex or lesser sites have no formal protection.New sites are discovered regularly but others aredestroyed both by human and by natural processes.

Devon’s archaeological resource preserves theevidence that allows us to reconstruct our historyfrom the furthest past to recent periods. Hand-axesfrom the Lower Palaeolithic (up to half a millionyears ago) are found in the Axminster area, whilecave finds from the Upper Palaeolithic (over 10,000years ago) are known from South Devon. Mesolithicand Neolithic finds (10,000 to 4,500 years ago),principally of stone tools, are scattered throughoutthe county; there are four known examples ofNeolithic causewayed enclosures. Dartmoor isparticularly notable for its upstanding prehistoricremains, domestic, agricultural and ritual, dating fromthroughout the prehistoric period and beyond.Bronze Age (4,500 to 2,700 years ago) barrows arefound not only on Dartmoor but also elsewherethroughout the county, as are Iron Age (2,700 to2,000 years ago) hill forts, some of which are majorfield monuments. Alongside these forts are lesser,enclosed settlements of farmstead scale. Of these,many only survive below ground, and are thereforeonly visible as crop marks. This type of settlementlasted through the Roman period (roughly AD43 to400), continuing to exist alongside the much lesscommon Roman sites, especially those of the townof Exeter with its legionary fortress, walls andbathhouse. Outside Exeter other evidence of theinfluence of the Roman conquest consists of camps,forts and fortlets, a few villas and fragments of theimperial road system. Evidence of the post-Romaninhabitants of Devon is slimmer, although there areremarkable finds of imported 6th centurymediterranean pottery from South Devon, butincreasingly discoveries shed light on a vital butarchaeologically elusive period. Medieval and post-medieval archaeology is all around and beneath us in

Devon’s towns and villages, farms and fields as wellas in prominent monuments such as Norman andlater castles.

2.2.1 ISSUES

• Archaeology preserves non-renewable evidence ofhuman history.

• The physical preservation of archaeological depositsis essential if future generations are to be able fullyto comprehend and investigate their past.

• The archaeological resource is subject toincreasingly rapid degradation.

• Until relatively recently, the lowlands of Devonhave been subjected to very much less study andresearch than the uplands of Dartmoor andExmoor, resulting in a skewed understanding ofthe county’s past.

• The vast majority of archaeological sites in Devonhave no statutory protection. Their continuedsurvival is secured by the commitment oflandowners, through voluntary agreements, andthrough mechanisms such as agri-environmentschemes.

2.2.2 OBJECTIVES

The Key Objectives (1.9) all apply with particularforce as the principal objectives for the treatment ofarchaeology in Devon.


A 1 Promote the appropriate publication anddissemination of the results ofarchaeological excavation and field surveyin Devon.

A 2 Continue to collaborate with EnglishHeritage’s Monuments ProtectionProgramme.

A 3 Press for amendment of the Class Consentsystem which permits continuing cultivationof Scheduled Monuments.

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Boringdon Camp, north of Plymouth. This hillfort is aScheduled Monument, but at the time this photographwas taken the interior was under cultivation.

Where all above-ground elements of an archaeologicalsite may have been destroyed, the below-ground featuresmay be recognised as ‘crop marks’ in certain conditions.Here in the South Hams the line of ditches surroundingprehistoric settlement enclosures show up as a colourvariation in the growing crop.

A 4 Continue its active programme of aerialreconnaissance and support otherappropriate archaeological survey andresearch programmes.

A 5 Work with English Heritage, DEFRA andothers to secure regimes of positivemanagement for vulnerable archaeologicalsites, and strengthen its capacity to carryout this work.

A 6 Encourage individuals, local archaeologicalsocieties and other groups to adoptestablished national codes of practice forthe recording and reporting ofarchaeological sites and finds.

2.3 TOWNS AND RURALSETTLEMENT

With the exception of Exeter, Devon’s towns havetheir origins in the later Saxon period and many ofthe larger towns were in existence by the NormanConquest. In the 12th and 13th centuries many newsettlements were founded with the hope that theywould grow into profitable towns, but most did notsucceed and remain villages today. The medievalpattern of town walls, street and house plots survivewell in some towns such as Totnes, although fewactual buildings, apart from parish churches, survivefrom earlier than the 16th century. Extensiverebuilding took place in the 17th and 18th centuriesin most of Devon’s towns. Urban timber-framedhouses of a particular West Country style arenotable. The rise of Devon as a resort county in the19th century promoted the growth of seaside townssuch as Sidmouth or Ilfracombe, with distinctivelocal styles of architecture. In the 20th centurypressure on Devon’s towns, especially the largerones, has been considerable and damage has beendone to their historic character by insensitivedevelopment. There is a continuing need to protectthis character. The archaeology of Devon’s towns isalso a substantial resource which needs protectionin parallel. When it is threatened by development,then there must be prior proper investigation byexcavation and research.

Some of Devon’s villages were in existence by the10th and 11th centuries; they usually lie at the heartof their own parish and contain the parish church.This administrative function distinguishes them fromother small groups of houses or hamlets, whichoccur throughout the County. The form and plan ofmost Devon villages is irregular. Most villageshistorically contained only one or two substantialfarms; the rest of the dwellings were on a smallerscale. Apart from the parish church (and the churchhouse where it survives), these farmhouses are likelyto be the only buildings of antiquity in the village; theother traditional buildings are likely to be C18 orearly C19 in date. However, Devon’s villages,hamlets and farmsteads represent a resource ofsignificant archaeological potential. Most Devonvillages have substantial modern housing additions tothem, often in architectural styles and layouts thatare unsympathetic to the character of the oldercore of the settlement. There are many pressureson traditional villages resulting from recent increasesto their population and from a changing, car-basedlifestyle.

Devon’s countryside is characterised by isolatedfarmhouses or small groups of farmhouses inhamlets surrounded by their own buildings and land.This is a medieval pattern and it is reflected in theantiquity of very many of the farmhouses. These arebuilt in characteristic vernacular styles using locallydistinctive materials such as cob and wheat reedthatch. The traditional farmstead buildings reflectthe historically mixed nature of Devon’s farming.Some types are special to the County, in particularthe ‘linhay’.

2.3.1 ISSUES

• The conservation needs of the historicenvironment are not always met in satisfying therequirements of development.

• The design of new work does not always givesufficient weight to local distinctiveness.

• Lack of comprehensive information on thecounty’s urban historic environment.

• Competing interest of high-status/economicallysignificant regeneration/redevelopment with scaleof impact on the historic environment.

• Traditional farmhouses are being sold separatelyfrom their land and face pressures formodernisation and alteration.

• Rapid changes in agricultural practices leading toredundancy for traditional farm buildings whichare then threatened either by neglect or byconversion and change of use to other functions.

• Many agricultural works are PermittedDevelopment and are therefore not covered byconsent procedures.


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17th Century merchants houses in Totnes Butterwalk.

• The setting of historic farmsteads often suffersadversely from the impact of modern farmbuildings.

• Inappropriate modern development, combinedwith pressures for road improvements, more carparking and better highway safety in and aroundvillages, erodes their historic character and localdistinctiveness.

• Development by building on open spaces invillages erodes their traditional form.

• The difficulty of ensuring adequate ‘developerfunding’ for archaeological recording of small-scalevillage or agricultural developments.

• The decline in use of traditional buildingtechniques and materials, diluting localdistinctiveness.

• The use of Directions to enable detailed controlof alterations in Conservation Areas is onlysporadically applied in the County

2.3.2 OBJECTIVES


TS 1 Promote the protection of importanthistoric features, buildings, street plans andarchaeological evidence and encourage thepreservation of the historic character of thecounty’s towns and smaller settlements.

TS 2 Promote the identification and analysis ofhistoric character and local distinctiveness insmaller settlements, and seek theirmaintenance in new development and inhighway works in villages.

TS 3 Seek the appropriate recording of thearchaeological and historic building resourcewhere threatened by unavoidable butpotentially damaging development.

TS 4 Seek to ensure in partnership with DistrictCouncils and National Parks that bothbelow ground and above ground dimensionsof the historic environment in towns areappropriately reflected in all DevelopmentPlans, Conservation Area Appraisals,Heritage Economic Regeneration Schemes,Townscape Heritage Initiatives etc.

TS 5 Ensure that awareness of Devon’s richhistoric environment plays a full part indeveloping the regeneration potential ofDevon’s historic towns and settlements.Instigate and support intensive or extensivesurveys of Devon’s major towns, markettowns and coastal resorts.

TS 6 Seek to ensure that new development inhistoric towns and smaller settlements isappropriate in scale and design, respectinghistoric character.

TS 7 Support policies to ensure that newdevelopment is in scale and character withexisting settlements.

TS 8 Promote suitable enhancement of existingpublic areas within historic towns andsmaller settlements.

TS 9 Promote the identification and conservationof the county’s traditional farm buildingresource.

2.4 GREATER HOUSES AND THEIRSETTINGS

Devon has relatively few great houses. The mostnotable in the county are perhaps medievalDartington Hall and from the 18th century CastleHill, Filleigh. In the 19th century Mamhead Houseand in the 20th century Castle Drogo are perhapsDevon’s greatest houses, but more characteristic ofthe county at all periods are more modest medium-sized houses. The parks and gardens that surroundthese houses are similarly relatively modest, althoughthe park at Castle Hill and the gardens at BictonHouse are notable exceptions to this.

2.4.1 ISSUES

• Pressures on major buildings that may lead toproposals for changes and new uses which maycompromise their historic integrity.

• Threats to the settings of major country houses.especially by fragmentation of their surroundingparks and gardens.

• The adequacy of funding for the repair andmaintenance of houses and their gardens.

• The need to ensure that repairs and alterationsare carried out appropriately without damagingthe historic character of the building.

• Visitor pressure on houses and gardens open tothe public can damage their character or fabric.

• The lack of statutory protection for historic parksand gardens

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Knightshayes Court the 19th Century seat of theHeathcoat-Amory family at Tiverton.

2.4.2 OBJECTIVES


GH 1 Support the statutory protection ofRegistered Parks and Gardens.

GH 2 Work with the Devon Gardens Trust andEnglish Heritage to review the Register toinclude omitted important sites.

GH 3 Maintain a ‘local list’ of parks and gardensso that the protection of these can beencouraged.

GH 4 Identify those parks and gardens whererestoration would be appropriate andencourage such restoration.

2.5 INDUSTRIAL ARCHAEOLOGY

Devon has a continuous history of mineralexploitation from flint in East Devon in prehistorictimes to china clay in south and west Devon today.The tin industry of Dartmoor lasted from pre-history to the 19th century and the copper, tin andarsenic mines of the Tamar Valley flourished in the19th century. Iron ore was mined in the BlackdownHills and in north Devon in prehistoric, Roman andlater times. Stone has been quarried since theRoman period, notably Beer Stone, DartmoorGranite and roofing slate in south Devon. The mostimportant manufacturing industries of Devon’s pastwere the wool and cloth industry and potterymaking. Both have left relatively little physical

evidence, notwithstanding that the considerablewealth of Devon in the 16th and 17th centuries wasbased on cloth and that the ceramics of NorthDevon were exported to the New World. A fewlarger 18th century cloth mills still stand; sometowns have 19th century workers’ industrialhousing. In the countryside, corn mills stillcommonly survive, as do lime kilns, constructed toprovide lime for agricultural improvement. Thewarehouses of Exeter and the quays of Dartmouth,Barnstaple and Bideford are among the bestevidence for Devon’s long and extensive involvementin maritime trade.

2.5.1 ISSUES

• The continuing decline of traditional manufacturingindustry in Devon.

• Loss of the industrial archaeological resourcethrough land reclamation and decontamination,regeneration schemes and development.

• Failure to ensure the adequate recording ofindustrial sites before their loss or destruction.

• The perception that redundant industrial buildings,structures and landscapes are ‘eyesores’ or‘derelict land’ and should be removed.

2.5.2 OBJECTIVES


IA 1 Support the ‘Cornwall and West DevonMining Landscape’World Heritage Site Bid,and the management of the site both in theperiod up to and after a successfulInscription.

IA 2 Work with partner agencies to promote theconservation, management, recording andinterpretation of Devon’s historic industrialresource.

IA 3 Continue to advise the relevant localauthorities, national agencies and landmanagers on the historic environmentimplications of mineral planningapplications, Review of Old MineralPermissions, land reclamation schemes andother forms of development or managementof former industrial or ‘brownfield’ sites.

IA 4 Strengthen its own expertise in the area ofindustrial archaeology.


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Devon has a rich heritage of industrial sites. This is anengine house at the former mine of Wheal Betsy, whichhas been consolidated by Dartmoor National ParkAuthority.

2.6 LAND TRANSPORT

Devon has a number of Roman roads, most notablythe road from Dorchester to Exeter and atAxminster its junction with the Fosse Way fromLincoln. Devon’s present huge network of roads andlanes evolved in the Middle Ages and is largelyunstudied. Road improvement through turnpikingcommenced after 1750 and influenced the modernmain road system we have today, besides leavingevidence in the form of tollhouses and milestones.Devon has a very high number of historicallysignificant road bridges including two major medievalbridges at Barnstaple and Bideford. Devon neverhad an extensive canal system, although the ExeterCanal is the oldest in the country. The Stover Canal,the Grand Western Canal and the Bude Canalsurvive in various states of preservation. At its peakc.1900, Devon’s railway network was very extensive,but most of the branch lines have now been closed.The remains of Brunel’s Atmospheric Railway inSouth Devon are historically important andinteresting railway buildings and features survive onboth open and disused lines.

2.6.1 ISSUES

• Lack of research on roads as a component of thehistoric environment.

• The use of ancient bridges by large vehicles hasled to damage in many instances.

• Pressures from EU and other legislation requiringthe strengthening of bridges and other highwayworks.

• Conflict between the traditional construction ofthe county’s historic bridges and modern repairand maintenance techniques.

• Road improvements threaten historic roadsidefeatures such as milestones.

• The need to ensure that a proper balance isstruck between the preservation of Devon canals’historic character and their modern recreationaluse.

• Finding sympathetic and sustainable uses forredundant, often specialised, railway buildings andstructures.

• Protecting from the harmful effects ofmodernisation those buildings that are still in usewhile maintaining them in that use.

2.6.2 OBJECTIVES


LT 1 Seek to emphasise the historic significanceof Devon’s highway network. Continue toensure that decisions on changes tohighways are properly informed by anunderstanding of their historic significanceand character, and to ensure that suchchanges respect local distinctiveness in theirdesign and materials.

LT 2 Protect historic highway artefacts.

LT 3 Ensure that bridge repairs are in sympathywith existing historic character and fabric,and appropriately recorded.

LT 4 Maintain and strengthen an effectiveinternal audit procedure on CountyHighway development and maintenanceprojects.

LT 5 Produce and maintain an up-to-datedatabase of historic roadside features.

LT 6 Continue to work with English Heritage onthe statutory protection of the mostimportant highway structures and roadsidefeatures.

LT 7 Ensure that within its own highwayproposals it will observe best practice inevaluating, modifying and mitigatingimpacts on the fabric and character of thehistoric environment.

LT 8 Ensure that the most important elements ofthe historic railway system are protected indetermining proposals for change to bothfunctioning and closed railways.

LT 9 Seek to promote restoration schemes andmodern recreational uses which are notharmful to and which enhance the historiccharacter and fabric of canals.

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A road bridge originating in the 15th Century over theRiver Dart.

2.7 RELIGIOUS SITES

The predominant religion in Devon for 1500 yearswas Christianity which has left many traces on theCounty’s historic environment.The earliest survivingphysical evidence of Christianity in Devon is slight.There are some ‘Dark Age’ memorial stones innorth, south and west Devon and also some Saxoncross shafts across the county. Archaeologicalevidence from Exeter’s Cathedral Close suggeststhat Christian practice continued from the lateRoman into the Saxon period. Devon had some 30medieval monastic houses in the medieval period,although the remains of these are now mostlyfragmentary. The County’s 600 parish churches areone of the most important and visible componentsof its historic heritage. Most of these were built orrebuilt in the perpendicular style in the 15th or early16th centuries, although many contain elements ofearlier structures. Few new churches were builtafter the Reformation until the later 19th centurywhen not only were many new, usually urban,churches erected, but most of the rural medievalchurches were heavily restored.

Throughout the 18th and 19th century the rise innonconformism led to the extensive construction ofchapels in both town and country so that theCounty now has an outstanding inheritance of thesebuildings. Many of these are simple structures, butthere are some large and fine examples in towns.

Exeter also possesses one of the county’s fewsurviving historic synagogues; it has a fine 18thcentury interior. Falling congregations have led todifficulties for churches in terms of maintenance,

while changing social and religious demands putpressure on church buildings for change andalteration, which may affect their historic integrity.The development of historic settlements around andencroaching on the focal point of the church canoften mean that below ground archaeology extendsbeyond the currently defined churchyard.

The exemptions enjoyed by the majordenominations from listed building control putsalterations to churches and chapels in a specialcategory, in part outside the planning system. This isbeneficial in some respects but problematic inothers. It is important to ensure that the historiccharacter of churches is fully protected within theexisting exemption system.

2.7.1 ISSUES

• The redundancy of religious buildings due todeclining congregations.

• The proper maintenance of historic religiousbuildings in the context of declining congregations.

• Pressures for changes to religious buildings in thelight of the changing needs/demands of moderncongregations.

• Proper investigation and recording of religiousbuildings when changes are made to them.

• The current system of ecclesiastical exemptionfrom Listed Building control for alterations tomany religious buildings.

• The vulnerability of historic church fabric andarchaeology, including burials, during building workand other development within and adjacent tochurches, churchyards and detached cemeteries.

2.7.2 OBJECTIVES


R 1 Promote the recognition of Devon’schurches, chapels and former monastichouses as a crucial component of thecounty’s historic environment.

R 2 Encourage the proper consideration(following the principles of PPG 15 and PPG16) of the historic and archaeological valueof Devon’s churches and chapels inproposals for their repair, alteration andconversion, and seek to ensure properrecording.

R 3 Advise the church and chapel authorities inseeking the best solutions for the future oftheir historic buildings.

R 4 Monitor the effectiveness of the currentprocedures associated with ecclesiasticalexemptions in protecting the historic aspectsof churches and their environs, and seek tomaintain links with the relevant authorities.


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Sandford’s 16th Century church and its 19th

Century churchyard gate.

2.8 DEFENSIVE SITES

Warfare and defence have left a considerable markon Devon’s landscape. Large hillforts of Iron Agedate occupy strategic positions on hills andpromontories. Earthwork traces of some Romanforts survive, as do parts of the Roman defences atExeter. Lydford has Saxon defensive banks, andthere are many Norman motte and bailey castles,although only a few of these developed intomedieval masonry castles as at Okehampton.Devon’s hills are full of reminders of the ‘early-warning’ fire beacons that were built variously in themedieval and Tudor periods. Coastal artilleryfortifications begin in the Tudor period and reachedtheir peak in the 19th century around Plymouth,with chains of forts and batteries, facing both out tosea and inland. Dartmoor contains some of thecounty’s oldest military training areas.The SecondWorld War has left a legacy of anti-invasiondefences, such as pill boxes, anti-tank devices, radarstations and anti-aircraft emplacements, alongsideevidence of the air and sea counter-offensive,especially airfields and D-Day training andembarkation areas.

2.8.1 ISSUES

• Rapid changes in MOD’s operational requirementsleading to new development proposals and theredundancy of modern defensive sites.

• The popular perception that 20th centurydefensive sites and structures are ‘eyesores’ ratherthan part of our national heritage.

• Finding new sustainable uses for buildings andstructures designed and built specifically fordefence purposes.

• The need to protect and positively manage sitesstill forming part of the Defence Estate.

2.8.2 OBJECTIVES


D 1 Encourage the preservation, positivemanagement and interpretation of Devon’sdefence heritage.

D 2 Raise awareness of the diversity andimportance of Devon’s defensive sites.

D 3 Develop proposals to enhance publicawareness of Devon’s rich 20th centurydefence heritage.

2.9 PALAEOENVIRONMENTALARCHAEOLOGY

The study of soils, sediments, peat, pollen, seeds,insects and shells can all throw light on past humaninfluence on the environment. These remainsprovide evidence of climate and sea-level change, andof the impact humans have had on theirsurroundings. Such evidence is particularlyimportant in demonstrating the manner in whichover many thousands of years we have changed thelandscape from its original ‘natural’ form to itspresent state. It can also throw light on diet andagricultural practices in the past. Suchenvironmental evidence is easily lost through humanintervention that inadvertently destroys theconditions necessary for its preservation.

Areas of wetland, such as blanket bogs on Dartmoor,spring mires in the Blackdown Hills, Culm Measuresand estuarine marshes, probably represent the mostextensive areas of palaeoenvironmental potential inDevon. However such evidence may also be found inmore localised areas such as infilled wells, abandonedriver channels and ancient soils sealed beneathhedgebanks.

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Second World War defences, such as this pillboxprotecting a beach on the South Devon coast, areincreasingly appreciated as the surviving reminders ofrecent historical events.

Sampling of peat deposits at Roadford Reservoir. Pollenfrom peat can allow the reconstruction of the pastlandscape.

2.9.1 ISSUES

• This resource is not well recognised anddocumented and thus is subject to loss throughcasual human agency as well as by naturalprocesses.

2.9.2 OBJECTIVES


P 1 Seek to identify, protect and record thepalaeoenvironmental resource.

P 2 Ensure that the palaeoenvironmentalresource is considered integrally with otheraspects of Devon’s historic environment indecisions affecting land management andland use change.

2.10 THE MARINE AND COASTALHISTORIC ENVIRONMENT

The coastal zone, both below and above the water’sedge, is historically very important in a maritimecounty such as Devon. Its archaeology extends fromwrecks to submerged landscapes, from shipyards tocoastal defences. Often submarine deposits are wellpreserved until exposed, when their deteriorationcan be rapid. This is a vulnerable resource, subjectto many threats.

2.10.1 ISSUES

• The implications for the coastal and marinehistoric environment of sea level change, andchanges in policy on matters such as coastaldefence and managed retreat.

• The impact of coastal erosion and sea levelchanges on the historic resource of the coastalenvironment, and the impact of other works suchas coastal defence measures, or the deepening ofharbours and channels by dredging.

• Lack of baseline information on the historicenvironment resource for much of Devon’sintertidal zone and estuaries.

• Lack of a clear division of responsibility andallocation of funding for the historic environmentin the intertidal zone and estuaries.

• The demand for residential and commercialdevelopment in ‘desirable’ waterside locations.

2.10.2 OBJECTIVES


M 1 Seek to identify, survey and record themarine, estuarine and coastal archaeologicalresource, to protect it from damage bydevelopment and by natural forces, and tosecure its positive management.

M 2 Ensure historic environment input to coastand estuary management services and tothe Environment Agency in the production ofcoast and estuary management plans.

M 3 Encourage national, regional and localagencies, local interest groups and divinggroups in the implementation of codes ofconduct regarding maritime archaeology.


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The wreck of a ship partially buried in the sands atWestward Ho!

3.1 NATURAL PROCESSES

The historic environment is subject not only todamage from human action, but also from naturalprocesses. Coastal erosion destroys sites on theland’s edge as well as submerged sites. Climatechange may produce various damaging effects, fromrising sea levels to the drying-out of waterloggeddeposits. Soil erosion exposes buried sites, frost andrain erode monuments and buildings which can alsobe damaged by animal activity. Efforts to counterprocesses that are the product of environmentalchange may themselves damage the historicenvironment.

3.1.1 ISSUES

• The historic environment is constantly subject todegradation from natural processes such aserosion, vegetation growth and animal activity.These problems are likely to be exacerbated bythe effects of global warming and by currentefforts to counter these.

3.1.2 OBJECTIVES


NP 1 Anticipate and monitor the impact ofnatural processes on the historicenvironment. Where such threats cannot becontrolled or mitigated, appropriatearchaeological recording will be sought inpartnership with relevant authorities andagencies.

3.2 AGRICULTURE AND FORESTRY

Much of Devon’s historic environment lies within thecountryside, the product of centuries of farmingpractice. It is only partly protected by legislation andby management schemes. Agriculture activity hasbeen demonstrated to pose the greatest singlethreat to England’s archaeological resource. Mostforms of modern agriculture can be damaging toburied archaeology and to field monuments (themost benign regime is grazing, especially by sheep).Many changes increase this problem. Largermachines put pressure on field boundaries andcompact the soil. Increasing arable cultivation andnew energy crops erode buried deposits. Forestryinvolves much ground disturbance.The uplands,including Dartmoor and Exmoor, are sensitive toagricultural pressures through both under and overgrazing. Traditional farm buildings are faced withredundancy. Farming practices are at present heavilyinfluenced by subsidy through the Common

Agricultural Policy (CAP). Only small amounts areavailable for agri-environmental schemes, whichlimits the potential for management schemes.Nevertheless, there are continuing initiatives in thisarea.

3.2.1 ISSUES

• Agricultural intensification and changes in holdingsize.

• The decline in traditional stock farming, increasingarable cultivation and free-range pig rearing, theintroduction of novel crops.

• The fact that ‘Class Consent’ permits continuingcultivation on Scheduled Ancient Monuments.

• The fact that agri-environment scheme paymentsare in direct competition with agricultural supportpayments but with great disparity in levels ofpayment.

• Land abandonment leading to undergrazing andresulting growth of scrub.

• Continuing removal and deterioration of fieldboundaries.

• Rapid changes in agricultural practices leading toredundancy for traditional farm buildings whichare then threatened either by neglect or byconversion and change of use to other functions.

• The twin effects of erosion and compaction ofsoils caused by ploughing results in year-on-yeardamage to buried archaeology.

3.2.2 OBJECTIVES


AF 1 Work with national, regional and localpartners to identify, protect, and promotethe rural historic environment.

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3. FACTORS AFFECTING DEVON’SHISTORIC ENVIRONMENT

A small cob barn in Mid Devon.

AF 2 Strengthen its own capacity to providepositive management advice.

AF 3 Promote the removal of vulnerablearchaeological sites from cultivation andtheir benign management.

AF 4 Ensure the proper integration of historicenvironment considerations in agri-environmental schemes, at policy anddelivery levels. Provide archaeologicalmanagement advice to landowners,statutory undertakers, and partnerorganisations involved in the agri-environment programmes.

AF 5 Continue to provide advice to landownersand land managers, including the nationalforestry agencies, on the management ofexisting woodland, new planting schemesand energy crops.

AF 6 Support the introduction of whole farmmanagement plans, integrating historicenvironment and historic landscapeconsiderations with other environmentalmanagement issues.

AF 7 Promote the identification and protection ofthe historic environment on its farm estate.

AF 8 Support research into the mitigation ofdamage caused by agricultural activity toarchaeological sites.

3.3 CONSTRUCTION ANDDEVELOPMENT

Development in all its forms has created much ofthe historic environment but at the same timedestroys many of its elements, particularly belowground archaeology. A balance has to be soughtbetween it and the preservation of the historicenvironment on a case-by-case basis. PPG15 andPPG16 set out the guidelines for achieving thisbalance. When the benefits of new development areconsidered to outweigh the merits of conservation,they supply the mechanism for influencing the designof a scheme or for recording what is to be lost. TheDevon County Structure Plan sets out the likelyamount of new development up to 2011, updated to2016 in the latest deposit draft, and this provides acoarse indication for this period of the likelypressures on the historic environment which will becaused by development. Within the advice of thePPGs, it is found to be easier to argue for theretention of historic buildings than for thepreservation of archaeological deposits. Althoughthe latter can be excavated and recorded, theirpreservation in situ is preferable. In order to ensurethat a proper balance is achieved betweendevelopment and conservation, full information onthe historic environment is essential, whether it beof individual buildings and structures, or anassessment of overall character, either rural or

urban. The historic environment makes a majorcontribution to the character and distinctiveness oftowns and villages and is a key component in urbanregeneration. Devon County Council through itshistoric environment service plays an important rolein its protection.

3.3.1 ISSUES

• Planning officers, developers and decision-makersare insufficiently conscious of the importance ofthe historic environment.

• Guidelines for the protection of the historicenvironment set out in PPG 15 and 16 are notfully followed by planning officers and developers.

• Inconsistent levels of available information on thehistoric environment against which developmentproposals can be assessed.

• The proper balance between development and theprotection of the historic environment is notalways achieved.

• Elements of the historic environment that aredestroyed in the development process are notalways recorded.

• The inadequacy of some policies in strategic andlocal plans for the protection of the historicenvironment.

• The uneven quality of new design in historic areasand contexts.

• Locally distinctive elements are damaged or lost inthe development process.

• PPG 15 and 16 are currently under review and thenature of revised guidance is not yet known.

• The decline in use of traditional buildingtechniques and materials, diluting localdistinctiveness (see also 2.3.1).

3.3.2 OBJECTIVES


C 1 Unless exceptional circumstances applyDevon County Council will opposedevelopment that would harm the mostimportant archaeological sites, historicbuildings, settlements and landscapes.

C 2 Monitor all development proposals in thecounty in order to assess their impact on thearchaeological resource and other aspects ofthe historic environment, and provide adviceon the mitigation of such impacts.


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C 3 Identify, record and interpret archaeologicalsites, townscapes, historic buildings andhistoric landscape character as an aid toeffective planning control, and provideaccessible advice and information on theseinternally and to other local planningauthorities, developers, statutoryundertakers and others.

C 4 Develop partnerships with the nationalheritage agencies, local planning andconservation authorities, amenity groupsand local communities in order to integrateefforts to protect the historic environment.

C 5 Promote the sustainable reuse of historicbuildings and structures.

C 6 Ensure that future development plans, ortheir successors, contain appropriate androbust policies on planning and theprotection of the historic environment.

C 7 Develop a strategy for the recording ofhistoric buildings and encourage its adoptionby Devon’s local authorities.

C 8 Promote higher standards in archaeologicaland building recording commissioned bydevelopers, and better provision for thearchiving and publication of the results ofsuch work.

C 9 Secure better arrangements for thepublication, storage of records and findsfrom archaeological excavations andbuilding recording work commissioned bydevelopers.

3.4 CARE AND REPAIR OFBUILDINGS

Historic buildings need to be maintained in a goodcondition and repaired in a suitable manner. Themajority are listed which enables local authorities tointervene to ensure that they are properly cared for,as well as to control the nature of alterations.Repairs - as opposed to alterations – to historicbuildings are not always controlled by law, and areoften carried out using inappropriate materials andtechniques, despite advice being available from bothlocal authorities and non-statutory organisations.Grants can help to meet the additional cost ofcarrying out repairs using correct, traditionaltechniques. Some listed buildings nevertheless fallinto disrepair and are considered to be at risk.‘Buildings at Risk’ surveys in Devon are largelyincomplete and the current number at risk in Devonis not known. A survey in this area is much needed.Local authorities have the potential powers tocompulsorily purchase listed buildings at risk, so asto achieve their repair. More widespread awarenessof the appropriate means to care for historicbuildings remains the key to prolonging theirexistence for the enjoyment of future generations.

3.4.1 ISSUES

• Historic buildings are still repaired and alteredusing inappropriate methods and materials.

• Some historic buildings are neglected by theirowners and fall into disrepair. No full survey of theCounty has been carried out to determine howmany of these buildings there are and where theyare located.

• There are inadequate funds and resourcesproperly to grant aid repairs to all the historicbuildings at risk.

• Traditional farm buildings are at particular riskthrough changing patterns of agriculture.

• Historic buildings are altered without properrecord being made.

• The decline in use of traditional skills and buildingmaterials (see also 2.3 and 3.3).

3.4.2 OBJECTIVES


CR 1 Support programmes to identify, rescue andrepair Buildings at Risk.

CR 2 Seek to ensure through advice andpublication that repairs to historic buildingsare carried out using appropriate techniquesand materials and are not damaging to theircharacter and fabric.

CR 3 Encourage the supply of suitable materials(especially traditional materials) for therepair of historic buildings.

CR 4 Promote policies for the identification,protection, study and recording of historicbuildings in the county.

CR 5 Contribute towards and encourage grantschemes (in particular Townscape HeritageInitiatives and Heritage EconomicRegeneration Schemes) for the repair ofhistoric buildings in the county.

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Re-thatching the roof of a round linhay on BrauntonMarsh.

CR 6 Inform and educate the owners of historicbuildings, builders and other craftsmen, andthe general public on the value andsignificance of historic buildings and on thebest techniques and approaches for theirrepair and maintenance.

3.5 MINERAL WORKING ANDWASTE MANAGEMENT

Mineral working is a significant industry in Devon.Four thousand hectares have planning permission,principally for the extraction of sand, gravel, stoneand clay. Such quarrying can destroy archaeologicalsites and monuments either directly or indirectly -the latter especially by the tipping of mineral waste.The Devon County Minerals Local Plan hasrecognised that the protection of the historicenvironment should be a prime consideration indecision-making on mineral extraction proposals.The Review of Old Mineral Permissions (ROMPs)process has resulted in a number of sites ofarchaeological potential being identified andprotected.

The emerging Devon County Waste Local Planidentifies about half of the existing waste disposalsites as being suitable for further development, aswell as five areas of search for new facilities. Thereare specific policies within the Plan intended tomitigate any impacts on the historic environmentcaused by this development.

Funds are now potentially available from both theLandfill Tax and the Aggregate Levy for theconservation and interpretation of the historicenvironment.

3.5.1 ISSUES

• Damage caused to archaeological sites and historiclandscape features on greenfield mineral or wastesites from mineral extraction, landfilling orlandraising and other ancillary works.

• Damage to archaeological sites and historiclandscapes on greenfield sites due to the removalof topsoil, either to engineer landfill sites, or toprovide capping material for landfill sites.

• Damage or loss of historic mining and quarryingstructures and features through the working ofwaste and mineral sites and in the process ofreclaiming these sites.

• The potential threat to the historic environmentin areas of known mineral reserve, whichcommonly enjoy a high quality of archaeologicaland historic landscape preservation, particularly inthe gravel and china clay reserve areas.

3.5.2 OBJECTIVES


MW 1 As Mineral and Waste Planning Authoritywork with the mineral and waste industriesto secure protection of the historicenvironment through the Mineral and WastePlanning and ROMPs processes.

MW 2 Ensure that the importance of historicmining and quarrying remains is assessedand their significance considered whendeciding on afteruse.

MW 3 Ensure that derelict land reclamationschemes on former mineral and waste sitesallow for conservation opportunities to befully developed without unnecessary loss ofhistoric features.

MW 4 Work with English Heritage and otherpartners, including local community groups,to identify and develop historic environmentfocussed initiatives utilising the Landfill Taxand the Aggregate Levy Fund.

3.6 TRANSPORT, INFRASTRUCTUREAND UTILITIES

The provision of new transport routes and newenergy, water, sewerage and communicationsinfrastructure, and associated developments, createsboth threats and opportunities to the historicenvironment of Devon.

New infrastructure projects often involve majorworks that have the potential for damaging ordestroying the historic environment over extensiveareas. However, when properly resourced mitigationis in place, they also present an opportunity toundertake significant recording of the historicenvironment.

Early consultation on the location and route oftransport and other infrastructure projects is crucialfor the protection of the Historic Environment.


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An early 19th Century listed house near Honiton,threatened by neglect.

3.6.1 ISSUES

• Increasing pressures to build new roads and toalter existing ones inevitably impact upon thehistoric environment.

• The mitigation of impacts on the historicenvironment is made difficult by decisions made inadvance on the route or location of a transport orinfrastructure development.

• The large scale of many infrastructure projectsinvolves the total destruction of archaeology,buildings and historic landscape over a wide area.

• There needs to be greater use of locally distinctivematerials, particularly in highway design.

3.6.2 OBJECTIVES


TI 1 Promote the protection of the historicenvironment through the adoption ofappropriate codes of practice and theimplementation of existing codes andenvironmental audit procedures.

TI 2 As a Highway Authority and in partnershipwith other national and local agencies workto minimise the impact of transportdevelopments on the historic environment.

TI 3 Encourage early consultation on routeplanning and other infrastructure projectsand make available historic environmentinformation to assist decision-making.

TI 4 Work with highways authorities, partneragencies and the utilities to design andmonitor the implementation of appropriateexcavation and recording programmes forarchaeology and the built environment.

3.7 THE COUNTY ESTATE

Devon County Council owns 4,600 hectares ofagricultural land with farmhouses and farm buildings,as well as seventy-three listed buildings, and threehundred and eighty listed bridges. The historicelements of the farm estate have not beenresearched and identified and this is an urgentrequirement for this work to be carried out toensure their proper consideration. There arepressures on other Devon County Council ownedlisted buildings, especially schools, which need to becarefully considered so as not to damage thesebuildings’ historic character.

3.7.1 ISSUES

• The absence of adequate information and agreedpolicies on components of the historicenvironment contained within the County Estate.

• Financial and other pressures on the buildings andland in the Estate which threaten its historicelements.

3.7.2 OBJECTIVES


CE 1 Establish sound mechanisms for theidentification and management of thehistoric environment in the County’s ownestate.

CE 2 Ensure that those elements are fullyconsidered and best protected in the processof the County Council’s activities and inconsidering proposals for change to theCouncil’s estate.

CE 3 Monitor the condition of those elements ona regular basis.

3.8 THE DEFENCE ESTATE

The Ministry of Defence occupies extensive land inthe south west, mostly for training purposes, inparticular on Dartmoor. These areas of historiclandscape contain significant archaeological andhistoric elements, in particular prehistoricmonuments. Military activity can damage these and“eyesore” removal can impact on more recentmilitary heritage. The MOD is however becomingmore conscious of the need to protect the historicelements of its estate.

3.8.1 ISSUES

• The need to ensure positive management ofarchaeological and historic sites and buildings stillin the care of the Defence Estate.

• Rapid changes in MOD’s operational requirementsleading to new development proposals and theredundancy of existing sites.

3.8.2 OBJECTIVES


DE 1 Encourage the protection and positivemanagement of the Historic Environmentwithin the Defence Estate.

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3.9 TOURISM

Tourism is a major industry in Devon and thehistoric environment is a key component of theCounty’s attractiveness to visitors. Income fromtourism can support the maintenance of historicbuildings and settlements, both directly andindirectly. Access to the historic environment needsto be expanded to accommodate all social groups,but it needs to be monitored, controlled andmanaged to prevent undue damage and disturbancefrom over-use.

3.9.1 ISSUES

• The tourism potential of Devon’s historicenvironment, other than certain establishedattractions, is not understood or appreciated.

• Recognition of the fact that Devon’s historicenvironment, visible in its countryside, towns andvillages, is of fundamental importance to Devon’simage as a tourist destination and thereforecontributes greatly to the County economy.

• There is a need to achieve a sustainable balancebetween encouraging access and enjoyment of thehistoric environment and protecting archaeologyand buildings from damage by visitor numbers.

• The direct threat to the historic environment byspecific tourism activities such as unregulatedmetal-detecting holidays, off-road cycling/drivingand wreck diving.

3.9.2 OBJECTIVES


TO 1 Work with national, regional and localpartners to promote the appropriate use ofDevon’s historic environment as arecreational and educational resource.

TO 2 Protect the historic environment frominappropriate leisure development anddamaging levels of visitor pressure.

TO3 Promote economic regeneration throughappropriate tourism based upon the historicenvironment, provided that this does notcompromise the special character of thehistoric environment.


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Visitors to Tiverton Castle.

The Historic Environment Strategy sets out Objectives for the County Council service for each area of the historic environment in Devon. The measures necessary for theimplementation of the Objectives of the Strategy are set out in the final column of the table that. For each of these, a more detailed Implementation Plan will in due course beneeded, but this will necessarily be done gradually and in a prioritised way. It is recognised that the objectives set out below are very extensive, covering all aspects of the historicenvironment. It is equally recognised that staff and financial resources available to Devon County Council are limited.The objectives therefore are not to be seen as wholly achievablewithin the next five years, but to indicate those areas of the historic environment where the County Council will play an active role. Specific targets and priorities will be determinedwithin these objectives through a rolling programme of annual Action Plans.

A glossary of abbreviations in this section is attached at its end.

Implementation proposals for the objectives identified in the Devon Historic Environment Strategy. Sections refer to Sections in the strategy, while the KeyObjectives are over-arching.

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4. STRATEGIC ROLE, OBJECTIVES AND PRIORITIES FOR ACTION

KEY OBJECTIVES ISSUES ACTIONS- FIVE YEAR PROGRAMME By whom

KO 1 Seek in all itsundertakings to protect,conserve, makeaccessible and, whereappropriate, enhance theareas, sites, buildingsand landscapes that areof importance to thehistoric environment andcontribute to Devon�slocal distinctiveness.Seek to emphasise thecontribution that theHistoric Environmentmakes to Devon.

The key objective that informs allthe proposed actions that follow.The Government urges LocalAuthorities to appoint a Championfor Historic Environment and toprovide appropriate training forMembers in Historic Environmentmatters.

� Adopt appropriate policies in all areas of CountyCouncil activities.

� Appoint a Historic Environment Champion� Establish a suitable programme of training for

Members.� Maintain and enhance the Historic Environment

Record (HER).� Provide advice on all forms of change to Devon

historic landscapes, buildings and archaeologicalsites.

� Resource and manage adequate budgets forschemes of direct work and grants.

� Deliver objectives both directly and through advice tothird parties.

� Ensure that where change is inevitable a properrecord is made.

� Ensure the provision of adequate staffing to achievepreviously adopted objectives.

� Improve casework recording systems and develop,in conjunction with national initiatives, performanceindicators.

� DCC

� DCC� DCC

� DCC (HES)

� DCC (HES)

� DCC (HES)

� DCC

� DCC (HES)

� DCC (HES) and partners(English Heritage)

� DCC (HES)

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KO 2 Seek to identify,record and interpretarchaeological sites,landscapes, townscapesand historic buildings.

Excellent recording measures arein place for some classes ofdevelopment. However, thequality of record for other areas ofthe historic environment is stillvariable. A sound informationbase is the key to consistentdecision making.

� Identify geographic and subject areas where surveyis necessary, as detailed in the following pages.

� Commission and encourage surveys, research,rescue recording etc both by DCC and outsidebodies, whether professional or part time, intoDevon�s Historic Environment.

� Enhance the Historic Environment Record (HER).� Contribute to English Heritage�s Monument

Protection Programme (MPP) and other protectionmeasures.

� Complete the Historic Landscape Characterisation ofthe county.

� DCC (HES) and partners


� DCC (HES)� DCC (HES)

� DCC (HES)/English Heritage

KO 3 Maintain andenhance the DevonCounty Sites &Monuments Register anddevelop it to a fullHistoric EnvironmentRecord.

One of the fundamental tasks ofthe HES. Government, in A Forcefor Our Future, requires expansionof SMRs to cover the entireHistoric Environment.A major review of the SMR�s datastructure and content is inprogress, in conjunction withnational initiatives in this area andthe County Council�s own e-govtproject.Consideration needs to be givenas to whether it remainsappropriate for the County Councilto maintain the SMR for the twoNational Park Authorities, giventheir increasing autonomy

� Develop proposals for full Historic EnvironmentRecord.

� Consider carrying out data audit.

� Address backlog.� Develop and resource GIS base and digitise

necessary information sources.� Develop appropriate layers of information for wider

access.

� Integrate buildings records.

� Review maintenance of records for National ParkAuthorities in the context of the need for acountywide record.

� DCC (HES)

� DCC (English Heritage fundingmay be available)

� DCC (HES)� In progress under e-govt initiative

� In progress, as English Heritagemakes information available

� DCC (HES)/English Heritage/NPs

� DCC (HES)

KO 4 To protect andencourage others toprotect Devon�sirreplaceable HistoricEnvironment resource,and to provide planningand site and buildingmanagement advice.

Both the present fabric and theunderlying structure of Devonlandscapes and townscapesderive from their past and this isnot always recognised. Individualarchaeological sites are notalways recognised for their realimportance.

� Create and maintain an excellent HER.� Promote excellent policies at national, regional and

local level.� Maintain a strong DC/advisory service.� Expand capacity for outreach.

� DCC (HES) with partners. (allKO4 measures)

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KO 5 Seek to provideaccessible advice andinformation to promotethe protection,understanding,enjoyment and care ofthe historic environmentby everyone.

For archaeology in particular, theHES is normally the only source ofadvice under PPG16 in theCounty.

� Make the HER more accessible.� Expand outreach work.� Provide advice on site/building conservation and

management.� Undertake and foster the publication of both

scholarly and popular material and promote thereduction for the backlog of unpublished excavationsin the County.

� DCC (HES) with partners. (allKO5 measures )

KO 6 Seek to developpartnerships with allrelevant bodies bothprofessional andvoluntary, in order tomaximise efforts toprotect Devon�s historicenvironment

The development of newinitiatives in the past with diversefunding sources can lead tofragmentation of effort andinformation. DCC has a key role inintegrating the results of suchwork.

� Expand partnership working with local, regional andnational partners.

� DCC (HES) with partners

KO 7 Seek the activeinvolvement of theregion�s academicinstitutions and otherpartners in the study ofDevon�s historicenvironment andencourage links betweenacademic projects,national agencies andcounty/regional research.

Engagement with other branchesof archaeological study isimportant for DCC's capacity tolook after the Historic Environmentin Devon, as well as the standingof the HE service, and for theprofessional development of staff.Maintaining contact withdevelopments in the subject isvulnerable to pressure of work.

� Contribute to the forthcoming ALGAO/EnglishHeritage `Research Framework� project.

� Maintain and expand individual research interestsand contacts.

� Contribute to the Historic Farm Buildings Groupconference in Devon 2003.

� Maintain networks of contacts in particular with localand external enthusiasts and scholars.

� Continue to contribute to policy development atregional and national level.

� DCC/ALGAO/English Heritage

� DCC (HES)

� DCC (HES)

� DCC (HES)

� DCC (HES)

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OBJECTIVES ISSUES ACTIONS- FIVE YEAR PROGRAMME By whom

LANDSCAPE

L 1 Promote considerationof historic landscapes andhistoric landscapecharacterisation in allplanning and landmanagement decisions.

Too often the Devon landscape isseen either as `natural� (whereasin fact it is almost entirely aproduct of human action) or solelyas a visual phenomenon. Agreater understanding of itsevolution will permit moreinformed decisions to be takenabout its character and the properconsideration of projectedchanges (e.g. in determiningareas where more tree plantingmay be appropriate).

� Engage with land use planners at earlier stages ofPlan development.

� Outreach and explanation of Historic LandscapeCharacter approaches.

� Develop the appropriate dissemination of HistoricLandscape Characterisation information.

� Promote the use of Historic LandscapeCharacterisation and landscape characterisationbased approaches in policy development andcasework at all levels.

� DCC (HES)

� DCC (HES)

� See L3

� DCC (HES)

L 2 Promote the integrationof the concepts of �historiclandscape� and �naturalareas� in approaches tolandscape characterisationand the application of thisintegrated approach in theplanning system at alllevels.

At present the schemes of`Character Areas�, `Natural Areas�and `Historic LandscapeCharacterisation� run parallel.However, they all describe facetsof the same landscape, andmethods to reconcile theircombined or integrated use mustbe developed.

� Maintain dialogue with colleagues in TheCountryside Agency, English Nature and within theplanning process.

� In particular, establish closer liaison with Devon�sAONB services, establishing regular meetings orseminars with them.

� DCC (HES)

� DCC (HES)

L 3 Undertake and makeaccessible a HistoricLandscape CharacterisationProject for Devon.

This highly successful programmeis now in the second year of three.

� Confirm external funding for third year to completeproject.

� Plan for and resource extension of project to developoutreach tools.

� Develop and resource mechanisms to makeinformation available on corporate GIS.

� English Heritage

� DCC/English Heritage

� DCC/English Heritage

L 4 Encourage the adoptionof historic landscapecharacterisation asSupplementary PlanningGuidance

This will be appropriate when L3is complete, in 2004.

� In collaboration with planning authorities, preparedraft Supplementary Planning Guidance.

� DCC (HES)/District Councils

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L 5 Raise awareness of thehistoric landscape withinitself, among partnerauthorities and agenciesinvolved in the planningprocess and in countrysidemanagement and amonglandowners and the public.

At present the historic componentof landscape character, even in acounty where so much of itscherished landscape character isof great antiquity (e.g. Devonhedges), the cultural, as opposedto the natural, origin of thesefeatures is not alwaysappreciated.

� When the HLC exercise is complete (see L3), usethis for a programme of education and outreach.

� DCC (HES)/ English Heritage

ARCHAEOLOGY

The Key Objectives allapply with particular forceas the principal objectivesfor the treatment ofarchaeology in Devon.

A 1 Promote theappropriate publication anddissemination of the resultsof archaeologicalexcavation and field surveyin Devon.

A continuing responsibility of theHES is to foster soundarchaeological work in the county.The review of unpublished work isan ongoing task.

� Promote publication of outstanding Barnstapleexcavations.

� Bring Great Torrington excavation to publication.

� Foster the publication of the Roadford Reservoirproject.

� Ongoing review of other projects, both initiatedthrough DCC and external work in Devon and thepromotion of proper publication projects.

� DCC/English Heritage/NorthDevon DC/ local and academicorganisations

� DCC/Royal Albert MemorialMuseum/local organisations

� DCC (HES)/South WestWater/South West LakesTrust/English Heritage

� DCC (HES) in partnership

A 2 Continue to collaboratewith English Heritage�sMonuments ProtectionProgramme.

The SMR is the primary source ofinformation of this process.

� Continue to provide data and recommendations toEnglish Heritage.

� Contribute to the current (2003) review ofdesignations by DCMS and respond to its outcomes.

� DCC (HES)

� DCC (HES)

A 3 Press for amendmentof the Class Consentsystem which permitscontinuing cultivation ofScheduled Monuments.

The cumulative effect ofcultivation is the single greatestcause of loss of archaeologicalsites in the countryside.

� Continue to make submissions at technical andpolitical level to government for reform of thisanomaly.

� DCC and local bodies

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A 4 Continue its activeprogramme of aerialreconnaissance andsupport other appropriatearchaeological survey andresearch programmes.

Aerial reconnaissance is thesingle most important source ofnew information to the SMR in thelast twenty years.Many area of Devon and manyspecific topics require detailedstudy. The HES can promotesuch work.

� Continue Aerial reconnaissance programme asconditions permit.

� Maintain post-reconnaissance fieldwork programmeas necessary.

� Promote rescue survey at Westward Ho!� Promote further extensive survey of Culm Measures

and Blackdown Hills.� Promote fieldwork at Mothecombe.� Continuing review of other survey needs.� Support the DCC/University of Exeter Community

Landscapes Project.

� DCC (HES)

� DCC (HES)

� DCC (HES)/English Heritage� DCC (HES)/English Heritage

� DCC (HES)� DCC(HES)/English Heritage� DCC (HES)/ Exeter University

and partners

A 5 Work with EnglishHeritage, DEFRA andothers to secure regimes ofpositive management forvulnerable archaeologicalsites, and strengthen itscapacity to carry out thiswork.

See A3 above. Measures to achieve this objective are set out indetail in section AF (Agriculture and Forestry) below.

TOWNS AND SMALLERSETTLEMENTS

TS 1 Promote theprotection of importanthistoric features, buildings,street plans andarchaeological evidence andencourage the preservationof the historic character ofthe county�s towns andsmaller settlements.

DCC�s own role in this is confinedto guidance and exhortation.

� Establish dialogue with District Councils, NationalParks and other bodies engaged in change in thetown and village environment.

� Support the creation of lists of buildings of localsignificance where appropriate.

� DCC (HES)District Councils/National Parks

� DCC (HES)/ DistrictCouncils/National Parks

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TS 2 Promote theidentification and analysisof historic character andlocal distinctiveness insmaller settlements, andseek their maintenance innew development and inhighway works in villages.

Local distinctiveness is easily lostas a consequence of thestandardisation of design inprivate and public realms.

� In conjunction with District Councils, foster highquality in the programme of Conservation AreaAppraisals, and ensure that archaeologicalconsiderations are included as per English Heritageguidance.

� Encourage the development of SupplementaryPlanning Guidance.

� Ensure inclusion of these aspects in DCCEnvironmental Audit process.

� DCC HES/EnglishHeritage/District Councils

� DCC HES/District Councils

� DCC HES and ECG

TS 3 Seek the appropriaterecording of thearchaeological and historicbuilding resource wherethreatened by unavoidablebut potentially damagingdevelopment.

The historic resource isirreplaceable and therefore shouldnot be lost or destroyed withoutrecord.

� Maintain and strengthen the capacity of the HES toexamine and effectively to comment on thearchaeological dimension of planning applications asrequired under PPG16, and other proposals havingan impact on Devon�s HE.

� DCC (HES)

TS 4 Ensure that bothbelow- and above-grounddimensions of the historicenvironment in towns areappropriately reflected in allDevelopment Plans,Conservation AreaAppraisals, HeritageEconomic RegenerationSchemes, TownscapeHeritage Initiatives etc.

The majority of such studies andplans are not prepared by theHES. Success in this Objectivewill therefore depend on achievingdialogue with other bodies andinput to or influence in their planproduction. At present SMRresources do not permit positivearchaeological contribution toConservation Area Appraisals,and advice on how this should beachieved is not usually followed.

� Endeavour to influence the scoping of such plansthrough dialogue, seminars, promulgation of bestpractice, etc.

� Consider developing the capacity to provide directarchaeological input into these studies.

� DCC (HES) , English Heritage/District Councils/ National Parks

� DCC (HES)

TS 5 Ensure thatawareness of Devon's richhistoric environment plays afull part in developing theregeneration potential ofDevon's historic towns andsettlements. Instigate andsupport intensive orextensive surveys ofDevon�s major towns,market towns and coastalresorts.

Some regeneration initiatives inthe past have not always takencognisance of the historicenvironment dimension. It issometimes hard to ensure thathistoric environment input issought and available at an earlyenough stage in the developmentof the project.

� Explore the possibility of carrying out an `ExtensiveUrban Survey� with English Heritage grant aid.

� Explore the possibility of market town/coastal townsurveys with Objective 2 support.

� Endeavour to provide appropriate input toregeneration plans developed by third parties.



� DCC (HES)

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TS 6 Ensure that newdevelopment in historictowns and smallersettlements is appropriate inscale and design, respectinghistoric character.

Apart from its own estate, DCCcan only be effective in this areathrough influencing the decisionsof others.

� Develop and make available appropriate design.advice, and enter into dialogue with District Councilsand National Parks

� Develop appropriate polices and guidance.� Provide appropriate advice in Local Plan process.

� DCC (HES)/urban design team

� DCC (HES)/urban design team� DCC (HES)/urban design team

TS 7 Support policies toensure that newdevelopment is in scale andcharacter with existingsettlements.

See TS 6 � Address in comments on draft Local Plans. � DCC

TS 8 Promote suitableenhancement of existingpublic areas within historictowns and smallersettlements.

DCC has a crucial role as theHighway Authority responsible formaintenance and improvement ofthe public highway.

� Ensure that enhancement is fully included within theEnvironmental Audit process.

� Maintain dialogue with urban design team.� Maintain dialogue with District Councils and National

Parks.

� DCC urban design team

� DCC (HES)/urban design team� DCC(HES)/District Councils/

National Parks

TS 9 Promote theidentification andconservation of the county'straditional farm buildingresource.

Traditional farm buildings areunder considerable threat fromredundancy and conversion.

� Identify fully the extent and nature of the county�straditional farm building resource.

� Promote policies for the best conservation of thisresource.

� DCC(HES)/ District Councils/National Parks/English Heritage

� DCC(HES)/ District Councils/National Parks/English Heritage

GREATER HOUSES ANDTHEIR SETTINGSGH 1 Support the statutoryprotection of RegisteredParks and Gardens.

At present this is a `non statutory�designation by English Heritage

� Press for this in responses to governmentconsultations.

� DCC (HES)

GH 2 Work with the DevonGardens Trust and EnglishHeritage to review theRegister to include omittedimportant sites.

Important sites are still notincluded in the Register.

� Maintain dialogue and develop a programme toreview this.

� DCC (HES)/EnglishHeritage/Devons Garden Trust

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GH 3 Maintain a �local list�of parks and gardens sothat the protection of thesecan be encouraged.

� Integrate existing drafts into emerging HistoricEnvironment Record.

� Keep this up to date.

� DCC HES

� DCC HES / Devon Gardens Trust

GH 4 Identify those parksand gardens whererestoration would beappropriate and encouragesuch restoration.

Restoration may not beappropriate in all circumstancesand a sound decision-makingprocess is necessary.

� Develop proposals for such a study.

� Investigate the potential for the restoration of StoverPark.

� DCC (HES)/EnglishHeritage/Devon Gardens Trust/District Councils/ National Parks

� DCC (HES)/ Stover Country Park

INDUSTRIALARCHAEOLOGY

IA 1 Support the �Cornwalland West Devon MiningLandscape� World HeritageSite Bid and theimplementation of itsmanagement plan afterinscription.

This is a complex issue beingundertaken with numerous otherpartners.

� Continue appropriate input to programme andspecialist advocacy for Devon areas.

� Develop public awareness of proposals.

� Explore regeneration potential for Devon.� Promote targeted Conservation study of Tavistock to

inform future management of WHS resource.

� DCC (HES)

� DCC (HES)/West DevonBC/Tamar Valley CountrysideService/Dartmoor National Park

� Cornwall County Council study� West Devon BC/DCC/English

Heritage/ South West RegionalDevelopment Agency

IA 2 Work with partneragencies to promote theconservation, management,recording and interpretationof Devon�s historic industrialresource.

There are a number of discretebodies carrying out valuable workwith whom DCC are not always incommunication.

� Provide input to English Heritage MonumentProtection Programme.

� Promote further surveys as necessary, includingusing the development control process to requirethese in appropriate circumstances.

� Maintain close liaison with other land managementbodies, whether owners or local authorities, toemphasise the importance of the resource.

� DCC (HES) (see A5)



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IA 3 Continue to advise therelevant local authorities,national agencies and landmanagers on the historicenvironment implications ofMineral PlanningApplications, Review of OldMineral Permissions, landreclamation schemes andother forms of developmentor management of formerindustrial or �brownfield�sites.

At present `brownfield sites� areoften viewed as the ideal locationsfor construction etc. However,this term can sometimes coversites of major IndustrialArchaeological importance, andthere is a need for the promotionof greater awareness of this pointamong developers, planners andothers. The further surveysmentioned in IA 2 will be importantto inform this process.

� Maintain existing planning inputs, and whereappropriate contribute relevant polices to LocalPlans.

� DCC (HES)/ District Councils/National Parks

IA 4 Strengthen its ownexpertise in the area ofindustrial archaeology.

At present there is little in-housespecialist expertise.

� Bear in mind in making new appointments.� Consider consultancy if necessary.

� DCC (HES)� DCC (HES)

LAND TRANSPORT

LT 1 Seek to emphasisethe historic significance ofDevon's highway network.Continue to ensure thatdecisions on changes tohighways are properlyinformed by anunderstanding of theirhistoric significance andcharacter, and to ensurethat such changes respectlocal distinctiveness in theirdesign and materials.

Devon has a particularlysignificant and historicallyinteresting highway network.

� Ensure this forms part of design and environmentalaudit process for DCC.

� Liaise with Highways Agency and others on trunkroad schemes.

� DCC ECG/(HES)/EnvironmentalAudit


LT 2 Protect historichighway artefacts.

See LT1 � Maintain the Environmental Audit process.� Review the management requirements of such

features.

� DCC (HES)/ Environmental.Audit

� DCC NetworkMaintenance/(HES)

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LT 3 Ensure that bridgerepairs are in sympathy withexisting historic characterand fabric, andappropriately recorded.

Conflict sometimes arisesbetween the need for repairs tomeet contemporary standardswith the need to protect historiccharacter.

� Maintain the Environmental Audit process for bridgerepair work.

� Provide specialist design advice.

� DCC (HES)/Audit

� DCC (HES)/ENGLISHHERITAGE

LT 4 Maintain andstrengthen an effectiveinternal audit procedure onCounty Highwaydevelopment andmaintenance projects.

DCC must maintain the higheststandards with regard to thehistoric environment in itsprojects.

� Maintain and extend where appropriate the existingEnvironmental Audit process.

� DCC NetworkMaintenance/HES/DevelopmentControl

LT 5 Produce and maintainan up-to-date database ofhistoric roadside features

Some earlier work in this area hasnot been followed through.

� Review state and adequacy of previous inventory ofhistoric roadside features.

� Consider whether this should be integrated in theemerging Historic Environment Record ormaintained by Network Maintenance.

� DCC (HES)/ NetworkMaintenance

� DCC Network Maintenance/HES

LT 6 Continue to work withEnglish Heritage on thestatutory protection of themost important highwaystructures and roadsidefeatures.

See A 5. � See A 5

LT 7 Ensure that within itsown highway proposals itwill observe best practice inevaluating and mitigatingimpacts on the fabric andcharacter of the historicenvironment.

See LT 4 � Expand dialogue between Historic Environment anddesign staff.

� Maintain the Environmental Audit process.� Where necessary, commission assessments and

evaluations as part of the EIA process, and obtainany necessary mitigation measures.

� DCC Engineering DesignGroup/HES

� DCC Audit� DCC Engineering Design

Group/HES

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LT 9 Seek to promoterestoration schemes andmodern recreational useswhich are not harmful toand which enhance thehistoric character and fabricof canals.

Significant work is currentlyproposed for historic canals (e.g.under HLF funding) yet proposalsoften by-pass the planning system

� Develop mechanisms for early consultation onproposals affecting historic canals.

� Use external specialists to evaluate such proposals ifnecessary, to ensure no loss of historic integrity isinvolved.

� Support proposals for the conservation andenhancement of the Grand Western, Stover, Budeand Tavistock Canals.


� DCC (HES)

� DCC (HES)/Countryside PolicyTeam/ Grand Western Canal,Stover countryside Park andpartners.

RELIGIOUS SITES

R 1 Promote the recognitionof Devon�s churches,chapels and formermonastic houses as acrucial component of thecounty�s historicenvironment.

In most Devon parishes thechurch is the oldest and mostimportant building and the originalfocus of the community.

� Strengthen the HER�s coverage of this resource, bycommissioning surveys.

� Promote appropriate Local Plan policies.� Consider whether additional survey of this resource

is required.� Encourage awareness among religious authorities,

District Councils, National Parks and owners ofreligious buildings, of the exceptional quality ofDevon�s heritage of religious buildings.

� DCC (HES)

� DCC (HES)� DCC (HES) (possible resource

implications)� DCC (HES)/religious

authorities/DistrictCouncils/National Parks (HES)

R 2 Encourage the properconsideration (following theprinciples of PPG 15 andPPG 16) of the historic andarchaeological value ofDevon�s churches andchapels in proposals fortheir repair, alteration andconversion, and seek toensure proper recording.

Many changes can be verydestructive of historic detail andevidence.

� Identify such proposals through the normaldevelopment control process, and offer appropriateadvice to Local Planning Authorities.

� Provide advice on the need for, nature and scope ofrecording of historic fabric and archaeologicaldeposits.

� DCC

� DCC (HES) and specialists

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R 3 Advise the church andchapel authorities inseeking the best solutionsfor the future of their historicbuildings.

It is most important that ahistorical approach informsfunctional decision-making.

� Participate in the Anglican Diocesan AdvisoryCommittee process, providing informedcontributions.

� Offer advice to both church and Local PlanningAuthorities through development control process.

� Seek to expand dialogue with both established andother churches and faiths.

� DCC (HES)

� DCC (HES)

� DCC (HES)

R 4 Monitor theeffectiveness of the currentprocedures associated withecclesiastical exemptions inprotecting the historicaspects of churches andtheir environs, and seek tomaintain links with therelevant authorities.

In some cases there are stillproblems in ensuring that changesmade to fabric are adequatelyrecorded.

� Consider the establishment, in partnership withEnglish Heritage, of a project to explore this topic.


DEFENSIVE SITES

D 1 Encourage thepreservation, positivemanagement andinterpretation of Devon�sdefence heritage.

Devon has an important defenceheritage of many periods.

� Expand dialogue with the Ministry of Defence.

� Develop a project to offer positive managementadvice to owners/occupiers of important defencesites no longer in military use (relates to A5, etc).

� DCC (HES)/English Heritage/MoD/ District Councils/NationalParks

� DCC (HES)/ENGLISHHERITAGE

D 2 Raise awareness ofthe diversity andimportance of Devon�sdefensive sites.

Some aspects of the historicsignificance of the defenceheritage are not alwaysrecognised.

� Ongoing dialogue with District Councils, localamenity societies etc.

� DCC (HES)

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D3 Develop proposals toenhance public awarenessof Devon's rich 20th centurydefence heritage.

While features such as pillboxes,military airfields etc are moreappreciated than perhaps 20years ago, they pose particularmanagement issues. As veryevocative remains of a majorepisode in British history, theirphysical survival and recognitionis important.

� Ensure all material from Defence of Britain projectand local surveyors is incorporated into the HER.

� Contribute to programmes for statutory protection ofthese sites.

� Build on results of Plymouth Defences Survey.� Develop site management proposals for important

sites.� Develop schemes of interpretation for Taunton Stop

Line, military airfields etc.� Encourage and foster further survey and research in

this area.

� DCC (HES)


� DCC (HES)� DCC (HES) and partners



PALAEOENVIRONMENTALARCHAEOLOGY

P1 Seek to identify, protectand record thepalaeoenvironmentalresource.

Waterlogged deposits such aspeat preserve parts of thearchaeological record which donot survive in any othercircumstances.

� Review existing records.� In conjunction with partners, develop schemes of

survey to rectify gaps in knowledge.� Commission surveys.� Upgrade the HER in this area.

� DCC (HES)� DCC (HES)/English Heritage/

others� DCC (HES)/English Heritage� DCC (HES)

P 2 Ensure that thepalaeoenvironmentalresource is consideredintegrally with other aspectsof Devon�s historicenvironment in decisionsaffecting land managementand land use change.

This aspect of the historicenvironment is not alwaysrecognised.

� Include this dimension in development control andother land use change consultations.

� Provide appropriate policies for inclusion in LocalPlans, in guidance documents, and in the regulationsof grant giving bodies and other relevant bodies.

� DCC (HES)/ DistrictCouncils/National Parks

� DCC (HES)/ DistrictCouncils/National Parks andpartners

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THE MARINE ANDCOASTAL HISTORICENVIRONMENT.

M 1 Seek to identify,survey, and record themarine and coastalarchaeological and historicresource, to protect it fromdamage by developmentand by natural forces, andto secure its positivemanagement.

At present the HER is strikinglyweak in this area. EnglishHeritage has recently expandedits responsibility in this area,which may strengthen provision ofinformation and advice.The threats to this resource areincreasing

� Review existing records.� In conjunction with partners, develop schemes of

survey to rectify gaps in knowledge.� Commission surveys.� Upgrade HER.

� DCC (HES)� DCC (HES)/English Heritage/

marine organisations� DCC (HES)/English Heritage� DCC (HES)

M 2 Ensure historicenvironment input to coastand estuary managementservices and to theEnvironment Agency in theproduction of coast andestuary management plans.

Policy and resource problemsoften mean that the historicenvironment is insufficientlyintegrated in such plans.

� Establish more robust working links with coastalservices and other bodies involved in managingcoastal areas with protective designations, andestablish appropriate input to estuary and othercoastal management plans.

� Continue to maintain links with English Nature�s OilSpill Emergency Planning Group.

� DCC (HES)

� DCC(HES)/English Nature

M 3 Encourage national,regional and local agencies,local interest groups anddiving groups in theimplementation of codes ofconduct regarding maritimearchaeology.

At present there is insufficientdialogue with sport divers, and thehistoric environment dimension ofother coastal managementpolicies is not adequatelyappreciated.

� Promote dialogue with diving groups. � DCC (HES)

NATURAL PROCESSES

NP 1 Anticipate and monitorthe impact of naturalprocesses on the historicenvironment. Where suchthreats cannot be controlledor mitigated, appropriatearchaeological recordingwill be sought in partnershipwith relevant authorities andagencies.

Natural change is inevitable andcan often be detrimental to thehistoric environment.

� In conjunction with other bodies, carry out scopingexercise to understand areas of concern.

� Subsequently develop management strategy andmitigation measures.

� Ensure consideration of the impacts of flooding onthe built heritage within the DCC Emergency Plan.

� DCC various parts/EnglishHeritage/ EnglishNature/Environment Agency

� As above

� DCC (HES)/ EmergencyPlanning Officer)

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AGRICULTURE ANDFORESTRY

AF 1 Work with national,regional and local partnersto identify, protect, andpromote the rural historicenvironment.

A high proportion of all Devon�scherished historic sites andlandscapes are to be found in therural environment.

� Maintain and strengthen existing activities andpartnership links in this field.

� Continue to monitor proposals for hedgerowremoval.

� DCC (HES)

� DCC(HES/CountrysideManagement/District Councils/National Parks

AF 2 Strengthen its owncapacity to provide positivemanagement advice.

This work is expanding greatly,and the demand for such advice isabout to expand further due tochanges in the agri-environmentschemes.

� Secure the future of the Countryside Historic Advicepost at present due to end in June 2003.

� Establish additional post to meet demand for adviceadequately and to permit proactive work.

� Develop measures to expand historic buildingsadvice in AE schemes (see also TS9).

� DCC and/or English Heritage

� DCC and/or English Heritage

� DCC (HES)

AF 3 Promote the removalof vulnerable archaeologicalsites from cultivation andtheir benign management.

See A5 � Provide positive advice to DEFRA, and proactivelyencourage occupiers of sensitive sites and buildingsto enter into management agreements.

� Dependent on AF2.

AF 4 Ensure the properintegration of historicenvironment considerationsin agri-environmentschemes, at policy anddelivery levels. Providearchaeologicalmanagement advice tolandowners, statutoryundertakers, and partnerorganisations involved inthe agri-environmentprogrammes.

This is one of the most importantways in which DCC can conservethe historic environment resource.

� Engage with development of AE schemes at policylevel nationally and locally.

� Maintain adequate staffing to ensure proper input toall scheme proposals.

� DCC (HES) continuing

� See AF2

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AF 5 Continue to provideadvice to landowners andland managers, includingthe national forestryagencies, on themanagement of existingwoodland, new plantingschemes and energy crops.

Tree cultivation (and that of novelcrops) can have a seriouslydamaging effect upon the above-ground and buried archaeologicalresource.

� Engage with all relevant public and private bodies toensure that adequate management advice isavailable.

� Press at policy level for the need for archaeologicalassessment in advance of determination of treeplanting proposals in areas of high archaeologicalpotential, and for grant aid only to be available whereproposals are not damaging.

� DCC (HES)

� DCC

AF 6 Support theintroduction of whole farmmanagement plans,integrating historicenvironment considerationswith other environmentalmanagement issues.

Only by taking an integratedapproach to the historicenvironment on a particular farmcan maximum benefit to thehistoric environment be achieved.

� Input at policy level to development of new agri-environment schemes.

� Use Entry Level pilot scheme to develop newapproaches.

� Endeavour to pilot other approaches in both existingESA/CSS and for new schemes.

� DCC (HES)/DEFRA

� DCC (HES)/DEFRA

� DCC (HES)/DEFRA/ENGLISHHERITAGE

AF 7 Promote theidentification and protectionof the historic environmenton its farm estate.

DCC does not have a full pictureof its own historic resource withinthe County Estate.

� Prepare and execute implementation programme forsurvey and management plans as agreed in therevised Management Strategy Document for theCounty Farms Estate. (See section CE)

� DCC (HES)/Property Practice

AF 8 Support research intothe mitigation of damagecaused by agriculturalactivity to archaeologicalsites.

Agriculture is the single greatestcause of loss of archaeologicalsites in the countryside.

� Continue DCC input into the design andimplementation of such research commissioned byEnglish Heritage, DEFRA and other bodies.

� DCC (HES)

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CONSTRUCTION ANDDEVELOPMENT

C 1 Oppose developmentthat would harm the mostimportant archaeologicalsites, historic buildings,settlements andlandscapes.

Much of the HES� input is throughto advice to third parties. Thesoundness and authority of adviceto planning authorities and othersis crucial to the conservation ofkey elements of the HistoricEnvironment.

� Ensure appropriate and sound responses toconsultations on strategic and Local Plan planningproposals, on other policies affecting the HistoricEnvironment, and on individual proposals asappropriate, whether within or outside the planningprocess.

� DCC/ District Council/NationalParks/ Development Agenciesetc

C 2 Monitor all developmentproposals in the county inorder to assess their impacton the historic environment.

A core task on the landscape andarchaeological, but not thebuildings, side.

� Achieve and maintain adequate levels of staffing forDC task.

� DCC (HES)

C 3 Identify, record andinterpret archaeologicalsites, townscapes, historicbuildings and historiclandscape character as anaid to effective planningcontrol, and provideaccessible advice andinformation on theseinternally and to other localplanning authorities,developers, statutoryundertakers and others.

The full identification of thehistoric resource is an essentialpre-requisite for its protection. Thefull dissemination of thisinformation to all involved in thedevelopment process will help toensure that the historicenvironment will be properlyconsidered.

� Continue to accession into the County Sites andMonuments Register (becomes HER) all availableinformation on the historic environment in Devon.(see KO3)

� Continue to provide appropriate information from theCounty HER to all those involved in the developmentprocess.

� Complete the historic landscape characterisation ofDevon.

� DCC (HES)

� DCC (HES)

� DCC (HES)

C 4 Develop partnershipswith the national heritageagencies, local planningand conservationauthorities, amenity groupsand local communities inorder to integrate efforts toprotect the historicenvironment.

Pressure on staff time can inhibitmaintaining full dialogue with allrelevant parties.

� Ongoing task. � DCC (HES)/English Heritage/District Council/National Parks/Amenity groups/ Town andParish Councils etc

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C 5 Promote thesustainable reuse of historicbuildings and structures.

Virtually all buildings require a useto make them viable.

� Support Buildings at Risk surveys and seek to findnew uses for buildings identified in these surveys.

� DCC (HES) DistrictCouncil/National Parks.

C 6 Ensure that futuredevelopment plans, or theirsuccessors, containappropriate and robustpolicies on planning and theprotection of the historicenvironment.

A policy base is essential for fullprotection of the historicenvironment.

� Ongoing task. � DCC (HES)/ DistrictCouncil/National Parks

C 7 Develop a strategy forthe recording of historicbuildings and encourage itsadoption by Devon�s localauthorities.

Adequate building recording asadvised in PPG15 is not currentlyfully achieved.

� Construct and promote a policy and detailed adviceon building recording.

� DCC (HES)/ DistrictCouncil/National Parks.

C 8 Promote higherstandards in archaeologicaland building recordingcommissioned bydevelopers, and betterprovision for the archivingand publication of the resultsof such work.

Such work is of little value unlessto adequate standards.

At present staffing limitationsmean that fieldwork and recordingis not always subject tosatisfactory levels of monitoring.

Suitably experienced staff are alsoessential for this task to be carriedout.

� Strengthen capacity provide detailed Briefs for work.� Strengthen capacity to monitor work in progress.� Strengthen oversight of subsequent report

production and publication where appropriate.

� DCC (HES)� DCC (HES)� DCC (HES)

C 9 Secure betterarrangements for thepublication, storage ofrecords and finds fromarchaeological excavationsand building recording workcommissioned bydevelopers.

This is now a problem of nationalconcern.

� Engage with English Heritage /Area MuseumsCouncil/individual museums/archaeological units andbuilding recording contractors to address thisproblem.

� Address final deposition of records and findsrigorously through planning conditions.


� DCC (HES) and planningauthorities

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CARE AND REPAIR OFBUILDINGS

CR 1 Support programmesto identify, rescue andrepair Buildings at Risk.

There is no up-to-date informationon Buildings at Risk in the county.

� Promote Buildings at Risk surveys � DCC (HES)/English Heritage/District Councils/National Parks

CR 2 Seek to ensurethrough advice andpublication that repairs tohistoric buildings are carriedout using appropriatetechniques and materialsand are not damaging totheir character and fabric.

The skilled use of the rightmaterials is essential to the long-term survival of historic buildings.

� Promote information on best repair practice throughpublication.

� Support specialist organisations involved in buildingrepair.

� Ensure that DCC grant-aided work is carried out toproper standards.

� DCC (HES) DistrictCouncil/National Parks


� DCC (HES)

CR 3 Encourage thesupply of suitable materialsfor the repair of historicbuildings.

CR2 is dependent on appropriatematerials being available.

� Assist and encourage existing and new suppliers oflocal and traditional building materials.

� DCC (HES)

CR 4 Promote policies forthe identification, protectionand recording of historicbuildings in the county.

These are fundamental actions inthe protection of the built historicenvironment.

� Support thematic surveys of historic buildings.

� Encourage more recording and participation insurvey by informed volunteers.

� Identify those areas of the built environment most atthreat from contemporary pressures.

� Support dendrochronology research in Devon.� Promote policies for the protection of the built

historic environment.

� DCC (HES)/ English Heritage/District Councils/ National Parks

� DCC(HES)/ County Societies

� DCC(HES)

� DCC (HES)/ English Heritage� DCC (HES) District

Council/National Parks

CR 5 Contribute towardsand encourage grantschemes (in particularTownscape HeritageInitiatives and HeritageEconomic RegenerationSchemes) for the repair ofhistoric buildings in thecounty.

Even relatively small amounts offunding for building repair can bevery effective.

� Support on-going and future Heritage EconomicRegeneration Schemes, Townscape HeritageInitiatives and other partnership schemes for buildingrepair.

� DCC/(HES)/EnglishHeritage/HLF/ DistrictCouncils/National Parks

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CR 6 Inform and educatethe owners of historicbuildings, builders andother craftsmen, and thegeneral public on the valueand significance of historicbuildings and on the besttechniques and approachesfor their repair andmaintenance.

The availability of goodinformation is vital to ensure thatbuildings are fully cared for andproperly repaired.

� Publish and disseminate information on historicbuildings.

� Promote a Devon Building Centre in partnership.

� DCC (HES)/ DistrictCouncil/National Parks/

� DCC (HES)/TorridgeDC/Heritage Lottery Fund/SouthWest Lakes Trust/SWRDA

MINERAL WORKING ANDWASTE MANAGEMENT

MW 1 As Mineral andWaste Planning Authoritywork with the mineral andwaste industries to secureprotection of the historicenvironment through theMineral and WastePlanning and ROMPSprocesses.

This is a primary responsibility ofDCC as Mineral and WastePlanning Authority.

� Ensure the excellence of County Council policies inthe Mineral and Waste Local Plans.

� Ensure full historic environment input to newapplications and to ROMPs cases.

� Respond to changes in historic environment policiesin the Inspector�s report on the Minerals Local Plan.

� In particular, guide the preparation of the historicenvironment aspects of the EnvironmentalStatement for the SW Dartmoor china clay area.

� DCC

� DCC

� DCC

� DCC (HES)

MW 2 Ensure that theimportance of historicmining and quarryingremains is assessed andtheir significanceconsidered when decidingon afteruse.

Sometimes the archaeologicaldimension can be overlooked inthe decision-making process.

� Ensure satisfactory planning conditions/Section106agreements etc.

� DCC (HES)/Mineral and WastePlanning Authority

MW 3 Ensure that derelictland reclamation schemeson former mineral andwaste sites allow forconservation opportunitiesto be fully developedwithout loss of historicfeatures.

Integrated conservationopportunities should bemaximised.

� Ensure satisfactory planning conditions/Section 106agreements etc.

� DCC (HES)/ Mineral and WastePlanning Authority

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MW 4 Work with EnglishHeritage and otherpartners, including localcommunity groups, toidentify and develop historicenvironment focussedinitiatives utilising theLandfill Tax and theAggregate Levy Fund.

To date the allotment of suchfunding has sometimes beenopaque.

� Continue to participate (with University of Exeter andothers) in the development of the proposal for studyof the archaeological potential of gravel areas in theSouth West, under the Aggregate Levy Fund.

� DCC/English Heritage/Univ. ofExeter and others

THE COUNTY ESTATE

CE 1 Establish soundmechanisms for theidentification andmanagement of the HistoricEnvironment resource inthe County�s own Estate.

The historic resources of theCounty Estate, particularly in theareas of archaeology and farmbuildings, have never properlybeen assessed so as to be able toensure their proper care andprotection

� Identify all elements of the historic environmentwhich are in the ownership or care of Devon CountyCouncil.

� Agree policies and mechanisms for their protection.

� Monitor regularly the condition of these elements.

� Implement emerging English Heritage GuidanceMaking the Most of our Heritage: Managing theCivic Estate





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THE DEFENCE ESTATE

DE 1 Encourage theprotection and positivemanagement of the HistoricEnvironment within theDefence Estate.

Operational pressures can conflictwith conservation objectives.

� Work with the Defence Estates Organisation andindividual military land managers to establishprovision for the positive management of the historicenvironment.

� Support production of management plans for the HEof the Defence Estate.

� Encourage survey and assessment of the historicenvironment of those parts of the Defence Estate thatare under potential threat of damage or change of usebut are not the subject of management plans.

� Provide specialist advice on survey requirements forlandscapes, sites and structures.

� Provide information from Devon HER as needed.� Encourage the Defence Estates Organisation to give

due consideration to the protection of historicbuildings and structures when undertaking repairand safety works.


� DCC (HES)/EnglishHeritage/Defence EstatesOrganisation

� DCC (HES) Defence EstatesOrganisation

� DCC (HES)

� DCC (HES)� DCC (HES) / Defence Estates

Organisation

TRANSPORT,INFRASTRUCTURE ANDUTILITIES

TI 1 Promote the protectionof the historic environmentthrough the adoption ofappropriate codes ofpractice and theimplementation of existingcodes and environmentalaudit procedures.

Procedures that do exist are notalways followed at present.

� Provide high quality advice to DCC and outsidebodies.

� Continue dialogue with SWW, Transco and otherutilities and offer guidance on existing and proposedcodes of practice.

� Expand dialogue with DCC Local Service Groups.

� Monitor the implementation and review effectivenessof codes of practice.

� DCC (HES)

� DCC (HES)/ENGLISHHERITAGE/Utilities

� DCC (HES)/ Local ServiceGroups

� DCC (HES)

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TI 2 As a HighwayAuthority and in partnershipwith other national and localagencies work to minimisethe impact of transportdevelopments (includingproposals for new roads) onthe historic environment.

Many problems can be resolvedby satisfactory consultation at anearly stage.

� Ensure that DCC environmental audit process iseffective.

� Continue discussions within and outside DCC onhighway proposals.

� Monitor more effectively the archaeologicaldimension of proposals and schemes.

� DCC EDG/(HES)/Audit

� DCC (HES)

� DCC (HES)

TI 3 Encourage earlyconsultation on routeplanning and makeavailable historicenvironment information toassist decision-making.

Sometimes strategic considerationof roads does not involve the DCCHES at an early enough stage(e.g.South West Area Multi ModalStudy (SWARMMS), Sustrans)

� Endeavour through dialogue and influence to ensurethat Historic Environment considerations are fullytaken on board at as early a stage as otherenvironmental considerations.

� Develop measures for provision of information.

� DCC at both strategic highwayand (HES) levels.

� DCC (HES)

TI 4 Work with highwaysauthorities, partneragencies and the utilities todesign and monitor theimplementation ofappropriate excavation andrecording programmes forarchaeology and the builtenvironment where thesewill be affected by highwayworks.

As TI 2. � Endeavour to be more fully engaged in South WestArea Multi Modal Study (SWARMMS) process.

� Endeavour to keep in touch with developments onA303.

� Continue to oversee the rescue archaeologicalprogramme for Barnstaple Western Bypass.

� Design and oversee the revision of EIA forKingskerswell Bypass and subsequent mitigationwork.

� Seek to strengthen Environmental Audit in relation tosmall-scale highway improvement schemes.

� Seek to integrate Environmental Audit (includingHistoric Environment) into planning for South WestCycle Network.

� DCC (HES)

� DCC (HES)/EDG/ParsonsBrinckerhoff

� DCC (HES)/Engineering DesignGroup/ Parsons Brinckerhoff

� DCC (HES)/Engineering DesignGroup/ Parsons Brinckerhoff

� DCC (HES)/ Engineering DesignGroup /Local Service Groups

� DCC (HES)/EDG/ Local ServiceGroups

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TOURISM

TO1 Work with national,regional and local partnersto promote the appropriateuse of Devon�s historicenvironment as arecreational andeducational resource.

The historic environment is a keybut fragile element in the County�sheritage.

� Liase with tourism bodies on the use of appropriateareas of the historic environment for tourism (thisissue is also addressed in the Tourism RAP).

� DCC (HES)

TO2 Protect the historicenvironment frominappropriate leisuredevelopment and damaginglevels of visitor pressure.

Unsympathetic or excessive useof the historic environment cancause permanent damage to it.

� Continue to monitor the impact of tourism proposalson the historic environment (this issue is alsoaddressed in the Tourism RAP).

� DCC (HES)

TO3 Promote economicregeneration throughappropriate tourism basedupon the historicenvironment, provided thatthis does not compromisethe special character of thehistoric environment.

An approach based upon thehistoric characterisation of an areacan be a sound starting point forregeneration projects.

� Promote visits to suitable historic sites (for instancethe Templer Way and sites within the Cornish andWest Devon Mining Landscape WHS) throughinterpretation and restoration where appropriate

� DCC/ Dartmoor National Park/District Councils

GLOSSARY

ALGAO Association of Local Government Archaeological OfficersAONB Area of Outstanding Natural BeautyDCC Devon County CouncilDCMS Department of Culture Media and SportDEFRA Department of Environment Food and Rural AffairsEIA Environmental Impact AssessmentGIS Geographical Information SystemHES Historic Environment Service [of Devon County Council]HERS Heritage Economic Regeneration SchemeROMPS Review of Old Mineral PermissionsSMR Sites and Monuments Register

GLOSSARY

ALGAO Association of Local Government Archaeological Officers

AONB Area of Outstanding Natural Beauty

DCC Devon County Council

DCMS Department of Culture Media and Sport

DEFRA Department of Environment Food and Rural Affairs

EH English Heritage

EIA Environmental Impact Assessment

GIS Geographical Information System

HER Historic Environment Record

HERS Heritage Economic Regeneration Scheme

HES Historic Environment Service [of Devon County Council]

ROMPS Review of Old Mineral Permissions

SMR Sites and Monuments Register

Organisation Address Website Telephone

English Heritage 29, Queen Square, Bristol. BS1 4ND english-heritage.org.uk O117 975 0683

DEFRA Rural Development Section 5, Hanover Court, Manaton Close, Matford Business Park, Exeter. EX2 8QJ defra.gov.uk 01392 824434

National Trust Devon Office Killerton, Broadclyst. EX5 3LE nationaltrust.org.uk 01392 881691

Church of England Diocesan House, Palace Gate, Exeter. EX1 1HX exeter.anglican.org 01392 272686(Diocesan Advisory Committee)

Royal Albert Memorial Museum Queen Street, Exeter. EX4 3RX exeter.gov.uk/residents/arts/museums/ 01392 265858ramm/index.xml

Devon’s Museums www.devonmuseums.net

Westcountry Studies Library Castle Street, Exeter. EX4 3PQ devon.gov.uk/library/ locstudy 01392 384216

Devon Archaeological Society C/o Royal Albert Memorial Museum, Queen Street, Exeter. EX4 3RX www.ex.ac.uk/das

Devon Historic Buildings Trust 4, Curlew Way, Exeter. EX4 4SW 01392 833846

Devon Gardens Trust 7,The Close, Exeter. EX1 1EZ devon-gardens.org.uk 01392 252404

Devon Records Office Castle Street, Exeter. EX4 3PU devon.gov.uk/dro 01392 384253

Devonshire Association Bowhill, Dunsford Road, Exeter. EX4 1LQ 01392 252461

Dartmoor National Park Authority Parke, Haytor Road, Bovey Tracey, Newton Abbot. TQ13 9JQ dartmoor-npa.gov.uk 01626 832093

Exmoor National Park Authority Exmoor House, Dulverton, Somerset. TA22 9HL exmoor-nationalpark.gov.uk 01398 323665

East Devon District Council Council Offices, Knowle, Sidmouth. EX10 8HL eastdevon.gov.uk 01395 516551

Exeter City Council Civic Centre, Exeter. EX1 1JN exeter.gov.uk 01392 277888

Mid Devon District Council Ailsa House,Tidcombe Lane,Tiverton. EX16 4DZ middevon.gov.uk 01884 255255

North Devon District Council The Museum of Barnstaple and North Devon,The Square, northdevon.gov.uk 01271 388392Barnstaple. EX32 8LN

South Hams District Council Follaton House, Plymouth Road,Totnes. TQ9 5NE south-hams-dc.gov.uk 01803 861234

Teignbridge District Council Forde House, Newton Abbot. TQ12 4XT teignbridge.gov.uk 01626 361101

Torridge District Council Riverbank House, Bideford. EX39 2QG torridge.gov.uk 01237 428700

West Devon District Council Kilworthy Park,Tavistock. PL19 0BX westdevon.gov.uk 01822 813600

Town and Parish Councils devon.gov.uk/terms/parishes.shtml

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Contacts and Links

Devon County Council, County Hall,Topsham Road, Exeter, EX2 4QD

01392 382000

www.devon.gov.uk

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Documents

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