What price heritage?
Martin Sloman
The UNESCO World Heritage Committee meets in China this July. One of the items on the agenda is going to be the recommendation to delete Liverpool – Maritime Mercantile City from the list of World Heritage Sites.
If Liverpool is deleted from the list, it will be the first UK site ever to suffer this fate and only the second in Europe. It’s a decision the city can could do without at a time when it’s struggling to emerge from the Covid pandemic. No doubt, the decision will attract far more attention in the national media than the original listing ever did. So, how have we got into this situation?
One thing is clear, UNESCO has a point. The inscription of the Liverpool site arose from an agreement to protect the Outstanding Universal Value (OUV) of the property. The development of Liverpool Waters was pursued outside of any planning framework agreed with UNESCO despite their repeated requests. The decision to develop a major football stadium on Bramley Moore Dock has brought matters to a head.
There is a wider issue though and that’s the value of World Heritage Status to a city such as Liverpool, which is always struggling to attract investment and jobs.
There are thirty-two WHS sites in the UK. Nearest to Liverpool are the Castles of Gwynedd, North Wales including those of Conwy, Caernarfon and Beaumaris, which boast some of the finest examples of medieval military defences in Europe. Even though their military function is long gone, it makes complete sense to preserve these buildings and their setting. Today they earn their keep through their popularity with tourists.
Further afield, the City of Bath is a WHS more comparable to Liverpool. The value of Bath lies in its ability to evoke, through its townscape and architecture, the Georgian and Regency eras immortalised in the novels of its most famous resident, Jane Austen. However, unlike the Gwynedd castles, Bath’s famous buildings are still in use, as residences, offices and hotels. Whilst modern Bath may not be as fashionable as in Jane’s day, it remains a relatively prosperous city.
The lesson for Liverpool is surely that heritage and modern usage need to exist side by side. Derelict docks and warehouses do not have the tourist draw of ruined castles; so we need to reimagine these places for the 21st century. Despite all the gloom surrounding World Heritage Status, we must not forget that Liverpool has been quite successful in doing just that.
The Albert Dock – abandoned and derelict in the 1980s - is now one of the country’s major heritage attractions. The combination of museums, shops, bars and restaurants, offices, hotels and private apartments has worked. Purists may not like the cast iron columns painted red but little of heritage value has been lost.
The lesson for Liverpool is surely that heritage and modern usage need to exist side by side.
Much the same can be said of Stanley Dock. Preserving the gargantuan Tobacco Warehouse was once seen as a hopeless task but the conversion of the building into apartments is now well underway.
Of course, not all our heritage docks are graced by giant warehouses, but Brunswick and Coburg docks now host a marina, Queens Dock has a water sports centre and Salthouse Dock is a haven for canal narrow boats. So new uses can be found for old docks but what is questionable is the heritage value of these new uses.
There’s a classic heritage dilemma surrounding the future use of the Cavendish Cutting, which is just off Tunnel Road in Edge Hill. This, largely forgotten cutting was the scene of the official opening of the Liverpool and Manchester Railway and the departure point for the first ever trains from Liverpool to Manchester. As such, it is one of the most important relics of the railway age and, deserving of World Heritage status. People have campaigned for its recognition by UNESCO as an extension to the existing World Heritage Site.
One problem lies in the fact that Merseyrail has a long-term proposal to run a passenger rail service through the Wapping Tunnel, which opens into the cutting. The proposal would integrate the City Region’s rail network and vastly improve public transport provision. However, re-opening the cutting to rail services would detract from the Outstanding Universal Value of the site. Or, in other words, re-using a heritage asset for its original purpose removes its heritage value. What would the great British civil engineer and ‘Father of Railways’ George Stephenson have thought?
It can, of course, be argued that any form of development – even remodelling docks for modern shipping – adversely affects the Outstanding Universal Value of a site. If we are to prioritise heritage over modern needs the logical but obsurd conclusion would be to leave the heritage asset in its derelict state and forbid any development. That works for Conwy Castle – but would it work for the vast areas of prime real estate represented by Liverpool’s heritage docks? Even Historic England accepts that this area needs regeneration. However, given the absence of historic warehouses, such as at Stanley and Albert Docks, what is it exactly that they expect?
Historically, Liverpool’s dockside buildings have varied in scale from single storey transit sheds to the Stanley and Waterloo Dock warehouses and the long gone but imposing Clarence Dock Power Station. Consequently, there can be no definitive template for future development of the area.
One cue might be taken from the docks themselves – often hundreds of metres in length. Would they be dwarfed by even a 200m high tower?
The debate between the heritage and development lobbies has become very polarized but, if there is one area of agreement it’s surely that whatever is built within the World Heritage Site should be of outstanding architectural quality. However, if we’re realistic, quality of design and materials cannot be divorced from the financial return that the developer requires to make a project viable, which will be more difficult to achieve where the scale of development is constrained.
Obtaining agreement on what is ‘appropriate’ development on a site such as Central Docks is not an easy process. It involves input from different interests and requires an ability to compromise on all sides.
We have been led to believe that the final nail in the coffin of the World Heritage Site has been the decision to grant planning permission for Everton’s stadium on Bramley Moore Dock. Bramley Moore is the northernmost and largest of the docks within the WHS and forms part of a complex of five docks that were state of the art when opened in the 1840s. It is only natural that UNESCO would take a dim view about its infilling.
Yet there are other considerations. Bramley Moore is outside of the World Heritage Site- in the ‘buffer zone’. It screens the WHS from a large wastewater treatment plant on its northern side. The Everton plan is not a bog-standard football stadium but consists of an elegant, curved roof topping a brick sub-structure designed to emulate traditional dock-side warehouses. The original dock walls are to be preserved and a channel retaining the link with the Northern Docks is to be retained. The existing hydraulic tower will be refurbished and incorporated into the stadium setting. Everton describe this scheme as a ‘heritage project’ and that is hard to deny.
In fact, Bramley Moore stadium could be said to define the northern limit of the Central Docks in much the same way as the Three Graces indicate their southern limit. As has been often pointed out, the Three Graces were themselves built on an infilled dock.
So, is Bramley Moore dock the deal-breaker? Are UNESCO unable to compromise to allow such an important regeneration project? After all, one of Britain’s most famous World Heritage Sites, the Tower of London does not seem too bothered by ‘buffer zones’.
Buffer Zones in action: The Chapel of St Peter ad Vincula at the Tower of London WHS – burial place of Henry VIII’s wives – yet overshadowed by the infamous ‘Walkie Talkie’.
Maybe if Liverpool – Maritime Mercantile City is to have a future, it will depend on constructive dialogue between heritage bodies, developers and Liverpool City Council.