Guide to Conversion of Traditional Buildings

6.0 Heritage Management Structure

The guidance in this chapter is primarily structured around procedures, policy and advice relating to buildings and other structures protected through listing, scheduling or by being sited within a conservation area. However, the Guide to Conversion of Traditional Buildings recognises that all traditional buildings have an inherent cultural value due to their age, and the methods and materials used in their construction.

Similarly, it is possible that practitioners will find themselves working on a building of architectural or historic interest which hasn’t been identified and designated through earlier listing surveys. The following guidance on managing the historic environment may therefore be useful in informing constructive discussion with the verifier where an exceptional approach is needed to retain a building’s traditional character.

6.1 Permissions and consents

Works to any building may need planning permission and a building warrant. If a building is in a conservation area, some works may require planning permission even if it is not normally required elsewhere. Demolition in a conservation area requires planning permission and a building warrant to demolish the building (or a substantial part of it).

Note that permission is normally required from planning authorities for the total or substantial demolition of listed buildings and buildings (over a certain size) within conservation areas. Practitioners should seek advice from the planning authority if they are unsure whether down-taking proposals constitute demolition in this context.

Building warrants, listed building consent and planning permission are all managed by local authorities. Owners or their agents should always check with the local authority to confirm whether any consents or permissions are required if there is any doubt about this.

For listed buildings, listed building consent is needed for any works that may affect its character as a building of special architectural or historic interest. It is the planning authority that makes the decision on whether the works are likely to affect the character and therefore require consent.

If any works are proposed to a scheduled monument, it is recommended that Historic Environment Scotland (HES) is contacted directly for advice at the earliest opportunity. It is very likely that scheduled monument consent (SMC) will be required, even for minor works. SMC is normally only granted for works that are the minimum level of intervention required for conserving what is culturally significant in a monument.

For more information, Scheduled Monument Consents Policy can be found on HES’s website. Undertaking works without SMC is a criminal offence. SMC is entirely separate from planning or any other permissions required. In terms of policy and guidance, including this one, scheduled monuments are not considered under the term buildings and the concept of use does not apply.

If it is unclear whether a building is listed, scheduled, or in a conservation area, this information can be found on the Historic Environment Scotland Portal or the Pastmap website.

Note that some structures may be listed ‘by curtilage’. This means that they may not be directly identified as being listed through the listing’s statutory address or the associated description. Modern list descriptions typically identify ancillary structures such as boundary walls and outbuildings. However, where these are not identified in a listing record, the planning authority will confirm if the structures are deemed to be listed in their view. In considering this, the authority will determine if the structures meet the following criteria:

• they were built before July 1948
• they were in the same ownership as the main subject of listing at the time of listing
• they clearly relate to the main subject of the listing in terms of their (original) function
• they still relate to the main subject on the ground

It should be noted that the planning authority may exercise a discretionary role in making this decision, and elements such as the proximity of the structures to each other and the impact of modern development on that relationship may influence a decision on the requirement for consent.

6.2 Overview of the adaptation of listed buildings

The best way to protect a building is always to keep it in use. For listed buildings, the existence of the consents procedure acknowledges the fact that buildings need to change occasionally so they remain in use by successive generations. When a building is in use, its owners or occupiers have an interest in maintaining it in good condition. Securing a building’s long-term future by maintaining its condition is the common aim of all of those associated with the building, directly or through regulatory procedures.

Conversion of existing buildings by alteration and adaptation is common, and most conversions are not contentious. Decision-makers assess each proposal on a case-by-case basis, and outcomes will be dependent on several factors relating to the existing building(s) or site, including its cultural significance, what features survive, its condition and other site constraints.

Most conversions do involve change, and where the proposed interventions affect a building’s cultural significance, these can sometimes be balanced with positive outcomes. A typical example would be the reuse of a derelict, at-risk building, improving its condition and giving it a long-term sustainable future.

Proposals for reuse can also protect a building in bringing about improvements to fire safety and reduce the ongoing risk of fire outbreaks. Reuse can also greatly improve accessibility to, around and within the building/site, allowing more people to gain access to and benefit from the historic environment.

For derelict and ruinous buildings, conversion to a new use can often be more straightforward as its condition will have resulted in the loss of many aspects of its significance such as the plan layout of interiors and their features and finishes. A balanced approach should always be taken.

In some cases, conversion may have only minor impacts on a building’s cultural significance, an example being the conversion of a listed building has previously been converted or subject to façade retention. In these cases, the significance of a building may well be unaffected or even positively enhanced. An example of this might be where later subdividing partitions have been removed resulting in reinstatement of original room sizes.

Conversion to a different use will require more thought where a building has a higher level of cultural significance because it is in good condition or much of its historic fabric and features still survive. For example, a change of use from office to domestic use in a Georgian townhouse with many surviving historic features, will need to be carefully considered, especially when converting to multiple flatted dwellings. In such cases, simple layout and design changes can often reduce impacts to an acceptable level.

6.3 Understanding significance

Identifying the character or characteristics of a building will inform an understanding of its cultural significance. This is the starting point for good decision-making at the design stage that will ensure its special interest is retained.

Listed buildings are included in the Statutory list because they have been identified as buildings of special architectural or historic interest. More information on the criteria that inform the decision to list a building is contained in chapter 4 (Building definitions). In planning terms, the special interest of listed buildings is usually referred to as character.

For listed buildings, the 1997 Act directs planning authorities to seek consent for any works that might affect a building’s character as a building of special architectural or historic interest. However, the term character is also used throughout the Guide to Conversion of Traditional Buildings for all buildings that fall within a wider understanding of cultural significance, including the unlisted traditional buildings to which this guidance might most commonly be applied.

More recent list descriptions will provide guidance on the key characteristics of a listed building that should be protected because they set out why the building was listed and explain its significance.

Older list descriptions which only describe the front elevation have led to a popular misconception that only the exterior of a building or one part of it is subject to a listing designation. In compiling evidence of cultural significance, it is important for practitioners to understand that both the exterior and interior are subject to the listing and this may extend to other structures within the curtilage. For older listings and unlisted buildings, further research is therefore recommended.

a) Where to find information

Useful Resources

• Designations Map
• Will tell you if the building is designated (i.e. listed, a scheduled monument, or located within a conservation area, ‘inventory’ garden and designed landscapes, or historic battlefield)
• List descriptions
• HES Archives and Library
• Digital images
• National Library of Scotland Maps
• Architectural Drawings
• Dean of Guild records
• HES Archives and Library
• Digital images
• National Records of Scotland
• Trove
• Architectural drawings
• Digital images
• Dictionary of Scottish Architects
• Biographical information and job lists for architects known to have worked in Scotland from 1660 – 1980
• Conservation Area Character Appraisals
• Can be found on the local authority website (where available)
• Buildings of Scotland, RIAS guides and other written sources

b) How to use the information collected to form conclusions on significance

The significance of a building can include its design and layout, its use and past uses, the materials it is made from, and the associations people have to it. In most cases, both the interior and exterior of a building will contribute to its significance, and its surroundings (setting) can also contribute.

Key things to consider are:

i. Setting

The significance of a building may include its setting. The setting of a building is the way its surroundings contribute to how it is understood, appreciated and experienced.

ii. Exterior design

A building may have key architectural features specific to a particular style. The main elements contributing to a building’s exterior design are likely to be its walls, roof and windows.

iii. Materials

Materials and methods of construction may be significant in demonstrating local traditions.

iv. Interiors

The interior can make a great contribution to the understanding of a building’s history. Significance could be attached to the survival of features or its structural plan and layout.

v. Plan form

Plan form is the arrangement and division of internal spaces into rooms and circulation spaces. The historic plan form of a building will usually make a significant contribution to its special interest because it helps us to understand how a building was originally used.

vi. Historic interior features

Historic features such as fireplaces, doors, staircases, joinery and plasterwork will contribute to a building’s significance.

vii. Roof

The significance of a roof includes its age, functional performance, shape and pitch, profile, and its supporting structure, covering materials and associated features.

Not all parts of a building will make an equal contribution to its significance. It is important to consider which features make the biggest contribution to a building’s significance so areas of greater and lesser sensitivity can be identified at the design stage. The relative importance of different factors will inform decisions on what to prioritise.

Adverse impacts on significance that cannot be avoided should be minimised as much as possible. If it is not possible to reduce adverse impacts, any decision should be balanced against the long-term benefits of converting the building to a sustainable new use.

6.4 Historic environment policy overview

This guidance refers to ‘traditional buildings’ throughout to define a building of traditional mass masonry construction, the bulk of which were built before or around 1919. The guidance is primarily about the conversion of these buildings and understanding the impact alterations will have on their cultural significance. However, the principles in this guidance apply to any building of any period that has cultural significance.

It is important to remember that works can have impacts on cultural significance even if they don’t need permission. For designated sites and places, you may need specific permissions or consents. You can find out if a building is designated through the Historic Environment Scotland Portal.

If you are applying for listed building consent, planning permission, or any other consents for works that could impact on cultural significance, you will need to provide supporting information which demonstrates that proposals for alteration have been based in a proper understanding of the building and the impact the proposals will have on its significance. The principles set out in supporting documentation should be in line with local and national planning policy and guidance to demonstrate that conversion proposals will meet their aims.

The planning system in Scotland is a plan-led system, meaning planning decisions must be made in line with the area’s development plan. The development plan consists of the planning authority’s Local Development Plan (LDP) and the National Planning Framework (NPF4 2023).

NPF4 is the national spatial strategy for Scotland. It sets out principles, regional priorities, national developments and national planning policy. This includes policy for historic assets and places. In considering what supporting information is needed, Policy 7a states:

“Development Proposals with a potentially significant impact on historic assets or places will be accompanied by an assessment which is based on an understanding of the cultural significance of the historic asset and/or place”.

The more important a place or building is, the more information is likely to be needed in support of development proposals. Works that will have a significant impact on cultural significance will normally be harder to justify and the level of detail and supporting information should therefore reflect this. It may be necessary to set out any alternative options that have been explored, and how adverse impacts have been minimised. Pre-application advice from the local authority can provide valuable guidance and help to pin down key principles.

All existing buildings also have value as part of our circular economy. Retaining our historic and traditional buildings protects the significant amount of embodied carbon we have invested in their construction, maintenance and ongoing adaptation by successive occupants. This will be relevant to management decisions that affect their long-term use because maximising the value of our existing buildings and infrastructure is critical to the journey to zero waste.

This is recognised in Policy 9d of NPF4 which states:

“Development proposals for the reuse of existing buildings will be supported, taking into account their suitability for conversion to other uses. Given the need to conserve embodied energy, demolition will be regarded as the least preferred option”.

This is covered further in a statement called Pointing the Way to the Future (2023), which sets out Historic Environment Scotland’s approach to their regulatory and advisory services in the planning and other consenting systems in the context of the climate and nature crises.

Further information on the sustainable development of existing buildings is contained in chapter 8 (Sustainability in the historic environment).

Some of the policy considerations of NPF4 that will likely be of particularly relevance when undertaking the conversion of a traditional building include:

Policy 7a expects proposals to be informed by national policy and guidance on managing change in the historic environment, and information held within Historic Environment Records.

Policy 7c and Policy 7d state that development proposals for listed building and conservation areas should preserve the character, special architectural or historic interest and setting of the listed building, or character and appearance of the conservation area and its setting.

Policy 7b and Policy 7f presume against demolition of listed buildings or buildings that contribute to character of a conservation area unless specific circumstances have been demonstrated. This can include the production of a detailed structural condition survey report in the case of listed buildings.

Policy 7m supports development which brings buildings identified as being at risk back into use.

Policy 7o states that non-designated historic environment assets, places and their setting should be protected and preserved in situ wherever feasible.

Policy 9d supports reuse of existing buildings with demolition regarded as the least preferred option.

Policy 12b states that development proposals should minimise demolition and salvage materials for reuse.

The Historic Environment Policy for Scotland (HEPS) is Historic Environment Scotland’s policy statement that guides decision-making related to our historic environment. It outlines how the historic environment should be managed and cared for, ensuring decisions are made in a way that respects value and significance. The policy applies to all decision-makers and covers the entire historic environment, not just designated sites. The policy should be considered whenever a decision affects the historic environment.

The six key policy references in HEPS designed to inform decision-making across Scotland’s historic environment are:

HEP 1 - Decisions affecting any part of the historic environment should be informed by an inclusive understanding of its breadth and cultural significance.

HEP 2 - Decisions affecting the historic environment should ensure that its understanding and enjoyment as well as its benefits are secured for present and future generations.

HEP 3 - Plans, programmes, policies and strategies, and the allocation of resources, should be approached in a way that protects and promotes the historic environment. If detrimental impact on the historic environment is unavoidable, it should be minimised. Steps should be taken to demonstrate that alternatives have been explored, and mitigation measures should be put in place.

HEP 4 - Changes to specific assets and their context should be managed in a way that protects the historic environment. Opportunities for enhancement should be identified where appropriate. If detrimental impact on the historic environment is unavoidable, it should be minimised. Steps should be taken to demonstrate that alternatives have been explored, and mitigation measures should be put in place.

HEP 5 - Decisions affecting the historic environment should contribute to the sustainable development of communities and places.

HEP 6 - Decisions affecting the historic environment should be informed by an inclusive understanding of the potential consequences for people and communities. Decision-making processes should be collaborative, open, transparent and easy to understand.

6.5 Statements of significance

The starting point for decision-making at the design stage should be a full understanding of the building proposed for conversion. Justification for a scheme’s impact(s) on a listed building should be based on the significance of the building, its existing condition and how the proposals satisfy historic environment policy.

It is helpful to lay all this information out in various reports, which can justify where and why intervention is necessary, while protecting what makes the building culturally significant (also referred to as character throughout this guidance).

This can be in the form of condition surveys, heritage reports, technical reports and conservation plans or statements. The latter is less common but helpful for more significant or complex buildings/sites and for funding purposes. Where a building is in poor condition, structural surveys are helpful to highlight any issues which require intervention, for example, an engineer’s report on the stability of a particular wall.

Other guidance from The Royal Incorporation of Architects in Scotland, Royal Institute of British Architects and The Institution of Structural Engineers may also be used as appropriate.

6.6 Managing change in the historic environment

Managing Change in the Historic Environment notes are series of non-statutory guidance notes about managing change in the historic environment during the planning stage. They explain how to apply the policies in the Historic Environment Policy for Scotland (HEPS) and are relevant to decisions on development proposals and changes to individual historic assets, such as listed buildings. Policy 7 of National Planning Framework 4 (PF4) expects proposals to be informed by this guidance.

Managing Change guidance is a material consideration for relevant decisions in the Scottish planning system, including listed building consent and planning permission. This means that decision-makers should take it into account when coming to a decision.

It is recommended that Managing Change notes are used throughout iterative design processes in both planning and building warrant across the RIBA Stages of Work. We also advise that, where practicable, the two application processes are considered together. Designing with building warrant in mind can help to avoid radical changes to a previously approved listed building consent.

The presence of an approved building warrant will not be taken as deemed listed building consent by a planning authority. Similarly, having an approved listed building consent does not mean a building warrant will be approved. The level of information required for each process varies considerably, however, the proposed design interventions should satisfy both to reduce abortive listed building consent applications. A typical example of this might be the conversion of a stable courtyard to six houses where the listed building consent drawings do not show the significant number of extract terminals required for all the heating and ventilation appliances.

The Managing Change guidance notes contain several topics, but the most applicable and relevant for conversions of listed buildings are likely to be ‘Use and Adaptation of Listed Buildings’, ‘Fire and Historic Buildings’ and ‘Interiors’. The series also includes advice on more specific topics such as external fixtures and key features such as windows and doors.

HES regularly reviews and updates its policy advice and guidance, so it is advisable to check for any updates or new guidance when using this guide. When changes are proposed, HES will hold a public consultation to ensure that the opinions of the public, practitioners and officials can help to shape the guidance. More information on the consultation process can be found on HES’s website.

a) Managing Change: Use and Adaptation of Listed Buildings

The best solution for a listed building will be one that secures its long-term future, while preserving as much as possible of its historic character. The aim of this guidance is to support, promote and enable their continued use, reuse and adaptation. It is focused on buildings whose long-term future is uncertain. It addresses the following scenarios.

1. refurbishment of listed buildings so that they can remain in their existing use

2. adaptation of buildings for new uses (conversions)

3. re-development of larger and more complex sites that may have several listed buildings or other heritage assets

The guidance promotes the principle that all options should be considered that will save a building from being lost. This may include extensive or radical interventions to a building including partial demolition in some cases.

b) Managing Change: Fire and Historic Buildings

This guidance is about fire safety and fire damage in historic buildings. It covers fire risks, fire safety and potential responses when a building has been damaged by fire. It identifies key considerations for decision-making and can help practitioners to understand the impacts of potential changes.

Key messages include:

i. Protecting human life is the primary aim of fire safety measures.

ii. Fire safety measures support the long-term survival of historic buildings.

iii. Cultural significance is an important consideration when implementing changes for fire safety in a historic building. Adverse impacts on cultural significance should be avoided or minimised as much as possible.

iv. Decisions on implementing fire safety measures should balance any adverse impacts against the benefits of the long-term protection of the building and its cultural significance.

Aside from protecting human life, fire safety measures can help to protect cultural significance in the long term by helping to ensure the survival of a building and keep it in use.

The guidance demonstrates that many fire safety measures will have very limited impacts, and these can often be avoided or reduced through careful design. It also advises that adverse impacts on cultural significance that cannot be avoided should be minimised as much as possible. If it is not possible to reduce adverse impacts, any decision will have to balance these against the long-term benefits of protection of a building and its cultural significance from damage or destruction by fire.

c) Managing Change: Interiors

This note sets out the principles that apply to alterations to the interiors of historic buildings. The interior can make a substantial contribution to the special architectural or historic interest of a building. Its nature, style, detailing, plan-form and materials help us understand when and how a building was constructed and adapted, its social and cultural significance, what it was used for, and how this has been influenced by advances in technology and changes in fashion. Historic interiors can enrich our daily lives and wellbeing in how we use, experience and appreciate them.

The significance of a historic interior, or part of an interior, is usually derived from several factors, including those set out in chapter 2 of the guidance note. The degree to which an interior remains intact from key periods in its history, and its rarity in a broader context, are also important considerations.

The guidance note then goes into the general principles for repairs, alterations and upgrading.

6.7 Further reading

• Historic Environment Scotland (2019) Scheduled Monument Consents Policy
• Historic Environment Scotland Portal
• Historic Environment Scotland (2023) Pointing the Way to the Future
• Historic Environment Records – Scotland
• Historic Environment Scotland (2019) The Historic Environment Policy for Scotland
• RIAS (2019). For Architects
• RIBA (2024). RIBA Plan of Work
• CARE - The Institution of Structural Engineers (2022)
• Historic Scotland (2010) Guide for Practitioners 7 Fire Safety management in Traditional Buildings
• British Standards Institution (2013) BS 7913 Guide to the conservation of historic buildings.
• Historic Environment Scotland Managing Change Guidance