Hebridean Archaeology & Environment Research Centre Udal Phase 3: Feasibility Review Report for CnES 23rd June 2016 EKOS Limited, St. George’s Studios, 93-97 St. George’s Road, Glasgow, G3 6JA Reg 145099
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Contents 1.
Introduction
1
2.
The Need and Opportunity
3
3.
The Options Analysis
7
4.
Conclusions and Next Steps
11
1. Introduction This report presents the third and final output in a staged research study to assess the feasibility of establishing a new archaeology centre in the Uists. The study was commissioned by Comhairle nan Eilean Siar (CnES) in November 2014 and has been conducted over four stages:
The Management Plan – following the inception stage, this report sets the context for the study and established the basis upon which the research activities would be based;
Phase 1: Research Findings and Comparator Review – provided the baseline analysis and physical/ economic context within which any project would be delivered, together with an accompanying report that reviewed 34 comparator projects across Scotland, UK and the EU;
Phase 2: Research Findings – based on appraisal of the Phase 1 research and consultation this report presented a feasibility review for a new archaeology centre, defined the market potential, considered options around location and configuration, and presented a series of key issues to be addressed before the project could move to the final appraisal stage; and
Phase 3: Feasibility Analysis – this report, which concludes the research study, reviews the short-listed options and recommends the next steps for the project proposal.
The original commission was focused specifically around the Udal Collection of archaeological artefacts – a collection of c. 32,000 small finds and c. 600,000 individual pieces excavated over a 30-year period between 1963 and 1994. The Udal site is located on a peninsula near Sollas on the northern coast of North Uist, and many local people were involved in the excavation works. There is therefore a strong sense of community ownership and interest in the collection. Following a request to the Scottish Archaeology Finds Allocation Panel, title to the Udal archive was awarded to CnES in 2013, meaning that all artefacts and remains from the Udal site have been allocated to the Museum nan Eilean. The archive cannot, however, be returned until an appropriate facility – to museum accredited standard – is available to house the collection.
Hebridean Archaeology Centre: CnES 1
Post-excavation analysis and publication has been initiated on one element of the collection – the Udal RUX site, with grant aid support from Historic Environment Scotland – which is working toward completion and return to CnES in mid to late 2017. The much larger elements of the collection – from the Udal North and South sites – will require a new grant funding package to be secured for post-excavation and publication before any material can be returned. There is an aspiration that this work can be undertaken between 2017 and 2021, following which the remaining materials will be available for return. At present there is no suitable facility available anywhere on the Uists to house the Udal Collection. CnES therefore appointed EKOS to deliver a research study testing the feasibility of delivering a new archaeological centre in North Uist. While the original commission was focused on the Udal Collection, it became clear over the course of the study that the Udal project had unearthed a deeper problem of storage capacity to accredited standards for a wider collection of archaeological artefacts from across the Uists – both those already held by CnES and other important discoveries over the last two decades that are yet to be allocated via Scottish Treasure Trove. It is also important to note that in delivering the study there was a lengthy break (c. 12 months) between the Phase 2 and Phase 3 research. This was partly due to a change of personnel within CnES, but was also the result of the complexity of the project proposal (as per the key issues raised in the Phase 2 report) and the need to define in greater detail the purpose, role and remit for any new archaeology centre to ensure that it fully addresses the needs of both Udal and other important archaeological assemblages from the Uists. During this break CnES undertook both internal and external consultation with key partners and stakeholders to establish the core requirements, the potential opportunities and the likely content of any archaeology centre serving the needs of the Uists. This break in the study has allowed an element of reflection which has clarified the project proposal and enabled a more robust feasibility and options analysis to be completed at this final research stage. This report therefore concludes the Hebridean Archaeology Centre research study.
Hebridean Archaeology Centre: CnES 2
2. The Need and Opportunity As concluded in our earlier phase research reports, the consultant team believe that there is a good proposition to be developed around an archaeology visitor centre for the Uists, covering all the islands from Barra to Berneray. Over the course of the study the project has expanded from having a sole focus on the Udal Collection, to incorporating other archaeological assets and assemblages from across the rest of the Uists – this approach is expected to significantly increase the level of interest in a new visitor attraction by expanding it in both size and in range of artefacts. The Udal archive and the community’s aspiration for its return is, however, the driver of the project. It is of major significance as (probably) Scotland’s largest unpublished rural archaeological project. It is an important record of a series of machair sites dating from the Neolithic through to the 17th century and holds great value for the understanding of Scottish archaeology and cultural heritage. The more recent history of the excavation process over a lengthy 30-year period, and the input of/ interaction with local people over the course of this dig period is highly unusual, if not unprecedented. The fact that the archive was held in private hands by the archaeologist, Iain Crawford, for c. 15 years post-dig without being analysed or published further adds to the sense of mystery for the Udal site. The collection has the potential to deliver a high impact experience for its home community, for national and international tourist visitors and for more specialised archaeological and environmental visitors. Through the story of the Udal site – both its archaeological dimension and its social-historic dimension of community engagement in the project – there is significant potential for the collection to act as a springboard in raising the awareness of the archaeology of the Uists, and therefore of strengthening the appeal, and impact, for visitors. The Udal Colldection could also be used as a building block to the wider story of archaeology in the Outer Hebrides and across Scotland. A key aspiration for CnES is to house the Udal Collection within a facility that places it within the wider cultural and natural landscape of the Uists and connected to the rest of the Outer Hebrides. As profiled in Figure 2.1, over, (taken from our Phase 1 baseline research) there are a considerable number of archaeological sites of interest across the Uists. Hebridean Archaeology Centre: CnES 3
Figure 2.1: Archaeological Sites in North Uist, Benbecula and South Uist (including Eriskay, Boreray and Berneray)
Source: Tourism Resources Company, based on Geoconferencing data, 2015
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It is also important to note that the project will be influenced by a wide range of external factors including:
2017 will be Scotland’s Year of History, Heritage and Archaeology – there will therefore be potential to build interest (and potentially secure funding) for delivery of an archaeology-focused museum over the next 18 months;
Lews Castle and Grounds, Stornoway is nearing the final stages of a major investment project (£8.5m) to refurbish, repair and restore the interior of the castle, create a new museum and archive extension. Opening in July 2016, this will attract significant numbers of visitors (estimated at c. 50,000 to 100,000 per annum) and, through joint promotion and linked activities, could help to raise the profile for a new archaeology museum on the Uists;
Callanish Standing Stones and Visitor Centre has been established as a major visitor attraction for the Outer Hebrides for many decades, attracting 43,000 visitors in 2013 – through the recent investment to extend the visitor centre both the profile and visitor numbers are expected to increase, creating potential as another attraction from which any new archaeology museum on the Uists could link and gain benefit;
there have been a number of recent major archaeological discoveries on the Uists that have potential to raise the profile for both specialists and more general visitors – these include the Cladh Hallan site (Daliburgh, South Uist), a Bronze Age-Iron Age settlement of roundhouses which has given the first evidence of mummification in Britain; and
while there are a significant number of archaeological sites and assets across the Uists – as shown in Figure 2.1 – there is no common accessible source of information for visitors, no co-ordinated interpretation or trails, and limited road-side signage. There is therefore potential to use the project as an eco-museum hub that links and orientates visitors to a network of sites, trails, museums and other points of interest across the Uists.
As a CnES-led project, there is an obvious link with the clearly defined need from CnES to replace its existing museums storage facility at Torlum on Benbecula. The current building is beyond its useful life and an alternative, fit-for-purpose, museum accreditation worthy facility needs to be created on the Uists serving North Uist, Benbecula and South Uist.
Hebridean Archaeology Centre: CnES 5
There is therefore a clear opportunity to combine these two projects and create a new museum and storage facility that would store, display and make archaeology and social history collections accessible in the Uists. This joint proposal would deliver value for money through shared spaces (the capital construction cost), and shared people resource and running costs (the revenue budget). It would also ensure that the developing archaeology collection from across the Uists and Barra are housed in a facility that is specifically designed to encourage the local community, visitors and specialist researchers to interact with and learn from the wide range of artefacts. Combined with an active policy to encourage local partners – Kildonan Museum, Taigh Chearsabhagh, the Comainn Eachdraidh, and local community groups – to borrow and put objects on display across the Uists (taking into account the museum’s loans policy regarding collections care and security issues), this would further expand the eco-hub approach (as per the final bullet on the previous page) that will support the development of a wider archaeology-led visitor strategy for economic tourism across the whole of the Uists. CnES recognises the social, community and economic benefits of archaeology – the Single Outcome Agreement (#6) states that the ‘people of the Outer Hebrides get maximum benefit from their natural and cultural resources’ and the vision of the Tourism 2020 Strategy is to move away from individual attractions and create more rounded experiences for visitors. There is therefore a strong case measured against both opportunity and need to use the Udal Collection as the basis to deliver a wider museum accredited standard facility that supports economic growth, delivers social benefits and meets community aspirations.
Hebridean Archaeology Centre: CnES 6
3. The Options Analysis The Phase 2 research report provided a detailed options appraisal against two main criteria – the configuration options (the type of facility) and the location options. The configuration options provided a review of the new archaeology centre as:
a formal Visitor Centre, including orientation hub and new archaeology store – small, medium, large;
a Research Facility – Higher/ Further Education academic facility for scientific and social research activities with lab and teaching spaces;
a Field Studies Centre – Higher/ Further Education, school and lifelong learning centre with/ without residential accommodation; and
an Archaeology and Environmental Trail across the Uists as a connected and co-ordinated guide for visitors.
The analysis concluded that there is strong potential for a formal Visitor Centre, for an Archaeology and Environmental Trail, and for a Field Studies Centre with residential accommodation, but that establishing a new Academic Research Facility is unlikely to be commercially viable or financially sustainable. The location options i.e. where any facility should be, considered:
a new build facility within close proximity to the Udal site – either adjacent to or in Sollas as the nearest community settlement;
a new build facility in Lochmaddy as the main settlement on North Uist;
reconfiguration of an existing building in North Uist – a non-exhaustive and provisional list might include the Taigh Sgire Sholais complex at Sollas, an expanded Taigh Chearsabhagh, or other available premises; and
a new build facility elsewhere in the Outer Hebrides – no specific location has currently been identified.
Hebridean Archaeology Centre: CnES 7
The Udal site was quickly ruled out due to environmental constraints on this sensitive and well-protected/ designated site. It was difficult to assess a non-specific location elsewhere on the Outer Hebrides but there was limited community support and a high risk of local disaffection. All of the other locations were identified as potentially viable. The Phase 2 research report concluded that there was a need for more detailed review of the potential options but that this was dependent on gaining clarification on a number of outstanding issues including:
the content of a new visitor centre – the balance between the Udal Collection as the primary driving force and other important archaeological collections from the Uists held by CnES now and in the future;
the potential to deliver a new archaeology store for the Uists as part of a combined project proposal;
the likely availability and extent of ongoing revenue support from CnES and/ or local partners/ stakeholders in providing staffing and revenue running costs for a new visitor centre;
the ability of HE/ FE institutions to commit resources to, or guarantee the use of, any Research Centre and/ or Field Studies Centre; and
the extent to which a visitor centre could be used to develop a wider archaeology and environment trail across the Uists and become an ecomuseum hub for such a trail.
The Phase 2 research concluded on the need for a project development workshop with key stakeholders to review and test the potential options in more detail and gain clarification on these issues. As noted in the introduction to this report, there was a lengthy time delay between completion of the Phase 2 research, and commencement of the Phase 3 research. Over this period CnES undertook a series of internal and external consultations to gain more detailed insight from partners and remove some of the uncertainty on the project proposal.
Hebridean Archaeology Centre: CnES 8
This analysis produced three main options for the project, which were tested at a Community Workshop held in Sollas on Saturday 7th May 2016. The options were based on the earlier research findings and in recognition of the wider context in which the project is being progressed – resources, infrastructure, timescales, viable locations, community aspirations and ongoing or imminent compatible projects. The options were also reviewed by appropriate professional staff within CnES’ Development & Heritage teams, by the Udal Steering Group and by other local community groups. The three options reviewed at the Community Workshop were:
Option 1 – a non-object 2-D exhibition at the Sollas schoolhouse that could be linked with an Udal or a Sollas Archaeological Trail. This option reflects the community’s legitimate desire to see Udal material on display in Sollas, alongside the difficulty in delivering (and running as a financially sustainable entity) an accredited museum standards facility;
Option 2 – a Sollas museum-standards compliant display space as part of the schoolhouse redevelopment. This option reflects the Taigh Sgire Sholais group’s aspirations for redevelopment of the former schoolhouse building and the potential to incorporate formal display facilities for Udal artefacts. As a stand-alone project the fundraising for construction/ conversion and the staffing/ resourcing of any new facility would have to be a community responsibility; and
Option 3 – an Eco-hub that brings together a new museum/ visitor centre/ storage facility for the display of the Udal and other CnES collections. This option builds on the potential to bring together a clear opportunity with an established need and thereby support the development of a wider archaeological strategy for economic tourism in the Uists.
The workshop was attended by 14 people representing the various interests of the local community, CnES, the Comainn Eachdraidh, North Uist Development Company, Taigh Sgire Sholais, Taigh Chearsabhagh and the consultant research team. A number of attendees had two or more interests and were therefore able to give significant insight into the potential benefits, risks and implications of each option.
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Each option was discussed and the merits/ de-merits of each debated in a round table discussion that produced a clear consensus that Option 3 is the preferred approach, but that it should be extended to incorporate an archaeology trail for the Udal that specifically incorporates non-object 2-D display about the Udal Collection at Sollas/ Grenitote, and also an approach that pro-actively encourages local partners to borrow and put objects on display across the Uists (subject to collections care and security issues). While the Udal Collection remains the driving force for the project, it is important that other key archaeological material from across the Uists and Barra are included, and that the facility acts as an eco-hub point for a wider archaeology and environment trail for the Uists. A number of location options were raised and discussed at the workshop with no clear preference emerging at this stage due to a number of uncertainties relating to potential options e.g. the feasibility of extending Taigh Chearsabhagh, the bunkhouse proposal at Taigh Sgire Sholais, and the redevelopment of the former Lochmaddy Hospital and School site. There was, however, general consensus that the location should be as accessible as possible for both visitors and local people to maximise the volume and value of its impact – this would suggest a location in one of the main settlements, or adjacent to an established visitor attraction. It was agreed that adopting an outward-looking eco-hub concept that ensured collections were used within communities would allow the museum and store to be located elsewhere in the Uists, meaning options on Benbecula and South Uist could also be considered.
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4. Conclusions and Next Steps The Hebridean Archaeology Centre project proposal has had a long and somewhat complicated development history. The driving force behind the original project was, and remains, the Udal Archaeological Assemblage or Collection. It was, however, quickly established that there was potential to use the Udal Collection as part of a wider story of the human interaction with the environment of the Uists, incorporating aspects of ongoing and future environment and climate change research. This idea became the HAERC proposal1. It also became apparent through the research to test this concept that there was an opportunity to: 
deliver a combined museum and visitor centre to include other archaeological assemblages that are currently held by, and that are likely to be allocated to, CnES including Bornais, Cille Pheadiar, Clad Hallan and An Dorlain;

incorporate the need for a replacement Museum Collections Store on the Uists for the Museum nan Eilean/ CnES collections presently stored at Torlum to enable them all to be accessible to the public; and

become the central hub for a wider archaeology and environmental trail across the Uists.
It was recognised at the final Community Workshop (7th May 2016) that a standalone Udal visitor centre would be difficult to achieve due to the need for an accredited museum standard facility (to ensure appropriate environmental and security conditions) and the likelihood that it would need to be a community-led project proposal. There was general consensus that there is neither the willingness nor the capacity for the community to deliver on this given the number of other projects and the priority focus on the redevelopment of the Sollas schoolhouse, possibly as a bunkhouse.
1 The Hebridean Archaeological and Environmental Research Centre
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There was, however, strong support for establishing a non-object 2-D exhibition within the Sollas area that provides information on the Udal project through high quality graphics and interpretation, and acts as the starting point to an archaeological trail leading to the Udal site. This support was, however, dependent on the opportunity for local people, visitors and specialist researchers to access the collection at a new high quality museum and visitor centre. A multi-solution approach is therefore identified as meeting the needs, aspirations and opportunities to gain maximum benefit (economic, social and community) from the Udal Collection. This option shares much of the ambition of the HAERC solution but models it slightly differently. It starts from the premise that CnES, through Museum nan Eilean, has a responsibility to store its present and future collections in an appropriate high quality facility, and the opportunity to create an archaeologyfocused museum and visitor centre that displays its current (and likely future) collections in a setting that will deliver maximum benefit for the local community. There is still a considerable level of detailed project appraisal and review needed before the project can be taken forward. The location is absolutely central and must be established before any further analysis on the feasibility or viability can be undertaken. CnES needs to establish a list of potential sites and building options that then need to be reviewed in detail to establish their merits and constraints before a final decision can be made. Once the preferred location has been established a clear brief can be set that will allow the capital and revenue costs, the potential operating model and revenue costs, and the commercial viability to be tested. As the wider eco-hub proposal (combined storage, museum and visitor centre) the project should be led and managed by CnES, but with ongoing input provided by key stakeholders. This is unlikely to be a quick or an easy project to develop but the timescale could align with the return of the whole Udal Collection, estimated for 2021. There are, however, some initial steps and quick wins that can be secured, including the development of the 2-D exhibition about the Udal on a site in Sollas/ Grenitote; the development of historic environment trails across the Uists; and the display of Udal Collection artefacts in existing visitor attractions (as per the current display at Taigh Chearsabhagh). This approach will deliver some quick-wins and test the potential level of visitor interest for any new museum, thereby supporting robust appraisal and final project design.
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It is therefore recommended that a new museum exploring the archaeology of the Uists and Barra be taken forward as a combined museum and storage facility, building on the success of the Lews Castle Project in Lewis and the increased visitor numbers that will flow throughout the Heritage Network. The Centre will also provide a focal point for the Museum nan Eilean/ CnES Collections in Uist, whilst also feeding these collections outward to the independent museums and Comainn Eachdraidh. As an accredited museum it would provide accommodation, display and interpretation of artefacts from across the Uists and Barra, and act as the central hub for the Uist-wide archaeology and environment trails.
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