SPD1 - tallbuildings

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Supplementary Planning Document 1

TALL BUILDINGS

Adopted January 2005


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| Tall Buildings | i |

TALL BUILDINGSSupplementary Planning Document No1

Clear and consistent guidance on the design andlocation of tall buildings in our city is to bewelcomed. This has been a very successful projectin terms of generating public debate about tallbuildings and I am pleased that officers havelistened to and heeded the views of residents. Inparticular, I am pleased to see how the use of aninteractive website has shown how more peoplecan become involved in important debates as to thefuture of our city.

Consultation revealed support for the new tall

buildings in Bristol so long as they are welldesigned, sustainable, distinctive and located to 'fit'into the existing urban landscape. The tall buildingspolicy now maps out clearly those areas in the citycentre where they may be acceptable.

This supplementary planning document on tallbuildings is a welcome response to the citys urbanregeneration programme and positive investment incommercial property areas such as Broadmead,Temple Quay and Harbourside. Tall buildings areincreasingly featuring in development proposals soit is essential that there is clear policy guidance.

The new planning guidance will shape Bristol'sfuture skyline by setting criteria by which futureproposals for tall buildings are to be considered.

Bristol's tall building guide is one of the first newstyle planning policy documents in the country andhas already been recognised by national bodies asan example of best practice.

I hope you take the time to read, what is, a very

useful document.

Cllr Richard Pyle,Bristol's Executive Member for the Environment,Transport and Leisure

January 2005

Cllr Richard PyleBristol's Executive Member forthe Environment, Transportand Leisure


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| iv | Tall Buildings |

The Ordnance Survey mapping included within this publication is

provided by Bristol City Council under licence from the Ordnance

Survey in order to fulfil its public function to act as the local planning

authority. Persons viewing this mapping should contact Ordnance

Survey copyright for advice where they wish to licence Ordnance

Survey mapping for their own use.

If you would like this information in a differentformat, for example Braille, audio tape, largeprint or computer disc, or community languages,please contact the Strategic & Citywide Policy

Team on: 0117 903 6720


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| Tall Buildings | 1 |


1.0 INTRODUCTION

1.1 Purpose/status of guidance

This Supplementary Planning Document (SPD1)provides a set of assessment criteria that theCouncil will require applicants of all tall buildingproposals to address in their detailed planningsubmissions. It also identifies areas within the citycentre where tall building schemes may beacceptable subject to them making a positivecontribution to their surroundings. Applicantsshould note that it will not generally be appropriateto use outline applications. The Planning Authoritywill strongly recommend the submission of a

detailed application in accordance with the adviceof English Heritage and the Commission forArchitecture and the Built Environment (CABE).

These assessment criteria are as follows:

(i) RELATIONSHIP TO CONTEXT, INCLUDINGTOPOGRAPHY, BUILT FORM, AND SKYLINE;

(ii) EFFECT ON THE HISTORIC ENVIRONMENT AT ACITY-WIDE AND LOCAL LEVEL;

(iii) RELATIONSHIP TO TRANSPORTINFRASTRUCTURE PARTICULARLY PUBLICTRANSPORT PROVISION;

(iv) ARCHITECTURAL EXCELLENCE OF THEBUILDING;

(v) CONTRIBUTION TO PUBLIC SPACES ANDFACILITIES, INCLUDING THE MIX OF USES;

(vi) EFFECT ON THE LOCAL ENVIRONMENT,INCLUDING MICROCLIMATE AND GENERALAMENITY CONSIDERATIONS;

(vii) CONTRIBUTION TO PERMEABILITY ANDLEGIBILITY OF THE SITE AND WIDER AREA;AND

(viii) SUFFICIENT ACCOMPANYING MATERIAL TOENABLE A PROPER ASSESSMENT INCLUDINGURBAN DESIGN STUDY/MASTERPLAN, A 360DEGREE VIEW ANALYSIS AND RELATIVEHEIGHT STUDIES.

(IX) ADOPTION OF BEST PRACTICE GUIDANCERELATED TO THE SUSTAINABLE DESIGN AND

CONSTRUCTION OF TALL BUILDINGS(X) EVALUATION OF PROVIDING A SIMILAR LEVEL

OF DENSITY IN AN ALTERNATIVE URBAN FORM

At the time of consulting, this document wasreferred to as Policy Advice Note 22 (PAN 22).However, under new arrangements associated withthe recent enactment of the Planning andCompulsory Purchase Act (2004), the term PolicyAdvice Note has been replaced with SupplementaryPlanning Document (SPD). SPD1 has been preparedin accordance with regulatory requirements and isthe first component/document of Bristols LocalDevelopment Framework.

This SPD has been prepared specifically to advise ontall building schemes being promoted in the citycentre, as this is currently the focus for tall buildingapplications. Any application that is received from

outside the central area will be required to gothrough the same assessment procedure withsupporting contextual analysis.

Status of SPD1 the relationship to existing planningpolicy and its use in the decision making process

Proposals for tall buildings should be made inaccordance with the relevant policies of the adoptedBristol Local Plan and SPD1, an important materialconsideration with significant weight in thedecision making process.

SPD1 has been prepared as a SDP in accordancewith PPS12 Local Development Frameworks (2004)and the associated Town and Country Planning(Local Development) (England) Regulations 2004.Bristol City Council is currently preparing its LocalDevelopment Framework and consequently theadopted Bristol Local Plan (1997) and its policies willbe saved until replaced by suitable LocalDevelopment Documents.

As any proposed new tall building will require theconsideration of a number of planning issues avariety of these saved policies in the adopted BristolLocal Plan will apply to which SPD1 supplements(see 1.6), in particular policy B1 Design Criteria andAssessment, B2 Local Context and B5 Layout andForm. It is considered SPD1 is in conformity withthese saved policies and consistent with nationaland regional policy.

Policy B7A Tall Buildings, of the ProposedAlterations to the Bristol Local Plan (2003)demonstrates the City Councils commitment to

providing an explicit tall buildings policy and islikely to be included within a future DevelopmentPlan Document. On adoption this policy wouldreplace the adopted Bristol Local Plan policies asabove as the primary Development Plan reference.


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It is therefore important that the impact of tallbuildings is critically assessed through the planningprocess and that only proposals which pass arigorous examination are put forward for approval.There is a particular need to strengthen theprotection afforded to Bristols 33 ConservationAreas in terms of siting of tall buildings and theirdetailed design.

Differing views exist to the adequacy of existingpolicies to inform and guide decisions in relation totall buildings. Whilst locally there is a school of

thought that tall buildings should be treated likeany other building types through the developmentcontrol process, Government is increasinglyencouraging local planning authorities to developspecific policies around tall buildings. Itrecommends that local authorities identify areaswhich are and are not appropriate for tall buildingsin their development plans. This is further endorsedin the recent guidance provided by the CABE andEnglish Heritage which seeks to advise localauthorities on a more rigorous assessment

procedure.1.3 Definition of tall buildings

Policy B7A of the Proposed Alterations to the BristolLocal Plan, 2003 defines tall buildings,

as those that are substantially taller than theirneighbours and/or which significantly change theskyline.

In Bristol City Centre, background buildings tend tobe 4-6 storeys high. This has been an essentialelement in the citys distinctive identity. A tallbuilding would therefore be in the region of 9+storeys. Between 6-9 storey proposals will beassessed on a site by site basis as to whetherSPD1 will apply, taking into account the prominenceof the site within the townscape. In the suburbs,buildings tend to be 2-3 storeys. In this context atall building would be in the region of 6+ storeys orabove.

Notwithstanding, any building of 27m or taller(approximately 9 storeys) will automatically trigger

the need for applicants to address the assessmentcriteria as set out in this SPD, regardless of whetherthe proposed building is significantly taller thanthose around or not. This height threshold will

T h e c u r r e nt H Q o f B r i s t o l a n d W e st - T h e H ei g ht M a t te r s su r v ey s u gg e st s t h at t h i s i s o ne

o f B r i s t o l s m o s t p o p u l a r t a l l b u il d i n g s

b ui lt i n r e ce nt d e ca de s

Cus tom Hous e i s v ie we d as a s ucce s s f u l re ce nt

addit ion to Re dc l i f f e Backs

- a g o o d mo d e l of h o w t o a c hi e v e a n a t tr a c t i v e,h igh de ns i ty towns cape


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| 4 | Tall Buildings |

include extensions to existing buildings includingsignificant plant. It should be noted however, thatdefining a tall building in terms of the number ofstoreys could sometimes be misleading becausefloor to ceiling heights differ according to use. Forexample office and retail storey heights are oftenhigher than those of residential. Thereforeprospective developers are required to quotebuilding heights, number of storeys and OrdnanceDatum Level when presenting proposals. Heightsshould also include visible roof-top equipment.

1.4 Experience of other UK citiesLondon has obviously been the focus of the majorityof tall building schemes. Indeed, a recent article inThe Guardian suggests that at present there are 32high rise buildings under construction in Londonwith a further 70 approved and 96 proposed.However, interest in building tall is not confined toLondon, with many of the English Core Cities, beingtargeted by developers. Permissions for very tallbuildings (+25 storeys) have been granted inManchester, Leeds, Birmingham and Liverpool, as

well as smaller cities suchas Brighton andPortsmouth.

Most of the core cities areresponding positively tothe guidance fromCABE/English Heritage onpreparing specific policieson tall buildings.

Some cities have opted for a detailed, area specificapproach to preparing guidance; others have takena more criteria based approached to assessment.

Cities like Birmingham have proactively encouragedthe building of tall landmark buildings at keynodes and gateways in the city through their policyguidance. The London Plan identifies a viewprotection framework to guide development there.Brightons guidance promotes a number of nodesand transport corridors as appropriate locations fortall buildings. Further details can be found inAppendix A.

1.5 National policy context

House of Commons Tall Buildings, Sixteenth Report ofSession 2001-2, Volume 1 (DTLR, 2002)

The Urban Affairs Sub-committee of the House ofCommons Select Committee on Transport, LocalGovernment and the Regions undertook an inquiryinto Tall Buildings in 2001-2. Witnesses representinga wide spectrum of interests (including amenitysocieties, developers, architects and localauthorities) submitted memoranda to thiscommittee. This SPD supports therecommendations of the Government Select

Committee, which broadly speaking are:

Beetham Tower,Manche s te r

- t h i s 4 7 st o r e y b u i l d i ngwi l l be come Manche s te r s

t a l le s t b u il d i ng

King Al f re d s i te , Br ighton (by Frank Ge hry)

- t h i s u n u s u al c on c e p t s c h e m e w o n a d e si g ncompe ti t ion f or the Hove s e af ront


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Tall buildings are not essential to the urbanrenaissance. They are only one of several waysof increasing building densities. They can beenergy efficient and can be part of mixed useschemes; however, other high densitybuilding types have similar advantages. Inseveral respects high rise buildings are lesssustainable than high or low rise buildings:the inflexibility of space and difficulties ofchange of use have been a problem.

Transport capacity must be a majorconsideration in deciding whether a proposalfor a tall building, or for any high densitydevelopment, is given planning permission..Developer contributions should be used muchmore than at present to enhance thetransport system, particularly where largebuildings have a significant impact on thetransport system;

High quality design is essential if tallbuildings are to play a role in enhancing the

beauty of our cities and continued vigilance isneeded to ensure that buildings do notdeviate from approved designs during theconstruction process The location of tallbuildings is of paramount importance andspecial attention should be paid to historiccontext;

Tall buildings should be clustered togetherrather than pepper-potted across a city;

Tall buildings are not inherently unsafe asplaces to live or work but there are areas inwhich further regulation could furtherpromote safety in tall buildings.

Guidance on Tall Buildings, English Heritage andCABE, 2003

This English Heritage/CABE guidance seeks to:

Enable areas appropriate for tall buildings tobe identified in advance within the local

development plan or framework;

Enable proper consultation at the plan-making stage on the fundamental questionsof principle and design;

Reduce the scope for unnecessary, speculativeapplications in the wrong places;

Protect the historic environment and thequalities which make a city or area special;

Highlight opportunities for the removal ofpast mistakes and their replacement bydevelopment of an appropriate quality;

Set out an overall vision for the future of a

place.

1.6 Local policy context

Bristols Community Strategy, Bristol Partnership, 2003

This strategy has been prepared to guide all othermajor public strategies and plans in Bristol andinfluence a longer-term strategic view of the citysfuture ambitions, needs and priorities. Its has avision of Bristol as a vibrant city, where everyonecan thrive economically, culturally and socially; a

safe city that promotes health, learning andsustainable development, and a diverse city thatvalues all of its people and communities. Itidentifies a number of important environmentalgoals that promoters of tall buildings should beaware. These include the aim of creating anddeveloping:

A carbon-neutral city;

Zero-waste policy and practices;

A sustainable transport system;

Attractive, well-designed safe streets,buildings and neighbourhoods;

Newly built environments that provideaccessible modern space to support Bristolshistoric buildings, and that contribute to thesustainable development of the city;

Better accessibility to local community

facilities; and

Sustainable communities across the city.


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Bristol Local Plan, 1997

SPD1 has been drafted to meet the followingobjectives of the Built Environment chapter of theLocal Plan:

To reinforce the attractive and varied qualitiesof Bristols built environment in order tocreate a positive image and identity for thecity, and enhance the quality of life for itsinhabitants, workers, visitors and businesses.

To secure a high standard of design for alldevelopment, ensuring that it issympathetically integrated within the localand city context, and respects principal viewsacross the city.

To promote a quality of new developmentthat achieves sustainable development andwhich enhances the environment generally.

To preserve or enhance the character and

appearance of Conservation Areas, and otherareas of special interest and character.

SPD1 supplements a number of policies in theadopted local plan including:

B1 Design Criteria and Assessment

B2 Local Context

B5 Layout and Form

Proposed Alterations to the Bristol Local Plan, 2003:

New Tall Buildings Policy

In a period where proposals for new tall buildingswere coming forward in greater numbers, raisingparticular issues for consideration, it was apparent anew specific policy and supplementary guidancewere required. Subsequently alterations to theadopted Plan proposed a new tall buildings policy(B7A) to clarify Bristols position. (See Appendix G)

Adopted Local Plan built environment policies andProposed Alterations likely to be relevant to the

assessment of tall building schemes include:

B1 Design Criteria and Development

B2 Local Context

B3 Accessibility

B4 Safety and Security

B5 Layout, Form and Identity

B5A Public art New policy in ProposedAlterations to the Bristol Local Plan, 2003

B5B Density New policy in Proposed Alterationsto the Bristol Local Plan, 2003

B6 Building Exteriors and Elevations

B7 Landscape Treatments and EnvironmentalWorks

B7A Tall Buildings New policy in ProposedAlterations to the Bristol Local Plan, 2003

B8 Development: Criteria for New Housing

B13 Conservation Areas and Listed Buildings:General Principles

B15 Streets and Open Space

B16 New Buildings

B22 Sites of Archaeological Significance

The weight and status of Proposed Alterations isclarified at point 1.1

Bristol Sustainable Development Guide forConstruction

This is a guide produced by the City Council to assistdevelopers to adopt more sustainable approachesto how they plan and build and is consistent withmany Local Plan Policies. It is associated with thecompletion of a Sustainable Development Profileto be submitted with major planning applications.This would be a desirable to accompany any tallbuildings application. Reference to the PlanningPolicy website will confirm the formal status of theemerging update of this guidance.


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1.7 Height Matters a public consultationinitiative on tall buildings

The consultation process has been branded underthe heading of Height Matters? and was devisedwith the following aims and objectives:

To raise awareness that BCC is in the processof producing a Supplementary PlanningDocument on Tall Buildings, and get somedirect feedback on the content of the SPD as ithas developed

To find out what the general public feel abouttall buildings, thus ensuring that the tone ofthe SPD is correct

To encourage creative thought and debate onthis emotive and often controversial issue

Following an initial consultation period (Stage 1),SPD1 was substantially redrafted to take on boardcomments received. A further period of consultation

(Stage 2) was then embarked upon to allow forfurther comment on the amended document.

Stage 1 (April-June 2004 for six weeks)

The following consultation activities took place:

A comprehensive and dedicated website hasbeen created to support the consultationinitiative under the umbrella of the Councilsown website (www.bristol-city.gov.uk/heightmatters). Members of thepublic have been invited to download copiesof the SPD1, join in on-line discussion groups,complete on-line surveys, and consider the

arguments for and against tall buildingsthrough the E-Decide facility

A series of events have been staged at theArchitecture Centre, particularly targeted atlocal built environment professions (12 Mayand 9 June 2004)

Members of Bristols Citizens Panel wererecruited for two facilitated discussions (27May 2004)

3000 surveys were distributed across the cityin public buildings, foyers of tall buildings,universities and Bristol College. Members andamenity societies were also sent copies of thesurvey. Over 650 people completed the survey

Statutory consultees were sent copies of theSPD1 by post

A copy of SPD1 was made available to view inthe Planning Reception of Bristol City Council(Brunel House)

The initiative has been widely publicised inthe local media, on the homepage of theCouncils website and through features in theCouncils Weekly News

Stage 1 consultation has revealed support for newtall buildings in Bristol with the important proviso that they are well designed, sustainable, distinctiveand located to fit into the existing urban

landscape. Consultation has also shown theunpopularity of existing tall buildings, most notablyfrom the 60s and 70s and the desire to rid thesefrom Bristols skyline. Despite this dislike of many

H e ig h t M a tt e r s? -comple te d by ove r 650 pe ople


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post-war tall buildings, people remain receptive tonew tall buildings in suitable areas of Bristol. Theconsultation provided some useful feedback.Consultees generally welcomed the preparation ofguidance that expands Local Plan policy, andexpressed support for the assessment criteriaidentified. However, a significant number ofconsultees (including English Heritage and CABE)requested that the Council be clearer about thoseareas in the City which are inappropriate for tallbuildings and those areas of the City where theymay be acceptable.

Stage 2 (September-October 2004 for four weeks)

The following consultation activities took place:

A notice was placed in the Bristol Evening Poston the 21 September advertising a furtherone month period of consultation on the TallBuildings SPD1. This conforms with the latestregulations

All respondees to the Stage 1 consultation

exercise who had provided email contacts(over 500) were contacted by email to informthem that the revised policy was available toview online or at the Councils planningreception

All respondees who had provided writtenresponses to the Stage 1 consultation wereinformed by letter to them that the revisedpolicy was available to view online or at thecouncil planning reception

Statutory consultees were sent copies of therevised SPD1 by post

Presentations were made to the Central AreaPlanning Committee, Conservation Area Paneland Women in Property Group

A copy of SPD1 was made available to view inthe Planning Reception of Bristol City Council(Brunel House)

A summary of the consultation can be found inAppendix B. Furthermore a detailed Statement ofCommunity Involvement can be downloaded atwww.bristol-city.gov.uk/heightmatters. Thisdemonstrates the rigorous procedures of publicparticipation undertaken beyond the minimumrequirements of PPS12 Local DevelopmentFrameworks and associated regulations.


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2.0 CITY CENTRE URBAN DESIGNAPPRAISAL: TALL BUILDINGS

This section provides an urban design appraisal ofthe city centre, making particular reference to therole that tall buildings play in the urban context.

2.1 TopographyBased in a valley at the lowest crossing point of theRivers Frome & Avon, Bristol grew enormously inthe eighteenth, and nineteenth centuries; to thenorth up the steep slopes of the escarpments ofKingsdown, Clifton and Brandon, in the south across

Figure A: Bristol's Topography

City Centre

Contours (5 metres)

Bristol City Council's Boundary

Main Roads

50m Contour

160m Contour

1000 meters

Dundry Hill

Crown Copyright. All rights reserved.

Bristol City Council. Licence No.100023406. 2005.

Figure A -

Bristols Topography


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the valley basin to the slopes of Bedminster, Eastonand Windmill Hill. In the twentieth century, the cityexpanded four times its original size encompassingto the north the Clifton Downs, Trym Valley, KingWeston Slopes, Cotham and Redland Hills, and inthe south, all the lower escarpment up to the 160mcontour of the Dundry slopes.

The steeply sloping escarpment that runs fromClifton Wood to Kingsdown is one of the citycentres defining features. This has been picked outas the 50m contour on the supporting maps. Whilst

along much of this escarpment development hasrespected the topography, tall buildings along theKingsdown section of escarpment havedetrimentally masked the topography.

Along the top of this escarpment, the BristolUniversity buildings on St. Michaels Hill commandthe high ground. This cluster of buildings, whilst notparticularly tall, dominate the skyline when viewedfrom the south, and are important features of theBristol townscape.

The neighbourhoods of Broadmead, Old Market,Temple, Redcliffe , Old City and Harboursideeffectively sit in the low-lying river basin of theFrome and the Avon. Tall buildings tend to be lessdominant in these low lying areas.

2.2 Open spaces and water courses

The city centres principal defining watercourses arethe Floating Harbour and to a lesser extent The NewCut. Whilst the former is a well used, recreationalresource for the city, the latter is predominantly a

vehicular corridor. The Floating Harbour cutsthrough most of the city centre neighbourhoods,and connects a series of important new and historicurban spaces. These include The Centre Promenade,Millennium Square, Castle Park, and the LloydsAmphitheatre. Indeed over 80% of the harboursedge is now accessible by the public. As a result, itsimportance as a pedestrian route is increasing, as isits role as a vantage point from which to enjoy thetopography of the city. Bridges over the harbourprovide particularly good vantage-points.

Brandon Hill is an important green space occupyingthe high ground of the West End. Its south-westerlyaspect makes it a pleasant and tranquil space totake in the views across the south of the city. Other

green spaces within the city centre (College Green,Queen Square and Castle Park), are far busier andmore contained spaces, providing important lunchtime spaces for city workers, and increasingly usedto host events, particularly in the summer. Viewsinto and out of these spaces are of particularimportance, as is the potential of a tall building toreduce the openness of their character.

In addition, there are a number of open spaces onthe outskirts of the city centre which provide a goodvantage point from which to view the centre. These

include Windmill Hill, Perrets Park, BedminsterDowns and Ashton Court.

2.3 The urban structure

Bristol is historically a city that comprises a networkof streets with domestic scale, arranged withinperimeter blocks that front onto these streets. Forcenturies Bristols built character evolved assuccessive generations developed and redevelopedon the street patterns and blocks of the past.

Post-war reconstruction of the city centre has, ingeneral, not respected the traditional, tight grainblock structure to the city centre. In its place, blockshave been replaced with stand-alone buildings(with much larger footprints than before), sitting inlarge plots of poorly defined open space. Punter(1990), documents a period between1940-1990during which 250 large office buildings were built,transforming the scale of post-war Bristol. Many ofthese buildings were tall point or slab blocks andtended to be clustered around the city centre looproad to the North and East of the city, in the lowerlying neighbourhoods of Stokes Croft, Broadmead,Old Market, Temple, Redcliffe and Old City. 15 ofthese buildings have gross floor areas of over10,000sqm, a substantial increase over anythingthat had existed before.

2.4 Movement corridors and gateways

During the post-war period in some parts of the city,the underlying fine-grain structure of streets andblocks has been significantly eroded. The permeablenetwork of streets being replaced with large

engineered highways.


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The city centres main vehicular corridor is now thecity centre loop, a dual carriageway extending fromBath Bridge, past Temple Meads Station, theBroadmead shopping area, and then diverted viaPerry Road, Park Row, and Jacobs Wells Roadthrough to Hotwell Road. The dual carriagewaysection of this route was built in the post-war era inconjunction with a number of tall buildings.

Arterial roads into the city centre (M32, CheltenhamRoad, Old Market Street, Temple Gate) all formimportant gateways where they meet the city

centre loop.

The city centre is focus of the citys bus network,and as such, all of the city centre could beconsidered well-served by public transport. Theprincipal public transport interchanges are at theCentre, Temple Meads Train Station and theMarlborough Street Bus and Coach Station.

The City Centre Strategy identifies a mainpedestrian route through the city centre which linksTemple, Harbourside and Broadmead. 90% of

Bristols major destinations and points of arrival arewithin 100 metres of this route.

2.5 Historical assets

To date, the City Council has designated 33Conservation Areas, where the architectural quality,history of the townscape, distinctive character andappearance merit preservation and enhancement. Adescription of these areas can be found in theConservation Area Enhancement Statements PolicyAdvice Note 2 (Bristol City Council, 1993). The

following Conservation Areas lie within the CityCentre Strategy area:

City and Queen Square

Portland Square

St. Michaels Hill and Christmas Steps

Park Street and Brandon Hill

College Green

Redcliffe

Old Market

City Docks

Stokes Croft

These conservation areas cover approximately 2/3of the city centre (see. Fig F).

Bristol has a fine heritage of prominent landmarkbuildings, each bearing public, state or religioussignificance. Figure B categorises them asmonuments. These buildings have tended to bebuilt by the nations leading architects, and definethe citys status, quality and aspirations, projectingit nationally and even internationally. Often thesebuildings are physically detached from surroundingbuildings, occupy prominent positions and are

designed to a high quality, utilising qualitymaterials and a richness of design. Many landmarks(although not all) tend to use height to expresstheir significance, utilising spires, towers andcupolas to achieve this. This is certainly the case forsome of Bristols most significant landmarksincluding St. Mary Redcliffe Church, The Cathedral,Cabot Tower, The Wills MemorialBuilding/University Tower, The ss Great Britain andto a less extent Temple Meads Station. The HeightMatters consultation initiative suggests there is a

general acceptance that it is entirely appropriateand desirable for these types of building todominate the skyline of the city, an acceptancewhich is not often conveyed to tall residential orcommercial buildings.


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The Wi l l s Me moria l Bui ld ing/U nive rs i ty Towe r Te mple Me ads Stat ion

C a bo t To w er St . Mary Re dc l i f f e

Some of Bristols primary landmark buildings


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Bristol also has a wealth of industrial heritagebuildings that assert themselves on the skyline. Keysurviving landmarks include the BondedWarehouses and the cranes outside the IndustrialMuseum (both in Harbourside), and Gardiners andthe Lead Shot Tower in Temple.

2.6 Post war tall buildings

Figure B shows the locations of Bristol city centresprominent tall buildings, clearly illustrating thepost-war tall buildings relationship to the historicalmonuments and industrial landmarks. Figure Cprovides a height comparison of a selection of thesebuildings. Plotting the location and height of thetaller post-war buildings in Bristol has shown that:

The extent of the footprint of buildings in the9+ storey range is often substantial, in somecases encompassing most of a city block;

The building footprints of post-war towerblocks often do not respect the underlyingstreet pattern;

Post-war tower blocks have not beenclustered within a single confined section ofthe city centre. Rather they are dispersedthroughout the city centre, often in smallclusters adjacent to the city centre loop (St.James Barton, Old Market and Lewins Mead);

Post-war tower blocks tend to be uniform in

design and appearance block form, squareprofile, and grid fenestration;

On the whole, post-war tower blocks tend tobe bulky and squat rather than tall andslender.

Residential tower blocks are widely scattered acrossBristol and particularly throughout south Bristol.The most prominent blocks in the city centre are inSouth Redcliffe, where there are several multi-storeyflats dating from the 1950s designed by the thenCity Architect. Distinction needs to be madebetween these buildings and a later inferiorgeneration of design/build tower blocks (e.g. inBarton Hill) that resulted from the pressure by

The Cathe dral


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| Tall Buildings | 15 || 14 | Tall Buildings |


BristolCathedral,(44m)

CabotTower,BrandonHill(32.5m)

WillsMemorial/

UniversityTower,ParkSt,(58.5m)

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AllSaintsChurch

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St.PetersChurch

,CastlePark(23

.6m)

St.NicholasChurch

,BalwinSt(59

.5m)

StMaryRedcliffeChurch,(86.5m)

RedcliffeWay

HouseofFraser

5Storeys

5102St.JamesBarton

8Storeys

ShotTower(43.5m)

TollgateCarPark,MarketGate

7Storeys

TempleChurch,TempleSt,(40m)

StThomastheMartyrChurch,

TempleSt,(30.5m)

StJamesChurch,(36m)

St

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St

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StPaulsChurch,PortlandSq(58m)

StPhillips&JacobChurch,(30.5m)

St.JudesChurch,(25.5m)

CanyngeHouse,PrewettSt.

6Storeys

SpencerHouse,PrewettSt

9Storeys

PattersonHouse,PrewettSt

9Storeys

ProctorHouse,PrewettSt

9Storeys

BroughtonHouse,SomersetSt

14Storeys

Yeaman'sHouse,SomersetSt

14Storeys

BristolMarriotRoyalHotel

7Storeys

BroadQuayHouse,BroadQuay

9Storeys

CliftonHeights,WestTriangle

16Storeys

BondedWarehouses

9Storeys

ColstonTower,ColstonAve

18Storeys

Gre

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Sto

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PithayHouse,T

hePithay

9Storeys

SunPlazza(formallySunLife

building),NorthSt.,8

Storeys

TravelInn(FormerlyAvonHouse)

18Storeys

BartonHouse,BondSt.

8Storeys

Spectrum,BondSt.

6Storeys

CastleMeadHouse,PennSt.

20Storeys

MarketGate(formerlyMercury

House)BondSt.15Storeys

TollgateHouse,HoultonSt.

18Storeys

TheMarriottHotel,PennSt.

13Storeys

FormerBristol&WestBuilding,

BroadQuay,18Storeys

St.ClementsHouse,MarshSt

8Storeys

St.LawrenceHouse,BroadSt

12Storeys

WaverlyHouse,WelshBack

14Storeys

UnderDownHouse/WaringHouse

RedcliffeHill5Storeys

CustomHouse,RedcliffeBridge

8Storeys

TowerHouse,FairfaxSt

15Storeys

VintryHouse,W

ineSt

6Storeys

OneVictoriaSt(formerly

DRGbuilding)RedcliffeSt.

15Storeys

RamadaPlazaHotel,RedcliffeWay

7Storeys

DasTemplewayHouse

6Storeys

ThePostOfficeSortingOffice,

CattleMarketRd,7

Storeys

HolidayInn(formallyknownasTemple

GateHouse),TempleGate,7

Storeys

Bristol&WestHQ,TempleQuay

7Storeys

TempleMeadsStation(27m)

Crown Copyright. All rights reserved.Bristol City Council. Licence No.100023406. 2005.Bristol City Centre Model Produced by Visual Technolgy.

MonumentsIndustrial LandmarksPost-war Residential Tower BlocksPost-war Commercial Tower BlocksHotelsOthersRecent Tall Buildings

Bristol's Prominent Tall Buildings

Figure B

Figure B:B ristols ProminentTall Buildings


19/67


Government to increase Local Authority housingacross Britain during the 1960s. These blocks tendto be 9-14 storeys high, designed as point blocks or

slab blocks and utilise systems building techniques.They tend to sit in large plots of land that integratepoorly into the wider neighbourhood structure ofstreets and spaces. Furthermore, these spaces asdesigned, tended to lack any sense of ownership,progressive neglect leading to a spiral of decline. Inthe last decade significant regeneration work hasbeen undertaken in many of these areas,demolishing some tower blocks and upgradingothers. Refurbishment generally involvesovercladding to improve visual appearance andimprove energy efficiency and comfort. In recent

years, there has been a growing realisation that tallbuildings are more appropriate living space forcertain groups of the population than others i.e.single people and couples without children.

Many of the Citys commercial tower blocks arelocated in parts of the city centre that werecomprehensively redeveloped in the post-warperiod. Typically tower blocks are 8-15 storeys high,although there are a couple that exceed this(Fromesgate House 17 storeys, Tollgate House andColston Tower 18 storeys and Castle Mead House 20 storeys). More often than not they were designedin conjunction with new city centre roads,pedestrians being segregated from cars via

walkways strung between blocks over the roads.Their response to context was negligible or non-existent. Many of the buildings from this period are

unloved, of low commercial value, and are mediocrein quality. In recent years, a number of prominentcity centre towers have been converted fromcommercial uses to residential or hotel uses, e.g.Avon House, Avon House North, Market Gate andNelson Street.

There are also a number of health, education, carparking and leisure buildings which could be viewedas tall buildings. Some of these assert themselveson the skyline by virtue of their elevated positionse.g. the Bristol Royal Infirmary Chimney, The

University of Bristols Physics Building. Others areless prominent, tending to be built into theunderlying topography e.g. Trenchard Street CarPark and the Ice Rink. Others occupy prominentgateway locations e.g. Tollgate Car Park.

2.7 Conclusion

The relationship of the city with the surroundingtopography, harbourside and green spaces hasgreatly influenced the development of the citysurban pattern and built form. However, post-war

reconstruction and particularly post-war tallbuildings, largely failed to respect and understandthis relationship. Hence the need for clear policyguidance to steer future development.

4.One Redcliffe St

(former Robinson

building)Height 60 m

Base Height 9 m

5.Travel Inn

(former Avon

House)Height 60 m

Base Height 15 m

6.Former

Bristol & West

TowerHeight 56 m

Base Height 8 m

1.St. Mary Redciffe

Height 87 m

Base Height 12 m

Prominent Landmarks/Monuments Post-war Commercial Towers Recent Commercial

Building

Other

Prominent

Building

2. Bristol Cathedral

Height 44 m

Base Height 16 m

3. Wills Tower

Park Street

Height 58 mBase Height 45 m

10. BRI Hospital

Chimney

KingsdownHeight 60 m

Base Height 70 m

7.Colston

Centre


8. Castlemeads

Height 60 m

Base Height 14 m

9. Bristol &

West HQ


Figure C: Height comparison of some of Bristols tall buildings


20/67



3.0 SITING A TALL BUILDING

LOCATIONAL GUIDANCEThe following guidance has been put togetherfollowing feedback from the Height Mattersconsultation initiative, to give an indication to thepromoters of tall building schemes where a tallbuilding may be appropriate (section 3.3).

3.1 Guiding Principles

Informed by the tall buildings urban designappraisal (Section 2) and the Height Matters

public consultation, the following guidingprinciples have been established:

Tall buildings should not be positioned where they:

Hide or mask the topography of the city e.g.they should not be positioned either on theside or the base of the Clifton-Kingsdownescarpment

Obstruct views from key vantage-points (seethe View Protection Framework)

Have a detrimental impact on the cityshistoric environment*

Have a significant adverse impact on theamenity of nearby occupiers

Tall buildings may be appropriate:

Close to good public transport infrastructure

At major highway gateways into the citycentre from the East

Close to other tall residential or commercialclusters of tall buildings where it can bedemonstrated that a new tall building servesto raise the quality and coherence of thecluster

At locations where the provision of alandmark building would clearly improve thelegibility of the city

*The Planning Authority supports the view of

bodies such as English Heritage that the locationselected for a tall building should be suitable interms of its effect on the historic environment at acity-wide as well as a local level. If the location isnot suitable, then no tall building will beacceptable, however good the design. Only if it canbe demonstrated that the location and context areappropriate will other factors including designquality be addressed. This guidance specificallyrelates to locations where the special historiccharacter makes it sensitive to change of any kind,particularly any change to the existing balance of

dominance between structures and open spaces. Inline with good conservation practice such anassessment should be based on a comprehensiveassessment of historic character and not simplyassumptions about how well a place could or couldnot accommodate a tall building.

3.2 Bristol View Protection Framework

Bristols steeply sloping escarpments, open spacesand watercourses provide numerous vantagepoints from which to view the city and beyond.

The SPD identifies a sample of indicative long-range panoramic views and short-range containedviews. It recognises that it is not possible to protectevery aspect of every long-range view point, andinstead seeks to protect and enhance the quality ofthe most important views.

To do this, the SPD identifies a number of differenttypes of view which will need to be considered aspart of any visual impact study undertaken inconnection to a tall building scheme:

A Panoramic views into the city centre (Figure D)

A number of important long-range panoramicviews have been identified that provide good viewsto the city centres primary landmarks (CabotTower, the Wills Memorial Building, BristolUniversity buildings along Tankards Close, St. MaryRedcliffe Church and Temple Meads station) as theybreak the skyline. Primary landmarks have beenselected which are prominent on the skyline,symbolic of Bristol and are of a

national/international importance. Vantage-pointsare publicly accessible and well used for either


21/67


recreational or movement purposes. The majority ofvantage-points fulfiling these criteria tend to be onelevated positions within public parks to the southof the city centre. In most cases, the viewing conesavailable from these vantage-points are fairly wide.However, Figure D just illustrates the most criticalportion of the viewing cone centred on thelandmark and extended to take in lateral andbackground areas which will also need to beconsidered as part of any future visual impactassessment.

B Panoramic views out of the city centre (Figure E)

A number of important long-range panoramic viewshave been identified that provide good views fromthe city centre out to the surrounding escarpments.Vantage points have been selected that providelong-range views westwards (to Ashton Court) andsouthwards (to Dundry Hill). Vantage points havealso been selected that provide closer rangepanoramic views to escarpments on the edge of thecentre (Totterdown, Clifton Wood). Vantage pointstend to be bridges across the Floating Harbour, asthese provide well used focal points along openvistas. The width of viewing cones is dictated by theextent of the view

For each panoramic viewpoint identified in FiguresD and E, a description is provided of both thevantage point and the key features of the view inAppendix C. A description is provided of theforeground, middle-ground and back-ground to thevisible landmark as well as its lateral areas. Keymanagement issues are identified for each view.

C Views within the city centre (Figure F)

These are a mixture of panoramic views andcontained views. Viewpoints have been selected toboth the city centres primary and secondarylandmarks. Secondary landmarks have beenselected that are historic monuments which assertthemselves on the skyline and are of alocal/national importance. These views are alsoidentified in the City Centre Strategy.

The Planning Authority will scope out further

localised viewpoints for assessment on anindividual application basis. These viewpoints willneed to show how a tall building proposal fits intoits immediate surroundings.

3.3 Indication of areas that may beappropriate for tall buildings

Figure G provides locational guidance on where itmay be appropriate to locate a tall building drawingon the Guiding Principles (3.1), and the Bristol ViewProtection Framework (3.2). It has not been withinthe scope of this study to identify exact boundariesof sites that are appropriate for tall buildings, norestablish appropriate heights. The onus is thereforeplaced on the applicant to provide a justification forthe siting and design of their tall building scheme,

drawing on guidance within SPD1 and other guidessuch as By Design (DETR/CABE, 2000) and TheUrban Design Compendium (EnglishPartnerships/Housing Corporation).

There are clearly some neighbourhoods within thecity centre which are considered to be moreappropriate for tall buildings than others. AppendixD provides an appraisal of each of the city centresnine neighbourhoods and should be read inconjunction with Figure G.

Green indicates those parts of the city centre whichmay be most appropriate for tall buildings. Thesetend to be the low-lying neighbourhoods(Broadmead, Old Market and Temple) to the easternedge of the city centre, in areas that neither maskthe topography of the city centre, nor obstructviews from key vantage points. These parts of thecity centre also tend to be well served by goodpublic transport infrastructure (Temple MeadsStation, and bus routes along the city centre loop).

Broadmead and Temple are two of the city centresmain regeneration areas. Both areas offer scope fora comprehensive plan-led redevelopment guidedthrough an Urban Design Framework. In particular,the Planning Authority will be keen to see that theapplicant has reviewed alternative developmentoptions through the Urban Design Framework, as itis often possible to achieve similar levels of densitythrough alternative urban forms to a tall building(see Figure H). In respect to Temple neighbourhood,it will be particularly important that the UrbanDesign Framework demonstrates that any proposed

tall building neither impacts negatively on TempleMeads Station nor St. Mary Redcliffe Church. Sitesimmediately adjacent to the railway station(including the island site) are not consideredappropriate for tall buildings for this reason. The


22/67



former diesel depot site may be appropriate for tallbuildings. However, tall buildings on this site willneed to be positioned in such a way that they framekey views to the Totterdown escarpment ratherthan obscure these views.

Old Market has also been identified as an area thatmay be appropriate for tall buildings. However, anarea along Old Market Street (which corresponds tothe Heritage Economic Regeneration Scheme) hasbeen omitted as the objective here is to strengthenand restore the historic grain of this street. The Old

Market neighbourhood features a number of listedbuildings that are the focal buildings in the localtownscape. Proposals for new tall buildings wouldneed to demonstrate an acceptable relationship.

Existing tall buildings tend to be clustered close tothe city centre loop road, at the vehicular gatewaysinto the city centre. Whilst consultation suggeststhat these existing buildings are viewed as havinglittle architectural merit, there is still support forthese gateways to be marked by tall landmarkbuildings. However, future schemes will need to beof a higher design quality than existing tallbuildings. In gateway locations, this may beachieved through replacement towers orrefurbishing existing towers. It may also beachieved by adding a new tall building to the clusterwhere it was felt that this adds to the liveliness andvisual interest of the cluster. For example, thequality of an existing cluster of fairly squat, poorquality and uniform tall buildings, may be raisedthrough the introduction of a single, taller, moreslender high quality building, with a more dynamic

silhouette.

Purple indicates an area where it may beappropriate to locate a single iconic building.This area occupies the top of the Clifton-Kingsdownescarpment in the St. Michaels Hill neighbourhood.This is a sensitive location, where designconsiderations will be paramount. A number oficonic monuments already occupy elevatedpositions along this escarpment (The WillsMemorial Building, Cabot Tower, Bristol Universitybuildings along Tankards Close). Unfortunately,

there are also a number of buildings along theescarpment which are not considered iconic (BRI

Chimney, Clifton Heights) and these compete withthe monuments on the skyline. Any new addition tothe skyline will need to work sensitively within thiscontext, whilst at the same time being acontemporary and memorable landmark building inits own right. It will be particularly important forthe building to respond positively to the guidanceset out in Section 4. A cluster of tall buildings is notconsidered appropriate in this location, as it couldundermine existing landmarks, reducing theirclimactic impact.

In other parts of the City Centre it is not consideredappropriate to encourage tall buildings. Any tallbuilding proposals coming forward in these areaswould have to demonstrate exceptional qualitiesand would be very rigorously assessed against thecriteria identified in Section 5.


23/67



Important Panoramic Views

into the City Centre.

Panoramic View

City Centre

Prominent City Centre

Landmarks

50 m Contour

N

Figure D

Bedminster Downs

Ashton

Court

Windmill

HillTotterdown

Blackboy Hill

(Figure D) Panoramic views into the city centre

Crown Copyright. All rights reserved.Bristol City CouncilLicence No. 100023406. 2005


24/67



Important Panoramic Viewsout of the City Centre.

Panoramic View

360 Degree View

Prominent City Centre

Landmarks

50 m Contour

1000 m N

Figure E

Crown Copyright. All rights reserved.

Bristol City Council. Licence No.100023406. 2005.

City Centre

PrinceStreetBridge

Pero'sBridge

IndustrialMuseum

TempleMeads

Christmas StepsPerryRoad

Brandon Hill

(Figure E) Panoramic views outof the city centre

Crown copyright.All rights reserved.Bristol City CouncilLicence No. 100023406. 2005


25/67



Brandon Hill

Cathedral

Green

Cathedral

Green

Centre

Promenade

Centre

Promenade

Queen's

Square

Castle Park

Millennium

Square

Millennium

Square

UniversityofBristolVictoriaRoom

sStGeorges

CabotTower,Brandon

Hill

BristolCouncilHouse,CollegeGreen

ChurchofHolyTrinity,

HotwellRd

StMichael'sChurch

StJamesChurch

,Haymarket

ChristChurch,Broad

StCityRoadBaptistChurch

StPaulsChurch

,PorlandSq

StPeter'sChurch,BroadS

t

AllSaintsChurch,

CornSt

St.MarylePort

StNicholasChurch,BaldwinSt

StJudesChurch,Brag

gsLane

TrinityChurch,TrinityRd

CourageBrewery,

CounterslipPassage

Temple

MeadsStation

BristolandExeter

LeadshotTower,Tem

pleSt

TempleChurch,Church

Lane

StThomasM

artyrStSteven'sChurch

IndustrialMuseumandCran

es

ArnolfiniGallery

LloydsHQ

Wildscreen@

Bristol

Explore@Bristol

BristolCathedral,CollegeSq

SSGreatBritain

'BBond'Building

CREATECentre

'ABond'Building

(Storage)

BristolMarriotRoyalHotel,DeaneryRd

BristolGeneralHospital,

CommercialRd

StMary'sRedcliffeChurch,

RedcliffeWay

StPhilipsandJacobs,JacobSt

Gardiner Haskins

Westm

orlandHouse

UniversityofBristolEngineering

Building

UniversityofBristolM

athematicsBuilding

UniversityofBristolM

edicalBuilding

WillsM

emorialBuilding,UniversityTow

er

Important Viewswithin the City Centre

Important Viewsto Primary City Centre Landmarks

Important Viewsto Secondary City Centre Landmarks

Conservation Area

Public Open Space

Figure F

500 Metres

N

(Figure F) Views within the city centre


26/67

|

26

|

TallBuilding

s

|

WEST END

OLD CITY

RED

S

BROA

HARBOURSIDE

ST.MICHAEL'S HILL

Figure G

Indication of areas that may be appropriate

for tall buildings

Areas that may be appropriate for tall buildingssubject to meeting assessment criteria

Top of Clifton - Kingdown escarpment - areathat may be appropriate for an iconictall building

Neighbourhood boundaries(as defined in the City Centre Srategy)

City Centre Loop

5 Metre Topographical Contours

50 Metres contour above sea level

Prominent City Centre landmarks

Secondary City Centre landmarks

Scale

500 Metres N

Figure G: Indication of areas that may be appropriate for tall buildings

Crown copyright. All rights reserved.Bristol City CouncilLicence No. 100023406. 2005


27/67


4.0 DESIGN GUIDANCE

The Planning Authority shares the aspiration ofCABE that any new tall building should be of firstclass design quality in its own right and shouldenhance the quality of its immediate location andwider setting; it should produce more benefits thancosts to the lives who are affected by it.

The following design guidance has been identifiedto supplement existing guidance contained withinthe Local Plan, and best practice guides such as By

Design (CABE/DETR, 2000) and The Urban DesignCompendium (English Partnerships/The HousingCorporation). The guidance has been prepared toinform the development of a high quality andsustainable design scheme.

4.1 The design process

It is expected that the majority of proposals for tallbuildings will come forward in areas undergoing orrequiring major change. In such areas, an approvedUrban Design Framework will first need to be in

place which shows how policies in the developmentplan may be applied to that specific area,identifying the design principles, and providing thebasis for development control. In instances whereschemes are being promoted in areas without anapproved Urban Design Framework in place, theonus will be on the scheme promoter to prepare anUrban Design Framework and then agree this withthe relevant stakeholders. This may then eitherneed to be adopted as a Supplementary PlanningDocument (SPD) or if developed to sufficient detail

approved as an outline planning application. ByDesign (DETR, 2000) sets out guidance on preparingan Urban Design Framework. Diagrams, drawingsand models are to be used to express theframework. Content might include:

Assessment of the existing area

Public transport and possible improvements

Potential to co-ordinate new patterns of landuse and transport

Routes and spaces linking into the existingtransport system

Location of major buildings (including tallbuildings)

Frontage development

Patterns of streets and block, building heightsetc.

The submission of the planning application for a tallbuilding will need to be accompanied by a DesignStatement as commended in PPG1. This is

essentially a written statement setting out designprinciples and context, appropriately illustratedwith plans and photographs. The Statement should:

Explain design concepts and principles

Explain the purpose of the proposeddevelopment and its relationship to the widerarea

Explain how it meets the local authoritysurban design objectives/agreed objectives

within the Urban Design Framework

Provide a popular summary

Due to the significant environmental impact of tallbuildings, many schemes will need to beaccompanied by an Environmental ImpactAssessment (EIA). The Council will determine theneed for an EIA through the necessary process andencourage developers to discuss this request withthe Council during the pre-application phase.

The Height Matters consultation process hasdemonstrated a degree of support for future tallbuildings subject to achieving excellent sustainabledesign. The Planning Authority will therefore seekproposals to achieve a Very good or ExcellentBREEAM rating (or equivalent) through the EIAprocess, and may seek to use s106 agreements toensure a high rating.

Proposals for tall buildings will not be supportedunless it is demonstrated through the submission

that proposals are of the highest architecturalquality. For this reason, the Planning Authoritysupports the CABE and English Heritagerecommendation that outline planning applications



28/67


would not be appropriate. The process ofcommissioning a trophy architect merely to takethe building to outline planning stage will bediscouraged, with applicants being encouraged toretain the same architect throughout.

Furthermore, the Planning Authority supports theCABE and English Heritage recommendation thatwhere planning permission is to be granted, thedetailed design, materials and finishes, andtreatment of the public realm should be securedthrough the appropriate use of planning conditions

and obligations, including Section 106 Agreements,where appropriate. Adequate guarantees areessential to maintain the original architecturalquality and ensure that inferior details andmaterials are not substituted at a later date.

When producing high quality visualisations, theapplicant will be expected to be guided by thePlanning Authority in accordance with themethodology set out in Appendix E.

Applicants will be expected to contact the Planning

Authority at the earliest opportunity to discuss thescheme, and then to maintain regular contact withthe Planning Authority as the scheme develops.National organisations such as CABE and EnglishHeritage should also be actively consulted, asshould local stakeholders. It should be noted thatCABE in conjunction with Bristols ArchitectureCentre intends to establish a South West RegionalDesign Panel in the near future. Applicants will bestrongly advised to consult this panel from the earlystages of project development.

Public Art should be incorporated as an integral partof tall building developments and should beconsidered from the outset as part of the designprocess. In October 2000, the City Council approveda Public Art Policy, which builds upon the currentLocal Plan Policy L10 (Policy B5A in 'ProposedAlterations'). The strengthened policy statementstress that major new development proposalsshould consider the following:

The inclusion of public art elements in theexternal treatment of buildings.

The provision of public art commissions whichenhance existing and new open spaces.

The commissioning of artworks which aidlegibility and movement.

In accordance with its Public Art Policy and Strategy,the City Council requests that developers appointindependent public art consultants and artists towork with other design professionals to preparePublic Art Plans for Tall Building developments.These are to ensure that artistic interventions areintegrated within the architecture of tall buildingsand engage the public during the development's

construction. Public Art Plans are to be agreed withthe City Council's Art Project Manager prior to beingsubmitted as part of planning applications. They areto include the conceptual and material details ofpermanent and temporary artworks, a descriptionof the commissioning process, budget allocations,maintenance plans, timescales and relatedcommunity engagement and education initiatives.

4.2 Density and urban form:Alternative development approaches

One of the main justifications given for developingtall buildings is that they deliver a higher density ofdevelopment, However, as the Government Sub-committee states (DTLR, 2002);

while there is little doubt that tall buildings canbe a method of achieving high densities, it is equallyclear that tall buildings are not necessary to providehigh density accommodation. In fact, there is abroad degree of consensus amongst witnesses thathigh rise is not the only or most efficient way toprovide high densities.

As Figure H demonstrates (adapted from the UrbanTask Force Report, Towards an Urban Renaissance),there are significant advantages in adopting a lowor medium rise approach to achieving the samelevel of density, where the developable area is largeenough to allow the development of a perimeterblock (e.g. the larger regeneration areas such asHarbourside, Temple and Broadmead). A mediumrise perimeter block has several distinct advantagesover a point block standing in the middle of an openspace:

It helps make a clear distinction betweenpublic fronts and private backs.

A continuous building line provides good


29/67



enclosure to streets and public spaces.

Frequent doors and windows onto the streetprovide animation and security to the publicrealm.

Diversity within the block may be providedthrough differing plot widths.

It allows for the provision of private openspace within the block.

A tall building standing in the middle of an openspace is unlikely to either represent good design orfulfil design policies. A tall building on a moreconstrained site, perhaps incorporated into anexisting perimeter block might more readily be anacceptable design solution. However, it would firstneed to demonstrate that it relates well to thestreet and adjacent buildings.

4.3 Size, shape and silhouette

A key justification given for providing a tall buildingis to create a landmark. If the landmark is to registerin the publics mental map of the city, it needs to bememorable. This can be achieved by utilising aunique shape or silhouette (as typified by Fosters30 St. Mary Axe aka the gherkin in the City ofLondon which has proved to be a popular anddistinctive addition to the London skyline). It canalso be achieved by locating the most visiblecompositional elements at the top of the building. Itshould be recognised that this is a highly emotiveand subjective issue, and that considerable publicdebate should be both expected and encouraged.

In particular, there is a need to consider the visualimpact of telecommunications apparatus and plantrooms at a high level. These can be extremelydamaging to the appearance of a building but also,if integral to the original design, something of afeature. In general tops of buildings work best ifthey are lightweight and transparent in appearance.The introduction of alternative accommodation onupper floors, such as a duplex apartment or rooftop

restaurant, can provide a successful design solution.4.4 Relationship to the street

A key failing of tall buildings in the past has beenthe way they meet the ground and therefore howthey are perceived/experienced at the short-distance.

Ultimately the aim should be to create a publicrealm with a human scale. Human scale need notnecessarily be prejudiced by high buildings,provided that these are carefully located, designedwith a top and a bottom and have regard to theeffects on the microclimate. This often involves thefollowing:

stepping down a large mass to its neighbours;

ensuring that the ground level most relevantto the pedestrian experience is as active andinteresting as possible;

ensuring that the public realm is naturally

surveilled;

providing legible and accessible entrances;

London Bridge Tower,London (by Re nz o

Piano)-

s e t t o b e E u ro p e st a l le s t b u il d i ng , t h i s

s h a rd o f g l as s w i l l

provide a uniq ue s hapeand s i lhoue tte

3 0 S t . M ar y Axe , Lond on(by Norman Fos te r)

- th is unique ghe rk in s hape has prove d to be

a p o p ul a r a dd i t io n t othe London s ky l ine


30/67


High rise low coverage

75 units/ha

Single Point Block

No private gardens or amenities directlyavailable to the inhabitants

No direct relationship between the building

and the surrounding streets

Large open space demands significant levelsof investment to manage and maintain it atacceptable standards

Low rise high coverage

75 units/ha

2-3 storey traditional back to back terraces

Public space is well defined by continuous

street frontages

Clear definition of public and private realms,with all dwellings having access to privateback gardens

High site coverage minimises the potential forcommunal spaces and a more varied urbanlandscape

Medium rise medium coverage

75 units/ha

Urban block enclosing open space

Commercial and public activities located atground floor level, provide an active streetfrontage

More space is available for rear privategardens, communal areas or a park

Buildings of differing heights and plot widthsallow for the creation of a mixed community

Possible problems with security when placingpublic spaces to the rear of buildings

Figure H - Relationship between density and urban form

Source: Illustrations by Andrew Wright Associates for the Urban Task Force, 1999


31/67



providing a richness to the detailing and highquality materials;

mitigating against the adverse impacts a tallbuilding can often make on the microclimate;

providing a continuity of frontage, thusproviding definition and enclosure to thepublic realm.

4.5 Energy Efficiency

Applicants should seek to maximise energyefficiency through:

Adoption of appropriate building form &fabric e.g. through passive means such asincreasing the availability of thermal mass(which acts as a heat sink or source ofcoolth);

Specification of an energy efficient servicessolution e.g. through double facades which

allow natural ventilation of spaces and accessto openable windows;

Sub-metering of major plant and equipment;

Use of clever vertical transportation solutionse.g. energy recovery from lifts;

Use of renewable energy e.g. daylight-integrated lighting systems, BIPV (buildingintegrated photovoltaics), wind power and

CHP.

In terms of solar gain, it is beneficial to utilise ashallow plan, atria or shafts to allow theintroduction of natural daylight and fresh air.Contrary to some attitudes and guidelines, it ispossible to achieve high levels of natural lightpenetration with a tight urban form.

4.6 Water Consumption

Applicants should seek to minimise water

consumption through: Specification of low-flow appliances;

On-site rainwater harvesting;

Use of borehole water;

Sub-metering of end-uses;

Reduction of run-off through e.g. living roofs;

Sustainable drainage.

4.7 Microclimate

Applicants should seek to create a pleasant

microclimate at the base of the building.In terms of wind turbulence, this depends on thelocal grouping of buildings and their orientation tothe prevailing wind. Isolated buildings (of whateverheight) and the creation of inappropriate openspaces between buildings generally promotewindiness. It can also be exacerbated by raising thebuilding on stilts or pilotis. Conversely, a highlyintegrated street pattern encourages wind to moveover the tops of densely built up areas, henceresulting in a more pleasant microclimate. As a

general rule of thumb, a tall building might have animpact on wind patterns in an area with a radius offive times the height of the building. The PlanningAuthority will be particularly keen that wind speedsare assessed around the entrances into proposedand adjacent buildings, along key pedestrian routesand in spaces designed for passive recreation, andwill scope out key locations in the early stages ofproject development. Where the assessmentindicates high wind speeds are likely at any givenlocation for prolonged periods such as to restrict thespace, the applicant will be expected todemonstrate how modifications to the siting of thebuilding or modifications to the design (e.g.canopies and windbreaks) would reduce the impact.

Tall buildings should not adversely overshadow keypublic spaces, routes or other buildings. Theapplicant will be required to demonstrate theimpact of the building in terms of shadow patternsat different times of the year.

4.8 Materials

Applicants should seek to reduce the environmentalimpact of building materials through the use of anenvironmental preference or profiling system e.g.the BREs Green Guide to Construction. The


32/67


selection of materials will need to take into accountthe unique structural engineering requirements oftall buildings. For example, it may be possible to usecement-alternatives in concrete such as PulverisedFuel Ash.

Furthermore, the future proofing of the design willneed to be considered in order to maximise thereuse and recycling of materials duringrefurbishment or eventual decommissioning of thebuilding. If more building components are to be re-used, the process of demolition needs to be

replaced by the more sensitive process ofdeconstruction. Likewise, more recycling can beachieved if materials are more easily separated afterdeconstruction. The Construction Industry Researchand Information Association has recently providedguidance on this (CIRIA, 2004).

The reflectivity and transparency of the building isan important consideration. A highly reflective andtransparent building material such as glass cansometimes cause obtrusive daytime glare (as hasbeen the case with Fosters scheme for 30 St. MaryAxe). However, transparent materials have oftenbeen used to great effect to create significantlandmark features at night. In future, applicants fortall buildings should consider how to exploitexciting advances in lighting projection technology,using it to bring attention to some elements of thebuilt form, whilst disguising others.

4.9 Telecommunications

Applicants should consider orientation and profileof the building taking into account the potentialnegative impact on television and radio receptionwithin the surrounding area. OFCOM can provideguidance on this. Furthermore guidance iscontained in PPG8 Telecommunications.

Antennae and aerial arrays are commonly placed ontop of tall buildings. If this is proposed,consideration should be given to integrating theantennae into the design of the building (ratherthan left as an afterthought). For example, it mightbe possible to create a formal sculptural element to

hold the antennae.

4.10 Internal DesignApplicants should seek to create internal spaces,which are easy to adapt to ensure spaces do notbecome redundant over time, and can more easilyadapt to changing social, technological andeconomic conditions. Structural efficiency can bemaximised through careful consideration of floorplate solutions, and the positioning of service cores.This will be a matter that the EIA process will beasked to examine.

4.11 Remodelling existing tall buildingsIn general, if a building or buildings in an area haveplanning approval or have been constructed,subsequent proposals of the same scale will berelevant factor in assessing other planningapplications.

In the case of tall buildings, this is not considered anacceptable premise and both CABE and EnglishHeritage have emphasised that each case must be

judged on its merits.

The fact that a building exists already is materialbut CABE/English Heritage guidance is suggestingthat the weight given to this may be lesser due topast failings as to consideration of issues such ascontext. The assessment therefore needs to be doneusing the same assessment criteria as for newschemes.

This is confirmed at para 4.4.22c of the ProposedAlterations to the Bristol Local Plan (2003).

Should it be determined that it is acceptable toretain a tall building on a particular site, it ispossible to provide a new lease of life throughrelatively simple measures including:

Recladding with more contemporarymaterials;

Addition of upper floors to change the profileof the building;

Removal of obscuring or unsightly services;

Introducing active ground floor uses.


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BEST PRACTICE/POLICY GUIDANCE

Urban DesignCompendium(EnglishPartnerships/TheHousingCorporation)

By Design Urbandesign in theplanning system(CABE/DETR, 2000)

City Centre Strategy(Bristol City Council,2004)

Guidelines forLandscape andVisual ImpactAssessment(LandscapeInstitute/Institute ofEnvironmentalAssessment, 2002)

Creating Successful

Masterplans Aguide for clients(CABE 2004)

Building in context New developmentin historic areas(CABE/EnglishHeritage, 2002)

Conservation AreaEnhancementStatements, PAN2

(Bristol City Council,1993)

BristolsArchaeology PAN(Bristol City Council,2005)

Using HistoricLandscapeCharacterisation(English Heritage,2004)

City Centre Strategy(Bristol City Council,2004)

ASSESSMENTCRITERIA

(i) RELATIONSHIPTO CONTEXT,INCLUDINGTOPOGRAPHY,BUILT FORM, ANDSKYLINE;

(ii) EFFECT ONTHE HISTORICENVIRONMENT AT

A CITY-WIDE ANDLOCAL LEVEL;

CONSIDERATIONS

How well the development responds toand reinforces locally distinctive patternsof development, landscape and culturetypical of its neighbourhood

The impact the building has on thoseviews identified in the View ProtectionFramework, and other short range viewsidentified by the Planning Authority inconnection with a specific application.

This will involve assessing the directimpact of the building upon viewsthrough intrusion or obstruction and mayinvolve consulting viewers who may beaffected.

The impact the building has on itsimmediate environment, at street level.Of particular importance will be how wellthe building promotes the continuity ofstreet frontages and the enclosure ofspace by built form that clearly defines

private and public areas

The historical development of the area;the underlying morphology of the area(block patterns, plot sizes, historic

routes); and the local vernaculararchitecture. It will need to bedemonstrated how an understanding ofthe historical context has informed thedesign of the building

The impact the building makes towardsthe distinctive neighbourhood in which itis located

The impact the building has on thefollowing: World Heritage sites and their settings,

including buffer zones (being mindfulto the likely future designation of theTemple Meads Station)

ASSESSMENTMETHOD

Urban DesignAppraisal

Urban DesignFramework

ViewsAssessment (seeAppendix D onthe preparationof AccurateVisualRepresentations)

Physical Model(1:500 andextending oneblock in eachdirectionminimum)

CharacterisationStudy of HistoricEnvironment

ArchaeologicalAppraisal

5.0 ASSESSMENT CRITERIA

Proposals for tall buildings will only be considered where a satisfactoryresponse has been made to each of the following criteria:-


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Local Transport Plan2001-6 (Bristol CityCouncil, 2000)

Creating ExcellentBuildings A guidefor clients (CABE,2003)

Design Review Guidance on howCABE evaluatesquality inarchitecture andurban design (CABE,2002)

(iii) RELATIONSHIPTO TRANSPORTINFRASTRUCTURE

PARTICULARLYPUBLIC TRANSPORTPROVISION;

(iv)

ARCHITECTURALEXCELLENCE OFTHE BUILDING;

Any of Bristols Scheduled AncientMonuments and their settings

Any of Bristols 4500 Listed Buildingsand their settings, including theforegrounds and backdrops tolandmark buildings

Any of Bristols 33 designatedConservation Areas and their settings

Archaeology (see Bristols DraftArchaeological Statement)

Historic parks and gardens, landscapeand their settings

The contribution the building makes topeak travel flows;

Additional demands placed on the localparking in the area;

Proximity and accessibility to publictransport, and the capacity of publictransport to cope with this additionaldemand;

Funded measures to encourage moresustainable travel behaviour in the formof a Travel Plan (e.g. car club)

Access arrangements by all the non-cartravel modes and the access needs ofdisabled people.

The Emergency Plan for the building,detailing access arrangements in theevent of an emergency or major incident.This will require involving BuildingControl and the Fire Service at the earlieststage

The scale, form, massing, proportion andsilhouette of the building.

The design of the top of a tall building.This will be of particular importancewhen considering the effect on theskyline.

The relationship of the building to otherstructures.

The materials used to face the building.Material samples will need to besubmitted.

The assessment will be looking forbuildings that are far better designedthan previously and be icons ofarchitectural quality in themselves.

TransportAssessment

Views Assessment(see Appendix Eon thepreparation ofAccurate VisualRepresentations)

Design Statement

Physical Model

Material samples

Design ReviewPanel


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Urban DesignCompendium(EnglishPartnerships/TheHousing

Corporation)


Green SpacesStrategy (CABE,2004)

Parks and Green

Spaces Strategy(Bristol City Councilwork in progress expected adoption2005)

Safer Places: ThePlanning Systemand CrimePrevention(ODPM/HomeOffice, 2004)

Urban DesignCompendium

(English

Partnerships/The

Housing

Corporation)

By Design Urban

design in the

planning system

(CABE/DETR, 2000)BRE Guidance

(v) CONTRIBUTIONTO PUBLIC SPACESAND FACILITIES,INCLUDING THEMIX OF USES

(vi) EFFECT ONTHE LOCALENVIRONMENT,INCLUDINGMICROCLIMATEAND GENERALAMENITYCONSIDERATIONS;

How well the development promotesdiversity and choice through a mix ofcompatible uses that work together tocreate viable places that respond to localneed

The types of uses being proposed at theground level, and whether they contributeto the vitality and vibrancy of thesurrounding streets and spaces;

The types of uses being proposed for thetop floors of the building, and whether ornot it is the intention to provide thepublic with access to these spaces in orderthat they may enjoy the benefit ofpanoramic views across the city, or sky-

gardens.

The mix of uses proposed within thebuilding, with a particular focus on howthe building helps meet the need foraffordable housing (see PAN 12 AffordableHousing);

How the proposal meets or exceeds theLocal Plan requirement for the provisionof public and private open space;How well the development promotesattractive and safe public spaces androutes, which meet the needs of allsections of society across the widerneighbourhood/City. The managementarrangements for these spaces need to bemade explicit.

The ways in which the building can deliverpublic benefits beyond its own siteboundary by means of a Section 106agreement.

The impact of the building on the windregime at the base of the building.

The impact of the shading paths createdby the building.

The night-time appearance of thebuilding.

The reflectivity of the building, identifyingthe possibility of any obtrusive day-timeglare

The impact on the amenity of nearbyoccupiers.

DesignStatement

Design ReviewPanel

Market Appraisal


Wind TunnelTests/ComputerModelling

ShadowModelling

DesignStatement


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Urban DesignCompendium(EnglishPartnerships/TheHousingCorporation)


Urban DesignCompendium(EnglishPartnerships /

The HousingCorporation)

By Design Urbandesign in theplanning system(CABE/DETR, 2000)GLA guidance(see Appendix E)

Guidelines forLandscape and

Visual ImpactAssessment(LandscapeInstitute/Instituteof EnvironmentalAssessment, 2002)

Creating SuccessfulMasterplans Aguide for clients(CABE)

Bristol SustainableDevelopmentGuide forConstruction(Bristol CityCouncil, 2002)

A sustainabilitychecklist fordevelopments: acommonframework fordevelopers and

local authorities(BRE, 2002)

(vii)CONTRIBUTION TOPERMEABILITY ANDLEGIBILITY OF THESITE AND WIDERAREA; AND

(viii) SUFFICIENTACCOMPANYINGMATERIAL TOENABLE A PROPER

ASSESSMENTINCLUDING URBANDESIGNSTUDY/MASTERPLAN,A 360 DEGREEVIEW ANALYSISAND RELATIVEHEIGHT STUDIES

(IX) ADOPTION OFBEST PRACTICEGUIDANCERELATED TO THESUSTAINABLEDESIGN ANDCONSTRUCTION OFTALL BUILDINGS

How well the development promotesaccessibility and local permeability bymaking places that connect with eachother and are easy to move through,putting people before traffic andintegrating land uses and transport

How well the development providesrecognisable routes, intersections andlandmarks to help people find their wayaround, with a particular emphasis onassisting people find their way aroundusing key routes identified in BristolsLegible City Strategy

Energy usage operational energy andCO2

Health and Well Being Indoor andexternal issues affecting health and wellbeing

Pollution Air and water pollution

Transport transport related CO2 andlocation related factors

Land use-Greenfield and brownfield sites

Ecology- Ecological value of the site

Urban DesignAppraisal



Accurate Visual

Representations/View Analysis

Physical Model

BREEAM orequivalentenvironmentalprofiling system(with a view toachieving a VeryGood rating)

SustainableDevelopmentProfile (as set outin Bristol

SustainableConstructionGuide)


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Assessingenvironmentalimpacts ofconstruction Industry consensus,BREEAM and UKEcopoints (BRE,2000)

Tall buildings &Sustainability - byFaber Maunsell(City of London,2002)

Design fordeconstruction.Principles of designto facilitate reuse

and recycling(CIRIA,2004)

Towards an UrbanRenaissance (UrbanTask Force, 1999)

Urban DesignCompendium(EnglishPartnerships/The

HousingCorporation)


(X) EVALUATION OFPROVIDING ASIMILAR LEVEL OFDENSITY IN ANALTERNATIVEURBAN FORM

Materials-Environmental implication ofbuilding materials

Water-Consumption and waterefficiciency

The preparation of the indicative low,medium and high rise schemes for thesite, producing comparative informationon density, amount of private open space,number of car parking spaces,vehicular/public access to site

The production of cost-benefit analysis of

the low, medium and high rise approachto development, covering such issues as:

management of public realm;

community safety

creation of balanced communities witha variety of housingchoice/neighbourhood services

connectivity with the surroundingstreet network (i.e. pedestrian andvehicular routes)



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