Sheffield City Centre Urban Design Compendium

HEAD OF DEVELOPMENT SERVICES

REPORT TO CABINET

22 SEPTEMBER 2004

SHEFFIELD CITY CENTRE URBAN DESIGN COMPENDIUM

1.0       PURPOSE

To approve the Sheffield City Centre Urban Design Compendium as a policy background document and endorse its use to help raise design quality in the City. 

2.0       BACKGROUND

The City Centre Master plan identified the need for a design guide for the City Centre to improve the architectural and urban design quality of Sheffield’s City Centre and complement the strategic key projects.  Consultants were commissioned in 2002 to produce this design guide on behalf of the City Council and Sheffield One.    

The ongoing development of the guide has been steered by a joint client group of the City Council and Sheffield One and an Advisory Group including the Commission for Architecture and the Built Environment (CABE), Yorkshire Forward, English Heritage and representatives from both Sheffield Universities.   A much wider stakeholder group including all those involved in the built environment from the City Council including Members, Planning Officers, Highway Officers, City Centre Management, Passenger Transport Executive, Sheffield Society of Architects and Conservation Advisory Group was set up to regularly review progress and input into the development of the guide.    

In order to give Members a chance to consider The Compendium in more detail a Presentation to The Leader, Cabinet Member, Councillors David Baker,  Terry Barrow,  Alan Law and Sylvia Dunkley and Sheffield 1 Board members was held on the 26th July, 2004.

2.1       Status of the Document

The Sheffield Urban Design Compendium (UDC) is a Policy Background Document that will inform the new City Plan (a proposed development plan document in the forthcoming Sheffield Development Framework) and City Centre Design Guide (a supplementary planning document also proposed to be part of the Sheffield Development Framework).  It is an innovative document that informs emerging policy rather than derives from existing policy. 

The document has gone through extensive public consultation and it is intended that the UDC will:

·      Provide helpful guidance to those preparing planning applications

·      Be taken into account when determining planning applications and defending appeals

·      Provide the main guiding principles for design and development within the City Centre

·      Provide confidence and a clear vision for private investors

·      Form the basis of a new City Centre Design Guide

·      Provide a clear public realm strategy

·      Guide improvements to the public realm

3.0       SHEFFIELD CITY CENTRE URBAN DESIGN COMPENDIUM

3.1       City Centre Regeneration

Sheffield is undergoing a major programme of regeneration in the City Centre which is transforming the quality of the built environment and making it a better place for people to live, work and enjoy.  The City Centre Masterplan outlines the vision for Sheffield’s regeneration and sets down key projects to achieve this aim, building on the success of the award-winning Peace Gardens, Millennium Galleries and Winter Garden.

This Urban Design Compendium focuses on how Sheffield’s new direction and energy can be translated into the city’s physical environment.  It sets out a strategic approach at a city centre wide level and provides guidance relating to specific areas within the centre for both the built form and public realm.   The Compendium will support Sheffield as it increasingly founds its reputation on the outstanding design of its buildings and public spaces.

The Sheffield Urban Design Compendium builds on a raft of national urban design guidance and the Government’s commitment to earlier and better-informed urban design.  It has been produced in partnership with the Government’s advisors CABE and English Heritage and involving extensive public consultation. 

The Compendium will be an important tool in supporting the wide range of people who work, live, visit or wish to invest in the City Centre. It will strengthen the City’s championing of good design and the drive to improve the quality of life for all.

3.2       Structure of the Compendium

The Sheffield Urban Design Compendium has been designed to provide clear design guidance at a number of different levels. It includes a wealth of background information for designers and decision makers; sets out strategic information at a citywide level; and provides guidance relating to the specific parts of the city, for both the built form and public realm. 

The Urban Design Compendium has been produced as a comprehensive 6-part guide, which is summarised below.  (A complete copy of the document has been placed in the Members Library).

3.2.1   Part 1:  Introduction  

This sets out the aspirations for the UDC; how to use the Compendium; its status and how it has been produced in terms of consultation and partnership working.  Themes for the Urban Design Compendium are established which inform the strategies and guidance contained within the UDC and are an important consideration in terms of achieving long-term sustainability for the City.

3.2.2   Part 2: The City Centre

Provides background information and detailed analysis of the city’s history, environment and current influences.

Part 2.1 considers the inherited city, looking at how the relationship of the city with the surrounding topography, waterways and green spaces has provided the foundation of its urban form and the basis of its development as an industrial centre.  It also sets down how the historic growth and recent decline of Sheffield’s industry, wartime bombing and post war reconstruction have all played their part in the development of the city’s urban pattern and built form.

Part 2.2 looks at Sheffield today in terms of the current regeneration initiatives shaping the City.  The work of Sheffield One, the Sheffield City Centre Masterplan, Transport Improvements, the Inner Relief Road (North), Connect Sheffield and Sheffield’s Environment Action Plan are all set down as the context to the UDC. The Compendium aims to build upon these initiatives by offering strategic design guidance, both at the city centre wide level and specific to each quarter. 

Part 2.3 sets down how the use and perception of the City is largely based upon the experience as a pedestrian and the need to feel safe and enjoy the experience of its public spaces.  The degree to which the City Centre can be easily understood and traversed (legibility) is assessed, as is the quality of the public realm in terms of connections, the public space network and street activity.  

 3.2.3 Part 3:  Strategic Guidance

Strategic analysis and guidance is developed from the analysis in part 2.  It is set down at a citywide level for both the built form and public realm.

Part 3.1 considers the level of intervention required for the regeneration of the various character areas of the city and sets this down on a strategy diagram (refer plan below).  Three categories of change recommended within the City:

1.      Conservation - areas such as the Cathedral Quarter and Kelham, which are generally conservation areas with distinctive character and intact urban form.  These areas require carefully managed development that respects the context.

2.      Repair and Recovery – areas such as the CIQ and Castlegate with elements of distinctive character and quality that should be retained, but where there is more scope for change and the introduction of innovative design.

3.       Re-invention and reconfiguration-areas such as the Sheaf Valley and the Moor that lack distinctive character and can accommodate a high degree of change in terms of land use and/or urban form.

Part 3.2 provides guidance on the Urban Form and City Skyline.  Detailed architectural guidance is provided in order to achieve a high standard of design quality in all new development.   Sustainable architectural principles are also set down to help minimise energy consumption and the depletion of natural resources. 

A detailed assessment of Sheffield’s architecture, tall buildings, and skyline is included with an analysis of key landmarks and important views within the City centre and out to the surrounding hills and countryside.  Mapping of important gateways for both vehicles and pedestrians has also been carried out to inform the guidance.   

Recommendations for tall buildings are set down, including identified appropriate locations for tall buildings in Sheffield, which are indicated on the map below (“Locations for Tall Buildings”).  These sites have been selected as they fulfil one or several of the following functions: define gateway sites; mark an area or site of civic importance; mark a principle activity node within the city centre such as the New Retail Quarter (NRQ); form the focal point of vistas.  The map also identifies important local landmarks and the areas surrounding them, which are considered to be more sensitive to proposals for tall buildings.

Guidance for Gateways, both vehicular and pedestrian, is provided for the City.  The design of gateways into Sheffield is considered an essential component of creating a legible urban environment.  There are many gateway sites and linkages within the City Centre where the design of new development must be carefully considered and are identified on "Gateways".

Part 3.3 provides a Public Realm Strategy for the City.  It provides private developers and public authorities with a statement of the quality of design expected and best practice examples.  The strategy shows how developments must fit into and contribute to a high quality network of streets and spaces within the city centre.  The strategy is intended to improve the legibility of a city, add to its attractiveness and enhance the experience of citizens and visitors alike.  Guidance has also been provided on the issues of microclimate, activity and public safety within this section.     

The strategy provides the basis for improving the public realm in the City, providing clear guidance on standards required for specific streets.  Three “Material Palette Zones” have been established for the City – Primary, Secondary and Inner Relief Road/Distributor Roads (refer plan below) and guidance on paving, street furniture, lighting and public art provided for each zone. (Note: the palette still subject to testing and trials - in particular the proposed Sheffield Slab - before becoming adopted by the City).     

3.2.4   Part 4:  Quarter Guidance

This section examines the City Centre quarters in detail, identifying specific character and qualities, summarising key influencing factors with a vision statement and setting down clear principles for design.  The quarters are identified in the plan over leaf. 

The key influencing factors are summarised below:

·      Character

An assessment of the character and quality of each quarter has been undertaken.  This work draws on the Characterisation Study commissioned from the Architectural History Practice by English Heritage, for Sheffield City Council.

An urban design appraisal identified important features in each quarter such as the topography, key streets, buildings and public spaces. It includes descriptions of their character, architecture and public realm, as well as the materials used in the buildings, streets and spaces.  This appraisal is supported by a photographic survey and an analysis diagram.

·      Influences

Consideration is given to the impact of the varied range of projects and strategies on the evolution and development potential of each quarter.

·      Vision

An aspirational statement has been developed for each quarter, which describes the scenarios for future use, form and character of the area.  Comparator projects have been included to illustrate the standard of regeneration that Sheffield could achieve or surpass.

·      Design Principles

The visionary statement sets the scene for the establishment of guiding principles to influence future policy and development.  The principles are not prescriptive but are criteria based to be used to encourage positive intervention within overall aims. The principles cover a number of issues - activities, scope for contemporary intervention, height and massing of new buildings, public space, materials, parking, access and the role of public art.

3.2.5   Part 5:  Public Realm Design Guidelines

Part 5 presents more specific guidance for particular issues of the urban realm.  It identifies design objectives and design guidelines with recommendations for their application. The aim of the guidelines is to lay down the ground rules for skilled interpretation by designers. The details illustrated are typical of appropriate practice and express standards to which Sheffield aspires. 

The physical elements of the streetscape - paving, trees, street furniture, lighting, signing - the comfort and convenience of people, the effects of climate and the provision of facilities are all of fundamental importance and have been considered in developing these guidelines. The statutory responsibilities and operational objectives of the public authorities have also been a major factor in preparing these guidelines.

The management and maintenance of the city centre environment are also covered and guidance provided.  A proposed materials palette and street furniture suite has been designed.  This palette will be the subject to further testing and trials before becoming adopted by the City.  

3.2.6   Part 6:  Tools And Applications

This sets down for the city some of the mechanisms that can assist the procurement of higher quality development.   It considers the widespread guidance available from CABE and other organisations describing various design and development tools, which can be used to ensure that the local authority is leading the design and development process in their locality.  The tools considered within this section include:

·       consultation and engagement;

·       design and development briefs;

·       competitions;

·       modelling;

·       demonstration projects.

4.0    ENVIRONMENTAL SUSTAINABILITY

The Sheffield Environment Strategy Action Plan Summary indicates that the publication of an urban design compendium for the city centre is one of the critical initiatives needed to meet the key challenge of ‘high quality, sustainable urban design and construction’.  The Compendium recognises the importance of promoting a holistic and coordinated approach to the future development of the city integrating social, economic and environmental regeneration to ensure the long-term revitalisation of the Sheffield’s city centre.

Sustainable development is an integral part of the Compendium and is embedded in the visions and design principles and guidance in the following ways:

·        Advocates a holistic approach to the regeneration of the city centre by considering the social, economic and environmental impacts that future development may have on the city;

·        Public realm guidance promotes the creation of a strong network of safe and attractive public open spaces and streets;

·        The Compendium actively encourages the revitalisation and re-naturalisation of the various watercourses which run through the city to improve biodiversity and reconnect the city with its historic character area;

·        Promotes the retention and enhancement of important areas of industrial heritage to ensure Sheffield retains its local distinctiveness and civic pride;

·        Advocates the development of a quality built environment which makes efficient use of land;

·        Promotes the use of alternative transport modes to reduce congestion and pollution;

·        Improve accessibility to make facilities available to all increasing pedestrian activity within the city centre which will benefit the local economy;

·        Encourage the prudent and efficient use of energy and natural resources by encouraging the use of locally sourced materials – this will not only contribute to energy and pollution reduction targets it will also improve the local economy by encouraging developers to use local companies;

·        Creating a competitive and quality environment that will encourage inward investments and economic growth.

The Local Development Framework for Sheffield will include policies which will guide the sustainable development in the entire city.  However, the Compendium itself is a policy background document and it is the intention that the visions and design principles set out within the Compendium will inform future planning policy.

5.0       COMMUNITY SAFETY IMPLICATIONS

Community Safety is at the heart of good design and safety principles are integrated within the UDC, both within Part 3.2, which sets down architectural guidance and within the Part 3.3 where there is a specific section on safety. 

Areas which are poorly lit and rarely used can often feel threatening and encourage antisocial behaviour which affects local businesses and has a negative impact on the quality of life and the local community.  There are several design approaches, which can be applied to improve the safety of the public realm such as promoting active frontages to encourage natural surveillance thus reducing the fear of crime and discourage anti-social behaviour.  A good lighting strategy can also improve the safety of an area.     Part 3.3 provides guidance on the following:

·        Active frontages

·        Design and Orientation of Buildings

·        Open space

·        CCTV

·        Lighting

6.0      EQUAL OPPORTUNITY IMPLICATIONS

The UDC engages the many factors that are shaping the city – planning and transportation policy, economic development, promotion of tourism, the property market and sustainability as the basis for design guidance.  All of these influences are drawn together within the UDC to help create a city that has a strong sense of place and identity, that functions efficiently for all its citizens and is safe, accessible and easily navigable for all its residents and visitors.

7.0       FINANCIAL IMPLICATIONS

There are no financial implications arising from this report

8.0       PUBLIC CONSULTATION

8.1       The Sheffield UDC has been developed through a sustained process of consultation, which has allowed the document to draw from the collective knowledge, expertise and energy of representatives from within the Council and other agencies and institutions in Sheffield, as set out in paragraph 2 above.

8.2       Public consultation on the draft Urban Design Compendium was carried out throughout September and October 2003.  This included a large exhibition that was set up at the Winter Garden, First Point Reception/Howden House and Adsetts Centre/Sheffield Hallam University throughout the period with questionnaires.  Leaflets and letters were posted out to approximately 1800 organisations/members of the public, the consultation list made up of the Sheffield One and City Council databases.  Two public meetings were also held, one specifically for the development industry and the other targeted at the general public.  The UDC was made available electronically on the City Council Web page and in published format at the Local Studies Library.   A separate presentation was made to the Sheffield Property and Regeneration Committee at the Sheffield Chamber of Commerce. 

8.3       In response to the public consultation a total of 169 questionnaires were received and 15 letters setting down detailed comments.  The responses to the questionnaires were generally supportive, with 77% of respondents being satisfied or having no comments, and 23% being dissatisfied.    A summary of questionnaires is attached as appendix 1.  A detailed summary of the comments and letters received and resulting changes made to the UDC are available in the Members Library.

9.0      RECOMMENDATION

It is recommended:

a.      that Members approve, as a Policy Background Document, the Sheffield City Centre Urban Design Compendium.

b.      that Members approve and endorse its use to help raise design quality in the City. 

David Curtis

Head of Development Services