Proposed New Building for VANTAGE Property (Pty) Ltd 100 BUITENGRACHT : Erven 144695 and 8210
U R B A N D E S I G N R E P O R T
Prepared by
In association with
Michelle du Toit – Green Building Consultant
October 2015
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CONTENTS
1. Introduction and Background 1.1 Purpose and Structure of the Report 1.2 Brief and Client Vision 1.3 Pre-Application Consultations 1.4 Small Warehouse Buildings
2. Site and Context 2.1 General Description 2.2 Existing Zoning and Height Parameters 2.3 Accessibility 2.4 Adjacent Context
3. Key Policy Informants 3.1 Table Bay District Spatial Development Plan 3.2 The Central City Development Strategy 3.3 Tall Building Policy 3.4 Urban Design Policy
4. Urban Design Indicators
5. Review of Proposed Building 5.1 Architects Response 5.2 Review in terms of Tall Building / Urban Design Policy
6. Summary Recommendations 6.1 Compliance with Policy 6.2 Compliance with Indicators 6.3 Next Steps
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1. INTRODUCTION AND BACKGROUND
1.1 Purpose and Structure of the Report
This independent urban design report:
. Describes the urban design, landscape, heritage, access and other “indicators” for the site which were elaborated during the design process in order to give guidance to the professional team and architects to inform the building’s massing, use and design. . Provides an evaluation of the proposed building in terms of the stated indicators and the Tall Building Policy and Design Guidelines for Tall Buildings adopted by the City of Cape Town.
This report is submitted in support of the application submitted by Tommy Brummer Town Planners in terms of the City of Cape Town’s Municipal Planning By-Law (MPBL) for:
• Certain departures from the City of Cape Town Development Management Scheme (DMS) • Council’s consent to build in the Central City Heritage Protection Overlay Zone (HPOZ)
The report further supports the building sketch plan submission from Fabian Architects, which will be followed by full building plans that accord with the approved sketch plans, once the abovementioned Council Consent and Departures have been granted by the City.
1.2 Brief and Client Vision
The entire block, with the exception of two small erven fronting onto Shortmarket Street, (see 1.4 below), falls under the ownership of Vantage Property Investments Ltd.
The brief to the professional team is to design and achieve the relevant approvals for an appropriate building on the property, which responds to its extremely prominent position in the City, adjacent to Riebeeck Square and the historic Bo-Kaap area.
The essence of the brief is to accommodate a primarily residential scheme, along with appropriate street level retail activity, and quality public edges that respond to the different “edges” of the property. The design intention is to use, as far as possible, the 30% residential incentive in the DMS.
The intention is to design and construct a ‘Green Building’. A sustainability consultant has accordingly been appointed to the design team and continues to advise on a possible Green Star SA certification by the Green Building Council of South Africa.
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1.3 Pre-Application Consultations
Two pre-application meetings were held with responsible City officials from urban design, land use planning, traffic and heritage departments in August and September 2015.
At these meetings, the broad intent of the proposals, the urban design indicators and the general massing and articulation of the building were generally supported, and the recommendations of the officials noted in regard to the proposed submission.
A ‘pre-application’ consultation was also held with Laura Robinson of the Cape Town Heritage Trust, who has a particular interest in Riebeeck Square. Officials from the City of Cape Town were also present.
The following points are summarised from the meetings:
. There was positive support for a tall building up to the 60 meter height allowance in this locality, provided the massing was sensitive to Bo-Kaap and Riebeeck Square respectively. . Strong support was given to the basement parking solution which eliminated parking from the facades of the building. It was noted however that this was subject to the geotechnical investigation. . Strong support was expressed for the residential nature of the building, and support given to make use of the 30% residential incentive in the Development Management Scheme (DMS) . Support was expressed for the proposed treatments of the various edges of the building, which all had a separate ‘energy’ and external relationships. Shortmarket in particular was seen as an important link street to the City. . Appropriate architectural treatment in a ‘classic’ building to ‘celebrate’ the prominent location was emphasised. . Support was given to the methodological analysis of surrounding datum lines as reference points to the new building. . The departures and consent required would require a public participation process. . Any proposals and ideas related to the upgrading of Riebeeck Square would be welcomed and supported.
1.4 Small Warehouse Buildings on Erven 1299 and 1300
At this stage, the formal land use planning application will exclude these two properties in Shortmarket Street, as they are under separate ownership, and at this juncture, it is not certain that they will be incorporated into the scheme.
However, it is important to refer to them in this report, firstly as they form the immediate “context” of the proposed development, and there needs to be some sensitivity to ‘building around them’; and secondly, to build in enough flexibility to this urban design report to cater for the situation that they may be
100 Buitengracht. Urban Design Report. Blue Green Planning and Design. October 2015 4 incorporated, and that the building plans can be amended accordingly, whist still adhering to the key directives of this report.
The buildings are Graded as 3C, not particularly due to any architectural significance in themselves, nor for being contributory to an historic context, but due to the possibility of an archaeological study (pers. comm. Chris Snelling)
The heritage consultant (Chris Snelling) has confirmed that the current application, which currently excludes these two properties will not require a Section 38 application to Heritage Western Cape.
Their 3C heritage grading is indicative of the fact that they are not particularly fine representations of their period, and have essentially been isolated from any historic context. They also reportedly have been substantially altered internally.
Accordingly, these buildings, if incorporated into the scheme in future, are considered likely to be approved for demolition. There is also however the possibility that they be retained in an adjusted scheme, and could provide an access entrance into the internal courtyard. If incorporated into the scheme a S.38 application will be submitted to Heritage Western Cape (such application will be triggered if these 2 erven are consolidated into the larger whole)
Shortmarket Street Properties excluded from application.
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2. SITE AND CONTEXT
2.1 General Description, Location and Accessibility
The property is prominently located in the central city, on the major arterial of Buitengracht and adjacent to Riebeeck Square.
The site is significant in that it forms part of the “seam” between the central city and the Bo-Kaap, and has a significant role to play in the urban design and landscape setting of Riebeeck Square.
Figure 1. Central City Location. The property is prominently located on Buitengracht adjacent to Riebeeck Square.
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Figure 2. Bird’s eye view of the property (Source Tommy Brummer) The prominent location on Buitengracht and adjacent to Riebeeck Square is evident.
Figure 3. City connections. The importance of Shortmarket and Longmarket streets as connectors between the Bo-Kaap, West City and to the city squares of Riebeeck and Greenmarket, as well as the St Georges Mall and beyond. The location on the primary city arterial of Buitengracht is also illustrated. Buitengracht has significant opportunities for ‘greening’.
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Figure 4. Context. The prominent location of the site in relation to Riebeeck Square, and the connectivity between the Bo-Kaap and the West City.
2.2 Existing Zoning and Height Parameters
Figure 5. Existing Zoning. The property falls within the Cape Town CBD Overlay Zone. It has a split floor area factor of 6.8 on the Rose street edge, and 7.9 on the Buitengracht edge. It is zoned Mixed Use Sub Zone 3 which also provides for additional use rights for residential (increase of 30% floor area). The site is outlined in blue. The property outlined in yellow does not form part of this application.
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Permissible Floor Area is as follows: (Refer to planning application)
ZONING MU3 Local area overlay zone LOA/4 setbacks and height per GB7 Maximum height 60 meters SITE AREA 3,157 m² OVERLAY FLOOR FACTORS o 6.8 over 1278 m² o 7.9 over 1872 m² SUB-TOTAL 23,479 m² ADDITIONAL 30% RESIDENTIAL 7,044 m² TOTAL PERMISSIBLE FLOOR SPACE 30,523 m²
2.3 Accessibility
The site is therefore located in a highly accessible area of the west-central city with good public transport linkages, and easily walkable from the CBD which makes it extremely well suited to increased densification and mixed- use development.
Shortmarket Street provides the obvious edge from which to access the property.
Longmarket is a one-way downhill, and is very narrow. It is proposed to pedestrianise this street with the consent of the City.
Rose Street has a residential nature, and no access will be contemplated from Rose.
Buitengracht will have the main pedestrian access, and no vehicular access is contemplated.
Fig 6. Accessibility. (Refer to Traffic Statement – K&T)
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2.4 Heritage Context
Figure 7. Heritage Context. The Central City Heritage Protection Zone (HPOZ). The site, illustrated in blue, straddles the zone. The Bo Kaap to the north is also proposed as a HPOZ.
2.4.1 Riebeeck Square
This square** came into being as Cape Town expanded in the eighteenth century to fill Table Valley, after having followed the growth axis of Adderly/Heerengracht in the seventeenth century. The square was established three streets to the north of Greenmarket Square, “on the slopes that rise towards Lions Head” on the outermost street of the city (Buitengracht).
The creation of the square was primarily intended to establish control of the large wagon trains with large spans of oxen that came from the interior, and was known as “Boeren Plijn”.
The square gradually lost its original function and name, and was later called “Hottentots Plyn”. It was named “Riebeeck Square” in the 1860’s in honour of the founder of the City and of South Africa. The building on the square was built in 1799 by the Governor Sir George Young as the first theatre in South Africa, later a school for freed slaves – now St Steven’s Church (and a proclaimed National Monument - 1965).
The square itself was proclaimed a National Monument in 1961 and is now a Provincial Heritage Site.
**Reference – Historical Monuments of South Africa. JJ Oberholzer 1972
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2.5 City and Site Context
The surrounding context, at a city and site scale, is illustrated in the following photographs and brief narrative:
City Context a. Aerial view (Tommy Brummer). The site indicated with arrow, as seen from the top of the Bo-Kaap. It has a backdrop of some of the taller buildings in the city.
City Context b. Aerial view (Tommy Brummer). Looking north above Riebeeck Square, towards Bo-Kaap and Signal Hill. The taller buildings in the immediate context are visible.
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City Context c. Looking west up Buitengracht with Riebeeck Square, St Stevens Church, and taller buildings to the south and west.
Fig 9. Adjacent building : The Studios. Emphasis of corner. Classic art deco style. Establishes significant ‘height datum lines’.
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Rose Street : Precedent Sympathetic articulation, colour, massing and height (5 storeys)
Longmarket Street – Bo Kaap Fine grained, unique and historic residential context immediately to the north of Rose Street.
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3. KEY POLICY INFORMANTS
This section briefly outlines key policy informants to the future development of the site and its immediate surrounds, and includes a brief description of relevant planning and urban design policy.
3.1 The Cape Town Spatial Development Framework (SDF) (2012)
Key policy informants from the SDF which apply to the proposed development include:
Enhance the unique sense of space and the quality of the built form of Cape Town Promoting appropriate land use intensification Redressing imbalances in the distribution of residential opportunities Support development that promote a mix of uses Promoting good contextual urban design ‘fit’ and ordering of relationships between people, urban space and the environment. Enhancing the value of heritage resources Providing positive spaces for cultural and social life
3.2 Table Bay District Spatial Development Plan. (2012)
The Table Bay District Spatial Development Plan (SDP) was formally approved as a ‘4(10) Structure Plan’ by the City of Cape Town in October 2012 and provides district and sub-district level guidance for future development in the City. It is intended to assist private sector developers by identifying areas where development can be intensified and areas where certain restrictions may apply. Further, it is intended to guide public investment in infrastructure and public facilities and spaces. A key strategy of the District Plan is to “build an inclusive, integrated and vibrant city” (Strategy 3).
The sub-district strategies identified include: reinforcing vibrancy and a diverse range of activity, promoting intensification and facilitating regeneration, encouraging increased residential densities, and ensuring ‘suitable interfaces’ with the historical built fabric. Specifically, the plan states that intensification of development along Buitengracht should be facilitated. (6.2.2, page 124). Intensification of development, (particularly residential to increase surveillance), ‘around public open spaces to promote activation of these spaces’, is encouraged.
3.3 Cape Town Densification Policy
This approved policy encourages densification in appropriate locations in the city as this strategy, “contributes to the creation of good quality, efficient and sustainable urban environments”, and “contributes to urban place-making and safety”.
3.4 Central City Development Strategy (2008)
It should be noted that this document has not been officially adopted by
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Council, but serves instead as a general guide and is mentioned here for reference.
The Central City Development Strategy (CCDS) is a shared vision for Cape Town’s Central City borne out of a collaboration between the City of Cape Town and the Cape Town Partnership in 2008. The key objective of the CCDS is to ensure that Cape Town becomes a more ‘liveable’ city, and therefore it aims to manage and activate public space more effectively as well as guide private sector development in the city.
The CCDS generally indicates high rise development running up the Buitengracht corridor, and indicates taller/high buildings for this area/corridor – Refer to Figure 8 following.
Figure 9. Central City Development Strategy. The site (blue triangle) falls into an area (orange) designated for ‘High Rise Development’.
3.5 Tall Building Policy
The Tall Building Policy was adopted in May 2013, along with the Design Guidelines for Tall Buildings to be read in conjunction with the adopted policy. These documents seek to provide a framework to assess the impact and desirability of tall buildings in the City.
The City accepts that tall buildings, “are part of our future”, and, “if developed with sensitively to the environment and awareness of the unique urban context … can enhance their environment and serve as beacons of urban improvement” (page 3).
A tall building is defined as one that “exhibits an element of tallness, in relation to its context, or in relation to its proportions, or in relation to building technology.
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It is important to note that whilst the policy is specifically intended to cover buildings that require height related departures, no such departures are anticipated with this application, which limits the proposal to the 60 meter height limit in the Development Management Scheme (DMS). However, a 60m building will be defined as “tall” (or at least “high”) in relation to the definition above, as the immediate context only contains one other building of 60m (The Christiaan Barnard Memorial Hospital diagonally across Riebeeck Square).
The underpinning economic intention of the policy is to encourage new growth and responsible development in the City, while stressing the need for high quality urban design, compatibility with the context of the area, and protection of the environment. The principles embodied in the document were used to derive urban design indicators for the site, and also to provide a preliminary evaluation of the proposed building emanating from the design process.
The primary principles of the Tall Building Policy are to:
- Promote and encourage sustainable growth in the city by permitting greater building height in specific locations; - Ensure that taller buildings fit into the context of the surrounding cityscape, without negative impacts; - Encourage design excellence. Tall buildings should form part of high quality urban environments in specific locations; - Recognise that growth is dynamic and that the approach should therefore be flexible, provided that the proposal meets the strictly applied criteria for quality, design, character, context and protection of the urban environment.
The framework defines the following policy statements for “substantially tall buildings” that must be adhered to: (Note, this category is for buildings more than 1.5 times the underlying rights as per the Zoning Scheme. Whilst the proposed building will NOT seek any Departures for Height, nor any extra bulk, this category is deemed the most suitable to assess the application)
1 Tall building location must protect the views to Table Mountain and the sea from public spaces and key public places 3 Applications must meet the assessment criteria set out in the Policy 4 Tall buildings must contribute to a quality, active public realm at street and first floor level 6 Assessment on merit within the buildings unique context 7 Area character analysis will inform the design of tall buildings 8 A tall building should consider the three parts of a tall building within its context 9 A tall building should include a mix of uses and promote the City’s densification strategy 10 Criteria for renewable energy or energy efficiency in tall buildings must be considered to support limited infrastructure resources
The following sections of this report elaborate the assessment criteria 100 Buitengracht. Urban Design Report. Blue Green Planning and Design. October 2015 16 contained in Chapter 8 of the Policy and are used to derive the urban design indicators for the proposed development.
3.6 Urban Design Policy
The Urban Design Policy of the City of Cape Town was developed in recognition that private and public development has the potential to change the way the city is structured and have an impact (positive or negative) on the collective, or public, environment.
Its overarching principles seek to promote greater ‘public good’ through urban design, to favour and protect the spatial qualities of the “whole” above the “parts” of the city, and to encourage place-making in the city, encouraging new development to focus on positively contributing to the identity of the city as a whole.
The City of Cape Town’s Urban Design Policy defines the following objectives:
1. Ensure that development contributes positively to the urban structure of the City to create integrated and legible places and neighbourhoods. 2. Ensure that development contributes to improved quality of the public realm and public spaces. 3. Ensure that developments contribute to the creation of safe and secure communities. 4. Ensure opportunities and amenities are accessible and that people can move about easily and efficiently. 5. Promote development intensity, diversity and adaptability. 6. Ensure enclosure and positive interfaces onto the public realm. 7. Development should recognise and respond appropriately to informality. 8. Development should protect, value and enhance the natural environment through sustainable design. 9. Development should respect and enhance the heritage, character and unique identity of the City and its neighbourhoods.
These objectives will also be used in the evaluation and assessment of the appropriate building response to the site.
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4. URBAN DESIGN INDICATORS
The relevant planning policy frameworks, current rights in terms of the Zoning Scheme, the Tall Buildings Policy and Urban Design Guidelines described in Section 3, as well as the contextual and site assessment described in Section 2, form the basis for the urban design indicators deemed applicable on the property concerned. These are elaborated below.
4.1 Ensure a “good building” that enhances the unique sense of space and the quality of the urban environment of this location
This high level indicator is intended to respond to the SDF imperatives and must achieve a quality building, that incorporates a mix of uses and one that achieves a good contextual urban design ‘fit.
In particular the key indicator here is the interface between the two key edges to the site, namely Riebeeck Square (and the West City in general), and the Bo-Kaap. The development must enhance the value of these heritage resources, and as far as possible, provide positive spaces for cultural and social life.
4.2 Respond to horizontal datum lines and contextual clues
A primary ‘clue’ to the massing and expression of the building are the various horizontal lines set up in the area, particularly along Buitengracht Street, and Rose Street. These are primarily set up by the height restrictions in the DMS, or by negotiated precedent on the adjacent property in Rose Street.
The datum lines established in Buitengracht and Rose are depicted in Fig 10 and 11 below.
Buitengracht edge should primarily respond to the horizontal datum lines established by the adjacent ‘Studios’ development. However the building needs to be primarily expressed in its vertical elements.
Rose Street edge should be no more than 5 story’s, stepping back at various levels, and should be well articulated vertically – ie to create a varied and interesting ‘vernacular’ typology (as per adjacent).
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Figure 10. Variable datum lines and (art deco) corner on adjacent building that should be responded to in the building.
Fig 11. Buitengracht Edge. (Riebeeck Square elevation) Indicative early sketch (bluegreen) indicating recommended vertical and horizontal articulation indicators. Diagram indicates key idea of ‘base’, ‘middle’ and ‘top’ as per tall building
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policy. The 38m and 60m height lines are indicated. The recommended ‘symmetry’ of the building with ‘lighter’ corner detail is indicated
4.3 Appropriate envelope, suitable height, form and massing, and response to edges
The central challenge in determining an appropriate response to this unique site, is the form and massing of the building, and in particular the interfaces on its 4 edges, each of which suggests a different response:
4.3.1 Buitengracht
Buitengracht is the primary ‘address’ of the property and the key edge in the Heritage Protection Overlay Zone (HPOZ) and has a direct interface with Riebeeck Square. Given the width of Buitengracht and the large urban space of Riebeeck Square, this is the development edge with the highest height and massing potential, where the existing zoning parameters (60m height) can most likely be met. However, as indicated in the section below, it will be important to ensure an appropriate setback on this edge given its location to the north of Riebeeck Square (winter shadow lines). Buitengracht should be the primary “active edge” of the property with the main pedestrian entrance, ideally centrally located – see Figure 11 above.
Figure 12. Diagram illustrating possible horizontal datum lines and vertical elevational treatment zones to respond to the datum lines set up by existing development on Rose Street.
4.3.2 Rose Street
Rose Street is the critical interface with the hinterland of Bo-Kaap. The form and massing of the building here should be informed by adjacent precedent, 100 Buitengracht. Urban Design Report. Blue Green Planning and Design. October 2015 20 and should step up to no more than 5 story’s on this edge.
4.4.3. Shortmarket Street
Shortmarket is a wider street than Longmarket, and has strong connections between the Bo-Kaap and the west city, with linkages to the improved pedestrian networks. It is also the recommended location for vehicular access to basement parking. Properties to the east have not yet been developed, and will likely contain larger buildings in future depending on site assembly. Height and massing on Shortmarket will largely be determined by zoning scheme setbacks, but will also be influenced by the existence of the warehouse properties (discussed in 1.4 above).
4.3.4 Longmarket Street
Longmarket retains a historic character and sense of place with its cobbled streets and vistas uphill into the Bo-Kaap. It is also narrow, with inappropriate and unregulated all day parking clogging it up. It has the potential to accommodate some active street edges. Height and massing on Longmarket will largely be determined by zoning scheme setbacks, as well as respecting the adjacent Studios development.
4.3.5 Massing and Zoning Envelope
The figures below illustrate the primary urban design indicators related to the massing of the building. The key recommendations to the design team represented in the three represented sections below are:
1. Stay within the permissible envelope of the site (represented by red dashed line). 2. Mass the building towards Buitengracht and step it significantly away from Rose Street, and seek opportunities to ‘green’ the building on this north facing edge. 3. Step the building back from the Buitengracht edge so that the taller section of the building (reaching the permissible 60m height) is less visible. 4. Attempt to conceal the required parking within a basement rather than expose parking floors to the street facades; subject to final geotechnical investigation. 5. Reduce the scale on Rose Street by employing a similar height and stepped setback to the adjacent property, and limiting height to 5 story’s.
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Figure 12. Indicative Section - Buitengracht to Rose.
Figure 13. Indicative section across Riebeeck Square Indicating recommended setbacks, view lines and possible impact of height up to 60 meters on the Buitengracht edge, as well as lower massing recommended on Rose Street. The bulk of ‘City Park’ on the other side of the Square indicates the ‘enclosure’ of the Square over this hypothetical section.
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Figure 14. Indicative Section - Longmarket to Shortmarket
Figure 15. Diagram illustrating preferred massing envelope.
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City Snapshot below
Fig 17. Local Context Diagram illustrating following urban design indicators: (Site indicated in pink tone)
1. Critical location opposite eastern half of Riebeeck Square and diagionally across from Heritage Square 2. Fine grained floor plan of surrounding city fabric 3. Linkages to the pedestrian network – particularly Shortmarket 4. Opportunities to create linkages across Riebeeck Square at Longmarket 5. The ‘green nature’ of the vicinity – especially the wide median in Buitengracht
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6. The courtyard form of many of the surrounding blocks, in particular the Studios to the west 7. Other larger ‘placemakers’ in the local area, as well as sites likely to be redeveloped in future. The ‘City Park Hospital’ diagonally across from the site has reached a 60m height, and others are likely to do so in future.
4.4 Activate and enliven the ground floor edges, provide landscape setbacks, and sheltered pedestrian colonnades.
A key set of interrelated urban design indicators are to ‘activate’ the ground floor levels of the building as far as possible, (subject to economic considerations), and provide landscape setbacks and pedestrian shelter through colonnades.
Some edges will lend themselves more to ‘activation’ (retail use) than others, particularly on the Buitengracht Street edge, and wrapping around both the Longmarket and Shortmarket corners. The main pedestrian entrance to the building should ideally be placed centrally on the Buitengracht façade, but other opportunities for access points to what will likely be a central courtyard from other edges should be explored.
The ground floor (and if viable the first floor) areas should be of generous floor-to-ceiling height and should be ‘activated’ by shop-fronts and retail use. Longmarket, if successfully pedestrianised, could provide further retail frontage (Note a separate process is required to negotiate the closure of Longmarket to normal traffic).
In regard to landscape setbacks, it is recommended that setbacks be employed on the Shortmarket edge (see Fig 17) to provide for a wider pedestrian zone and space for landscape.
Space should also be created in the ground floor setbacks for appropriate landscaping along the Buitengracht edge to compliment the ‘boulevard’ effect of this wide road reserve, and to enhance the role of this corridor as a key open space connection between the historic city and the Foreshore area. Lastly, Rose street should similarly have a reasonable pedestrian and landscape zone.
4.5 Employ high design quality and creative use of materials, achieve sustainability and a ‘green building’.
The iconic location of the site, with frontage onto one of the great (though underutilized) public spaces in the city requires that the development respond in an appropriate way. (Refer to architects statement)
The proposal is intended to achieve a green star rating, and meet a range of sustainability and energy efficiency objectives. Further design development of this key indicator will be made in the detailed design stages, and will be subject to the advice of a specialist relating to issues such as water consumption, energy saving installations, re-use of material etc.
The proposed building should be cognizant of sun shading for large glazed
100 Buitengracht. Urban Design Report. Blue Green Planning and Design. October 2015 25 areas, and should explore various greening interventions on the north facing edge, as well as any possible solar panel installation technology.
Fig 18. Sketch illustrating opportunities for ‘greening’ the building. Green roofs, solar shading and solar panels.
Green Roof. (Precedent – Durban)
4.6 Opportunities for ‘external interventions’ (partnership opportunities)
Lastly, whilst not a specific urban design indicator for the actual development, it is recommended that the City investigates, along with appropriate role-players, including developers or landowners adjacent to Riebeeck Square**, the opportunities for upgrading the public environment in three main areas:
1. Landscape intervention in Buitengracht, including the removal of parking in preference to landscape. (see photo)
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2. Upgrading and redevelopment of Riebeeck Square, which is a potentially great public space in the city, but currently used for car parking. Opportunities could be of specific benefit to adjacent communities who historically used the square.
3. Pedestrianisation of Longmarket St. (between Rose and Buitengracht) allowing access to the adjacent properties, but eliminating parking and returning the street to a pedestrian space. Appropriate crossing over Buitengracht (and possible closure of the median break) should also be investigated.
** There are a myriad of role-players including the Cape Town Heritage Trust, The Bo-Kaap Civic Association, the Central City Partnership, NetCare (owners of Christiaan Barnard Memorial Hospital intending to redevelop), Vantage Properties, and the owners of heritage Square.
Figure 19. Existing Median in Buitengracht. A wasted opportunity for landscape, as used for limited long term parking. A far more beneficial use would be a landscaped zone, possibly incorporating a ‘recreation/celebration’ of the original ‘Gracht’, possibly including a public transit and bike corridor. This intervention along appropriate sections of Buitengracht should be investigated by the city in partnership with adjacent landowners.
4.7 Summary - Response to Context
The location and context of the property concerned is therefore considered suitable for a ‘taller’ building. Although there are no particularly tall buildings currently in existence in the immediate environs, other than Christian Barnard (City Park) which also reaches the 60m height limit in the zoning scheme, this 60 meter datum now defines generally ‘mid-range’ towers in the CBD.
This part of the west city is also likely to see future development once the Buitengracht Road reserve properties have been released. ccc S
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5. REVIEW OF PROPOSED BUILDING *
* Refer to Architects Statement appended to main report
5.1 Architects Response
Figure 20. Proposed building as viewed from the north. (Source Fabian Architects).
The architects report, prepared by FABIAN Architects, is appended to the main application report by Tommy Brummer.
The purpose of this section of the Urban Design report is to assess the building response in terms of the indicators described in Section 4, but also in terms of the Tall Building and the Urban Design Policy described in Section 3. This assessment is done by means of a narrative comment to various plans and perspectives.
As stated in the introduction, the primary purpose of this report is to accompany the Town Planning submission by Tommy Brummer for Council’s Consent to build in a heritage protection area, as well as certain departures from the prescribed building lines in the DMS.
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Figure 21. Proposed building as viewed from above Buitengracht. (Source Fabian Architects). • Illustrates the ‘stepped massing’ to reach the allowable 60 m height limit away from the Buitengracht edge, as well as significantly lower massing on Rose Street edge. • The horizontal and vertical articulation and datum lines have been incorporated as recommended. • The proposed height, to some extent, ‘counter-balances’ the mass of the ‘City- Park’ building diagonally across Riebeeck Square. • Note that the scheme illustrates the retention of the old buildings on erven 1299 and 1300. As indicated in the Introduction, these buildings may be incorporated into the scheme in the future.
Figure 22. Proposed Building as seen from above Rose Street (Source – Fabian Architects) The massing has been ‘stepped back’ away from Rose St towards the Buitengracht south edge as per the urban design indicators. Parking is proposed in a basement situation, and no impact on facades is envisaged.
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Figure 23. Proposed Section between Rose and Buitengracht. (Source – Fabian Architects)
Retail use is indicated on three levels on the Buitengracht edge and on the Rose Street edge. (Longmarket and Shortmarket will also be ‘activated’). The envelope and heights and staggered setbacks generally conform to the urban design indicators. Parking requirements have been contained in a basement configuration which is a major positive from an urban design perspective.
Figure 24 (below). Indicative/Selected Floor Plans (Fabian Architects) Refer to Architects report
24,1 Retail frontage and main access on Buitengracht, Basement access in Shortmarket, indicative Pedestrianisation of Longmarket
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24.2 Retail level across building to Rose Street (levels 1 to 3). Active frontage on Longmarket (stepped uphill)
24,3 Indicative layout of residential units, lower levels (levels 4 to 10)
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24.4 Indicative plan mid-levels (approx. levels 11 to 15)
24.5 Indicative plan top levels (levels 16 to 18)
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Figure 25. View of proposed building from Riebeeck Square.
5.2 Floor Area and Parking Analysis
As per Section 2.2 of this report, the total permissible Floor Area is 30,523 m2, inclusive of the residential incentive in the Mixed Use Zone.
At this stage of the design development, the total floor area of the building is approximately 27,000 m2 made up as follows:
Residential – 249 units 22,192 m2 GLA Retail 4,030 m2 Other 790 m2 TOTAL 27,012 m2
The design has therefore used less than the total permissible bulk (including 30% incentive), and has optimised the design to utilise approximately 50% of the residential floor space incentive.
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In regard to parking, a total of 329 bays have been provided in basement structure, made up as follows:
total apartments 249 total bays required 257 bays @ 1.03 bays per apartment bays in basement 329 bays surplus for retail 72 bays @ 1.8 bays/100m²
Note: Provision for parking is ‘hypothetically’ not required as the site is in the parking-free zone of the CBD. Parking ratios are therefore low in regard to normal commercial ratios in order to promote public transit and in recognition that the site has excellent walking distance accessibility to the central city.
Refer to the TIS prepared by K&T Engineers.
5.3 Review of Proposed Building in terms of the Tall Building Policy
The policy and assessment framework from the Tall Building Policy is repeated below, (in bold italic) along with a statement of compliance for all policies. It is reiterated however that the proposal does not trigger the formal review process as the application does not seek any departure from the height restrictions contained in the zoning regulations. (Certain setback departures may however be required – refer to planning report).
P1: Protect views to Table Mountain and other mountain ranges such as Kogelberg/Helderberg and the sea.
The site is located within an urban precinct already defined by relatively tall buildings, and will be subject to further development in future. The height and massing of the proposal will not compromise views to Table Mountain or the sea.
P2: Tall buildings must be located in suitable positions.
The City’s (unapproved) policy framework indicates the Buitengracht corridor as suitable for taller buildings. The 60 meter height limit proposed will conform to the zoning restrictions. The proposal is ‘counterbalanced’ by ‘City Park’ diagonally across Riebeeck Square.
P3: Applications must meet assessment criteria, including:
1) Response at the scale of the precinct, including assessment of the relationship of the building to the wider, existing context; the transitions in scale; prominent sites; landmarks, views and vistas; access, transport and other infrastructure.
It is believed that the proposal is an appropriate response at the scale of the precinct.
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2) Response at the scale of the site, including building placement and orientation; local access and permeability (placement of entrances etc.); site servicing and parking; open space connections; heritage and cultural landscape.
It is believed that the proposal represents an appropriate response at the scale of the site.
3) Response at the scale of the building, including overall form and massing; scale of the base of the building; shaft design and floor plate design; location and design of the tower; building height; building uses; design quality and materials.
The proposal represents an appropriate response to the indicators. Further design development will deal with issues related to materials.
4) Impacts of the building on the public realm, including ground floor interface and the streetscape; weather protection; sun, shadow and sky view; wind impacts at street level. Wind impact study has not been completed. The conceptual proposals need detailed development on issues related to pedestrian shelter, landscape treatment and the ground floor interface.
5) Sustainable building design
It is proposed by the developer to design the building to be a minimum 4 Star Green Building, and therefore sustainability issues will be incorporated into all aspects of the design. One issue that is highly positive is that the building does not incorporate excessive parking.
6) Social responsibility contributions.
There are no social responsibility contributions related to this application. However, public realm contributions could be explored, especially relating to Riebeeck Square, Buitengracht and Longmarket.
P4: All tall buildings must improve quality of the local, district and metropolitan urban environment, they must produce greater benefits than costs, improve the quality of the public realm, and their design must be of high quality.
The proposal is compliant and provides a good response to these criteria.
P5: Possible additional review for significantly tall buildings.
It is considered that this application does not constitute one for a “significantly tall building”, which is defined as a ‘skyscraper’ in the policy document, and accordingly, as a “Level 2” application, no additional review procedures are deemed necessary at this stage, subject to the discretion of the officials. The comment of relevant parties will however be taken into account during the advertising process for the height departure.
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P6: Assessment on merit within the buildings unique context.
The unique context of the building is defined by its prominent juxtaposition between Riebeeck Square and the oBo-Kaap. It is believed that the massing, heights and street edge activity proposed is an appropriate response to this unique context. The proposed residential use is a major positive factor, as well as the fact that all parking is hidden in basement.
P7: Area character analysis will inform the design.
The area does not have any strong design character, but is defined by the fine grained urban fabric of the west city and Bo-Kaap. The primary informant to design are the various datum lines established in the precinct, which were identified as an important urban design indicator, and this has been well reflected in the conceptual design.
P8: A tall building should consist of three distinct parts, a base, middle (or shaft) and top.
This criteria has been well reflected in the preliminary design. More design development will be required for the top of the building, as well as aspects related to greening, materials etc.
P9. A tall building design should include a mix of uses and promote the City’s densification policy
The proposal adequately meets this criterion, and will provide a mix of retail and residential uses.
P10. Criteria for renewable energy and/or energy efficiency in tall buildings must be considered
The building g will be designed as a 4 star certified green building and will adequately meet this criteria.
In summary, it is considered that, from an urban design (and planning) perspective, the proposal substantively meets the criteria in the Tall Building Policy.
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6. SUMMARY RECOMMENDATIONS
6.1 Compliance with Policy
The proposed tall building on the site largely and substantively conforms to the relevant policy frameworks.
The Table Bay District Plan calls for urban intensification and mixed use. The Draft Central City Development Strategy recommends tall buildings in this precinct of the City. As per the preliminary assessment discussed above, the building complies well with all the policy requirements in the Tall Building Policy.
6.2 Compliance with Indicators
The proposed tall building substantially conforms to the key design indicators summarised below.
1. The building reflects the recommended vertical and horizontal datum lines established by existing buildings in the area. 2. Ground level activity has been incorporated into the various street interfaces of the building. 3. The building is well situated in terms of access and public transport nodes. 4. Space has been set aside for appropriate landscaping and pedestrian shelter, but should be reviewed in the detailed design. 5. The massing and form of the building has been appropriately conceived to comply to the urban design indicators, and is in fact well within the zoning scheme prescriptions, with significant setbacks to the north as recommended. 6. Clear architectural expression has emphasised a ‘base, middle and top’ to the building, and a simple classical design will showcase the residential nature of the building. More work will be required in the detailed façade expression. 7. The fact that the adjacent road reserve of Buitengracht is very wide, as well as the adjacent large public space, will mitigate the effect of the taller section of the building, which is well set back, and thereby reduce impacts of shadow lines over Riebeeck Square to the south. 8. A 60 meter maximum height limit for a limited portion of the building is considered to be a contextually appropriate height.
6.3 Desirability
The proposed development is therefore considered desirable for the area and the property for the following reasons:
1. It will create a vibrant new mixed use / residential development on a very well located property in the Central City, which is currently underutilised for a motor showroom. 2. It has the potential to breathe new life back into Riebeeck Square through the introduction of new residents, and the potential for joint
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venture upgrading initiatives with surrounding landowners and other role-players. 3. It will contribute to the overall vitality of the West City by introducing new residents. 4. It is substantively compliant with the tall building policy, and does not seek any height departures. 5. It complies with existing rights on the property, and does not seek to ‘over-bulk’ the site. The proposal forgoes portion of the incentive bulk available. 6. It will be an asset to the area in terms of urban form. 7. It has been designed with due regard to the heritage sensitivities of the area, and has built on existing precedent. 8. The more intensive use makes better use of existing urban infrastructure and will improve the viability of public transport systems. 9. It will dramatically increase property value that will directly increase City revenue from rates and taxes.
6.4 Next steps
Further detailed design development may be carried out in response to the City’s assessment of the proposal and in response to the advertising process required.
This could include further information on materials and reflectivity, landscaping proposals on the edges of the site, colonnades and pedestrian shelter, sustainability issues (green building certification), types of uses anticipated at ground level (and first floor level), emergency and access services planning, final parking resolution, night time appearance, shadow lines, and further elaboration of the architecture and aesthetics.
Derek Chittenden
Pr Pl A/572/1988 BlueGreen Planning + Design Cape Town October 2015
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