6

6 THE BUILT THE BUILT ENVIRONMENT

6 The built environment summary A The relationships between ’s enclaves are ambiguous and could be strengthened. The railway line (north of the town centre), M1 (south-west of the centre), and the ring-road create physical barriers through Luton that minimise connections between the town centre and surrounding neighbourhoods, particularly for those walking or on bike.

B The discrete enclaves within the town centre should be integrated and outward looking as much as possible. Functions could also be dispersed with a balanced mix of uses ensuring all parts of the town thrive throughout the day and night.

C The town centre can be thought of as having three distinct zones (core, inner and outer zone). Each zone is very different in terms of street hierarchy and connectivity, which in turn affects its character and performance

D There are several different forms of development in Luton that could be altered to become more adaptable. Ensuring that urban blocks are flexible (as well as high- quality) will help to ensure Luton is well- equipped for potential future change. In practice this could mean: • encouraging a finer block grain, where possible • avoiding overly-complicated building geometries and minimising ‘leaky’ outdoor space • rationalising front-to-back relationships between buildings H G F E

Approximately 50,000-60,000tonnesof Landmarks, markersanddistinctiveplaces To makeLutonmorelegible,aclear Encouraging diversityandrestricting maintaining thecharacterofanarea. retrofit isoftenfarmorebeneficialin benefit ofthisapproachisthatthoughtful or retrofitwhereverpossible Theadded should alsogiveincentivetorefurbish priority foranyfuturedevelopment.Policy retrofit shouldalwaysbeconsideredatop within theexistingbuiltfabric. As such carbon and£1-1.5billionisembodied could alsohelptoemphasise interesting within developmentsorthe publicrealm townscape strategy. A series ofmarkers, should becreatedaspartofacoherent streetscapes. blocks legibleandavoidmonotonous a varietyofbuildingheightstomake new developmentshouldencourage surrounding thetowncentre.Inparticular, with considerationforthetopography building heightsstrategyshouldemerge, throughout thetowncentre. space andneighbourhoodamenities an opportunitytointroducegreenopen New developmentshouldalsobeusedas support existingandnewcommunities. amenities andsocialinfrastructure,to functions andshouldinsteadprovidenew development shouldavoidamono-cultural centre desirable.Wherepossible,new will beakeypartofmakingthetown the dominance/mono-cultureofretail I J

Much ofLutontowncentre’s buildingstock It willbeimportanttoreduceenergy Energy andbuildingperformance guide peoplethroughthetowncentre. spaces andplacesaidwayfinding/ ventilation. uninsulated, leaky, andreliantonnatural given thattheoldbuildingstockisgenerally this doesreducetheriskofoverheating, terms ofenergyperformance.However, is oldandthereforeperformspoorlyin stock whichmaybedifficult-to-upgrade. considered forservicingexistingbuilding air permeability. Heatnetworksshouldbe improvements toinsulation,glazingand carbon target. This canbedone through demand inordertoachieveanetzero 109

The built environment Biscot

Tin Town

High Town

Bury Park

Westgate Hat District St Anns Hill Power Court The Mall

Southside University Quarter

Park Town Farley Hill

New Town

Capability Green

Figure 6.1: Map of Luton with neighbourhoods highlighted

Figure 6.2: Map of Luton town centre 110 The built environment

Urban form and structure Figure 6.3: Historic routes Neighbourhoods into the town 6.1 Luton is made up of various neighbourhoods centre around the town centre which have distinct (mostly residential) characters. In many instances, the etymology of areas, such as High Town, Farley Hill and St Ann’s refers to the natural landscape across Luton.

Enclaves Figure 6.4: 6.2 Within the town centre, there is a series of Railway discrete enclaves that have unique identities line (north and functions. The areas shown opposite have of the town been defined by factors such as: heritage, centre) with building typologies, urban form and uses. underpasses highlighted in 6.3 At present, the connections and relationships red between these enclaves are ambiguous and could be strengthened. Development at Power

Court is a prime opportunity for strengthening Figure 6.5: The connections between enclaves, particularly ring-road between The Mall, the Hat District and University Quarter.

Barriers

6.4 As shown in Section 4, the town centre was formerly a confluence of many wider routes leading into the centre. This condition has since changed with the introduction of road and rail infrastructure.

6.5 Major infrastructure, including the railway line (north of the town centre) and the M1 (south- west of the centre) create physical barriers through Luton.

6.6 The newly completed ring-road creates another physical barrier. This often minimises connections between the town centre and The built environment The built environment surrounding neighbourhoods, particularly for pedestrians and cyclists. 111 Core Inner Outer Streets Streets Blocks Buildings

Figure 6.6: Above top row: street network, Above middle row: urban blocks, Above bottom row: building footprints, Right: Overlay of topography and building footprints

112 Connectivity (nearer the centre) and terraced streets (towards the edges of the inner zone). Three zones Outer zone 6.7 The town centre can be thought of as having three distinct zones (core, inner and outer 6.10 Longer, meandering routes leading to zone). Each zone is very different in terms many cul-de-sacs. These create more fluid of street hierarchy and connectivity, which in suburban blocks (to the southwest) as well as turn affects its character and performance. much larger out of town retail, industrial, or airport blocks (to the southeast). Core zone Topography and Luton Basin 6.8 The informal arrangement of streets, particularly north of George Street, create a 6.11 The town centre sits at the low point of a diverse range of urban blocks, both in terms natural basin which can be appreciated when of their sizes and geometries. Buildings viewed from High Town (north of the centre) within the core area also have a broad range or New Town (south of the centre). In many of footprints, floorspace densities and are instances, setting out of the street pattern (or generally more heterogeneous in character. adaptations to it) is related to Luton’s natural topography. Inner zone

6.9 A more rational arrangement of gridded streets with orthogonal and regularly sized urban blocks. The typical block pattern accommodates both larger footprint buildings

Figure 6.7: NEW TOWN TOWN CENTRE HIGH TOWN Cross-section through the town 130m 120m centre showing the 110 m 110 m basin-like quality of 105m the town centre and visual relationship between areas

113 Figure 6.8: Map showing the urban grain and forms of development across the town centre

Compact and complex Compact yet fragmented Loose and fragmented Loose Open space Loose residential Compact residential 114 Adaptability Loose residential Forms of development 6.17 Suburban detached or semi-detached houses with opportunities for infill opportunities or 6.12 Some forms of development are more co-development of adjoining properties to inherently adaptable and conducive to increase density and adaptability. change/ intensification than others. The map opposite identifies six forms of development Compact residential in Luton and images overleaf describe 6.18 Narrower terraced houses. Potential various qualities of each type. adaptability lies in adding additional stories

Compact and complex rear/side extensions at ground floor.

6.13 Large blocks which fuse together different uses together into a single building. Breaking down these blocks into more flexible/legible Implications forms could make the developments more adaptable, although this will typically require phasing. Make sure that future blocks and buildings are flexible and can Compact yet fragmented accommodate change

6.14 Consisting of a variety of different building 6.19 When assessing appropriate forms for new types and ages. Retrofit/refurbishment and development/redevelopment, adaptability subdivision of the existing fabric could help to must be a key consideration. Ensuring blocks make these forms more adaptable. are flexible (as well as high-quality) will help to ensure Luton is well-quipped for potential Loose and fragmented future change. 6.15 Urban grain with a lot of ‘leaky/leftover’ outdoor space, often in-filled with car parking. 6.20 In practice, this means encouraging a Defining a clear hierarchy of building ‘fronts’ finer block grain, where possible, avoiding and ‘backs’ and better utilising leftover space overly-complicated building geometries could help to make these blocks function in a and minimising ‘leaky’ outdoor space. more adaptable way. Understanding the surrounding street pattern and rationalising front-to-back relationships Loose urban grain between buildings will also be important steps to ensuring future adaptability. 6.16 Typically in the form of big box retail or industrial sheds, combined with large areas of surface car parking/servicing yards. These represent the greatest opportunities for wholesale redevelopment/adaptation to different forms of development – as they are often less constrained and occupy large areas. 115 Adaptability: Compact and complex

116 Adaptability: Compact yet fragmented

117 Adaptability: Loose and fragmented

Adaptability: Loose urban grain Adaptability: Loose residential

Adaptability: Compact residential

119 Historic industrial brick building

Embodied carbon and value

6.21 The historic heart of the Town Centre has a number of old buildings pre-dating 1945, 1980s office building housing predominantly of solid brick construction. Luton Jobcentre However, there are a number of newer buildings including the Mall and the university buildings.

6.22 There is a significant amount of carbon embodied within the existing building fabric, which contribute a substantial proportion of overall carbon emissions within the built Domestic old brick building environment. within the town centre 6.23 There is also a significant amount of money embedded within the existing built environment, both in terms of construction and material costs. The amount of money previously invested in the town centre should be a contributing factor in decision making for new developments moving forward.

Figure 6.9: Average dwelling age within the town centre and surrounding area (Source: DataShine)

120 “Embodied carbon has become significant and can represent 40-70% of Whole Life Carbon in a new building”

LETI Embodied Carbon Primer

There is approximately 50,000- 60,000 tonnes of carbon stored within the town centre

It would cost ~ £2-4 billion to completely rebuild the town centre

Implications

Retrofit should always be Celebrate the existing building considered a top priority fabric and industrial aesthetic

6.24 When analysing a site for potential 6.26 The retention of the existing building stock redevelopment, thought should always be has a multitude of benefits that go beyond given to a number of scenarios that retain embodied carbon and cost savings. Whilst and improve the existing built form. This it is often easier to design a new build could include a simple refurbishment, or the development from a blank canvas, the effect complete retrofit and extension or an existing of thoughtful retrofit design - incorporating building. historical elements - is often far more beneficial in maintaining the character of an 6.25 Policy within Luton town centre should area. facilitate the retention of the building fabric and incentivise retrofit wherever possible.

121 Figure 6.10: EPC Performance certificates for Luton Town Centre (The map has been carried out by the DCLG, and it is unclear the source of their data. The EPC records for the town centre and surrounding area are predominantly of a ‘C’ / ‘D’ rating. It is possible that on a m2 basis, a C rating is the most common because of some of the larger buildings.) Source: DataShine

Domestic brick building Energy and building performance

Energy

6.27 Due to the age of the majority of the existing building stock within the town centre, the energy performance is relatively poor. This New university building is predominantly due to a high proportion of solid brick façades and low levels of insulation that are typical of buildings from an older age group. The EPC records for the town centre and surrounding area are predominantly of a ‘C’ / ‘D’ rating.

Overheating

6.28 The overheating risk is inherently linked Council office to the energy performance of a building or building area. Given that the building stock is old, uninsulated, leaky and with a reliance on natural ventilation, the risk of overheating within the majority of the buildings is low. The newer buildings are at higher risk, however, these are predominantly non-domestic and are therefore at lower risk due to the inclusion of space cooling.

122 “The climate emergency demands urgent action and leadership by architects and the wider construction industry”

RIBA, 2019

EPCEPC Ratings Ratings DomesticDomestic BuildingsBuildings

EPCEPC Ratings Ratings forfor NonNon-Domestic-Domestic Buildings Buildings

E PC B E PC C E PC D E PC E E PC F E PC G

E PC A E PC B E PC C E PC D E PC E E PC F E PC G

Figure 6.11: Determining how the circular lifetime of different elements of the building are viewed (UKGBC, 2019)

Implications

First and Foremost: Reduce the Consider district heating/cooling energy demand 6.32 The existing building stock which may be 6.29 The poor energy performance of the existing difficult-to-upgrade would benefit from the building fabric is limiting the potential of the prescription of heat networks that capture and town centre to reduce it’s CO2 levels to those share heat. required. 6.33 Heat networks work by incorporating 6.30 Reducing energy demand in the first instance economies of scale to the efficient is key to achieving significant energy distribution of heat. They also allow for the performance improvements and working heat generating plant to be swiftly replaced towards a net zero carbon city. resulting in the immediate transformation of the energy consumption and carbon 6.31 Improvements to insulation, glazing and air dioxide associated with the buildings that are permeability are essential to minimising the connected to the system.

energy demand of the building stock. The built environment

123 Figure 6.12: Prevailing ground floor land uses Civic Education Primary school Secondary Tertiary Retail Ofces Industry / airport 124 Residential Parks and other green space Diversity Amenities Prevailing land uses within town centre 6.38 In comparison to surrounding areas, the town centre lacks many amenities, such as 6.34 Uses in the town centre are relatively mono- schools, parks, open spaces and play. These functional with a dominance of retail; mostly amenities could help to make the town centre shops with some cafés, restaurants and pubs/ a more lively and desirable neighbourhood. bars. The focus of retail activities are in the centre – within The Mall and along George Street (the town’s traditional high street).

Offices and workspace Implications Encourage diversity in the town 6.35 The town centre hosts clusters of office uses; particularly west of St George’s Square and centre within the Hat District. The latter, in particular, 6.39 Encouraging diversity in the town centre hosts an interesting cluster of creative and should be a priority moving forward to make it co-working spaces, strengthened by the a desirable and lively place. University of School of Art being located nearby. 6.40 Where possible, new development should avoid a mono-cultural functions and should Offices and workspace instead provide new amenities and social infrastructure, to support existing and new 6.36 A campus of educational buildings for the University of Bedfordshire are located on communities. New development should also the eastern side of the town centre. With be used as an opportunity to introduce green exception of the School of Art, the university open space and neighbourhood amenities buildings are relatively isolated from the town throughout the town centre. centre. 6.41 The discrete enclaves within the town centre Connections to surrounding neighbourhoods should also be integrated and outward looking as much as possible. For example, 6.37 Barriers around the town centre, including the University of Bedfordshire could have a the railway and the ring-road, separate greater presence within the town centre and surrounding neighbourhoods, which is sub- the Hat District. This has already started with optimal to creating a lively town centre. The the School of Art and Design which is located retail offer of the town centre is also targeted on Guildford Street. towards those that live there/nearby and this can limit variety. 6.42 Functions could also be dispersed with a balanced mix of uses ensuring all parts of the town thrive throughout the day and night.

125 Landmark Prominent building Train station Public open space

Primary retail frontage Secondary retail frontage Internal retail frontage Blank/ inactive frontage

Key view Figure 6.14: Townscape analysis of Luton town centre

Figure 6.13: Map showing building heights in Luton town centre This diagram is based on open source GIS data and represents high level building height information only. The accuracy of this information will need to be reviewed for further, more detailed studies of the town centre

48 - 60m (16-20 storeys) 21 - 48m (7-16 storeys) 12 - 21m (4-7 storeys) 9 - 12m (3-4 storeys) 6 - 9m (2-3 storeys) 3 - 6m (1-2 storeys) 0 - 3m (0-1 storeys)

126 TOWNSCAPE PLAN Legibility Building heights Landmarks 6.45 At street level, there are few local landmarks 6.43 Taller buildings are not concentrated in any particular area or cluster within the town to aid navigation through the town centre and centre. Nor is height distributed evenly. This no discernible sequence of buildings, spaces suggests that there is no-overarching logic to or places to help guide/orient people from one the townscape massing of the town centre. part of the town to the other.

6.46 is perhaps one of the most 6.44 When viewed from high surrounding areas of High Town and New Town, there is no distinctive landmarks in Luton, given it’s relationship between taller buildings and individual appearance, important civic important places or areas of the public realm. function and the public space around it.

Implications

Making Luton legible

6.47 New development should encourage a variety of building heights to make blocks legible and avoid monotonous streetscapes. Developments could also introduce distinctive markers to emphasise interesting spaces and places.

6.48 Development should also consider topography and the basin-like quality of the town centre when defining how and where new tall buildings are distributed. For instance, taller buildings along the higher northern ridges of the town centre may obstruct town-wide views across Luton.

127 Public spaces

6.49 Luton town centre has grown in to a mature retail and service centre which provides well for its residents. It has distinct areas, often underpinned y Mill Street by historic character. WT ad

Luton- Busway Leisure and elfor community The Galaxy, library and theatre Collington Street New Bedford Road

oad Rpool oad Library R t ee t Bridge Street er tr

Liv oad an S Public squares digCar St. George’s Square eetr t

ut a S B

oad Alm e RvoGr

Prominent landmarks tree t Town Hall Geor ge on S Stree t tree t

oad Wellingt Ron ee t

King S uxt B Str Pedestrianised high street High Street Chapel

Infrastructure Historic and Ring road and active side car parks streets George Street West

Figure 6.15: Public spaces in the town centre

128 Secondary centres High Town Road

Midland Road

Transport interchange Luton train station Station Road

Hitchin Road Cultural Quarter Guildford Street Guildford Street, Hat District

Church Street Bute Street

Cheapside John Street

Large-scale shopping mall The Mall

St Mary’s Road treet

Church Street

treet Park Street University Quarter University of Bedfordshire, Park Street / Flowers Vicarage Street Way

Changing Green spaces levels St Mary’s Market Hill Church garden

129 Public realm Legibility of pedestrian routes

6.50 Pedestrian routes around the town centre can be indirect or confusing. The area is characterised by a number of barriers: the railway line, the ring road, car parking, The Galaxy and The Mall. The Mall in particular creates a major barrier to north-south movement after it closes (around 6pm).

Routes into the Town Centre

6.51 Routes into the Town Centre are unwelcoming and indirect. Routes are typically via underpasses or bridges with no active frontage/overlooking. Very few

pedestrian crossings exist at street level. Figure 6.17: Link & Place framework

Figure 6.16: Key issues and constraints

130 e.g. A505 e.g. Church Street

Connector High Street

e.g. John Street e.g. Bute Street

Local Street Town Square City Place

e.g. Cardigan Street e.g. Bute Street e.g. George Street

Figure 6.18: Link & Place analysis for Luton Town Centre

Lack of pedestrian crossings Unwelcoming and poorly lit Junctions often prioritise vehicles over and traffic barriers underpasses cyclists and pedestrians 131 Accessibility and vehicle dominance Street furniture

6.52 Outside of the pedestrianised areas, streets 6.59 The public realm is overly cluttered with are dominated by vehicles. Footways are street furniture. Many elements could insufficient and squeezed at junctions, and be rationalised – such as lighting, CCTV there is a lack of pedestrian crossings. columns, and signage – while others like telephone boxes could be removed Safety and Visibility altogether. Reducing street clutter will help 6.53 Crime is a serious problem in the town centre. streets and spaces to be used better e.g. for Inactive frontages, poorly overlooked open outdoor events and street markets. spaces, awkward levels and street clutter should be addressed to improve safety and visibility in the public realm. Removing trees to manage the issue will only further diminish the quality of public realm. Pedestrian space (pedestrianised streets and footways) Public open space Vehicle space (roads & carriageways) Vehicle parking (including private parking) Green open space Figure 6.19: Public realm breakdown Vacant / under construction

132 Narrow footways are a Narrow footway on a busy route Footways around bus stops on Silver challenge for accessibility and a lack of controlled crossings Street are very narrow and can be congested

Poor safety and visibility to the public The Mall has no active frontage onto Silver Street and Library Road space at the eastern end of George Street

Car parking is often a barrier to pedestrian Street furniture and objects can clutter movement and can make pedestrian routes indirect the public realm on George Street 133 Character and identity Open space

6.60 The public realm needs to more clearly define 6.62 The town centre lacks high quality open different areas in the town centre. The Hat space that meet the needs of local users. District, for instance, could better reflect the Most spaces are extensively paved, with little history, culture and functions of the area, greenery, and lacking in play provision for rather than using the same materials applied children. elsewhere. Materiality Programming and use 6.63 Luton’s public realm is formed of poor quality 6.61 Pedestrianised street and open spaces could materials, applied inconsistently. Asphalt, be more intensively programmed. Spaces brick and concrete are typical materials, with such as St George’s Square, Town Hall granite used extensively in new public realm Square and George Street are generous upgrades. The application of paving (and open spaces, but can feel empty and lack of greenery) means the public realm can underutilised. appear monotonous and austere.

Granite Concrete/brick paving Yorkstone Asphalt Figure 6.20: Public realm materials Greenery

134 Poorly maintained open space St George’s Square is a large public space and could be better utilised lacking amenity

Station square is extensively paved and lacks greenery The Hat District has an important identity that is not reflected in the character of the public realm

Selection of images showing the type and quality of paving materials within the town centre 135