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City of London Tall Buildings Evidence Paper

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City of London Tall Buildings Evidence Paper CITY OF LONDON TALL BUILDINGS EVIDENCE PAPER September 2010 CONTENTS 1. Introduction 6 1.1 The City of London 6 1.2 Definition of Tall Buildings in a City Context 6 1.3 Methodology 7 1.4 Structure of the paper 9 2. Policy Context 10 2.1 National Guidance 10 2.1.1 PPS 1 10 2.1.2 PPS 5 10 2.1.3 CABE / English Heritage Guidance on Tall Buildings (2007) 10 2.2 Regional Guidance 11 2.2.1 London Plan 11 2.2.2 City Fringe 12 2.3 Economic Growth in the City 12 3. Policy History and Evolution 14 3.1 Development of Tall Buildings Related Policy in the City of London 14 3.1.1 London Building Acts 14 3.1.2 St. Paul’s Heights (1938) 14 3.1.3 Reconstruction in the City of London (1947) 14 3.1.4 County of London Plan (1951 & 1962) 15 3.1.5 Greater London Development Plan (1976) 15 3.1.6 Smithfield District Plan (1981) 16 3.1.7 City of London Local Plan (1989) 16 3.1.8 City of London Unitary Development Plan (UDP) (1994) 17 3.1.9 City of London Unitary Development Plan (UDP) (2002) 17 3.1.10 London Plan (2004–2008) 18 3.1.11 Conclusions 18 3.2 Tall Buildings Policy Timeline 19 4. Urban Characterisation 21 4.1 The Urban Character of the City 21 4.1.1 Historical development 21 4.2 General urban design considerations for tall buildings 24 4.3 The Distribution of Tall Buildings 24 4.4 Approved tall building proposals 26 4.5 Skyline and Topography of the City 28 4.5.1 The Thames and Riverside 28 4.5.2 Environs of the City 30 4.5.3 More distant hills and ridges 30 5. Heritage Assets 32 5.1 Conservation Areas 32 5.1.1 Settings of Conservation Areas 35 5.1.2 Conservation Area Character Summaries / Management Plans 36 5.1.3 Conservation Areas: Conclusions 36 5.2 Listed Buildings 37 5.3 Historic City Landmarks 37 5.4 Archaeology and Scheduled Ancient Monuments 40 5.5 Historic Parks and Gardens 40 6. Protected Views and Settings 43 6.1 Views and Setting of the World Heritage Site 43 6.2 London View Management Framework 45 2 6.2.1 Policy Development 45 6.2.2 River Prospects and St. James’ Park View 52 6.3 St. Paul’s Cathedral: Local Views and Setting 54 6.3.1 Infringements of the heights 57 6.3.2 Backdrop to the views 59 6.3.3 St. Paul’s Heights: Conclusions 61 6.4 Monument Views 61 6.5 Tall Buildings that have been demolished 64 7. Other Planning Considerations 65 7.1 Thames Policy Area 65 7.2 Tall Buildings and Transport 67 7.3 London’s Airports 68 7.4 Environmental effects 71 7.5 Mixed use 71 7.6 Other Relevant Plans and Strategies in the City 72 7.6.1 Enhancing the Public Realm in the Eastern Cluster (2005) 72 7.6.2 St. Helens Square and Vicinity – Enhancing the Public Realm (2007) 72 7.6.3 Barbican Listed Building Management Guidelines SPD (Volume I & II) (2005) 73 7.6.4 Golden Lane Listed Building Management Guidelines SPD (2007) 73 7.6.5 Tall Buildings and Sustainability (2002) 73 8. Conclusion 74 8.1 Regional planning context 74 8.2 Local policies 74 8.3 Areas inappropriate for tall buildings 76 8.4 Areas sensitive to tall buildings 78 8.5 Tall Building Clusters 78 8.6 The Eastern Cluster 79 8.7 Other considerations 83 8.8 Summary 83 8.9 Policy 84 9. References 86 Appendices 88 Appendix A. Tall Buildings over 75m AOD in the City of London (Existing and Permitted). 88 Appendix B. Conservation Area Character Summaries. 92 Appendix C. Conservation Area Management Strategies. 93 Appendix D. Comparison of Strategic Views and Protected Vistas 1991 / 2007 / 2010. 94 3 LIST OF FIGURES Figure 1. City of London employment projections. 13 Figure 2. Development and height control limitations timeline. 20 Figure 3. Tall Building distribution in the City. 27 Figure 4. Viewing locations in the City. 31 Figure 5. Heritage Assets in the City. 33 Figure 6. Conservation Areas in the City. 34 Figure 7. Historic City Landmarks. 39 Figure 8. Scheduled Ancient Monuments in the City. 41 Figure 9. Historic Parks and Gardens in the City. 42 Figure 10. Tower of London Local Setting Area. 44 Figure 11. Components of a Protected Vista. 46 Figure 12. Strategic Views 1991 – coverage in the City of London. 48 Figure 13. London View Management Framework Protected Vistas (2007). 49 Figure 14. London View Management Framework Protected Vistas (2010). 50 Figure 15. Comparison of changes from Strategic Views to Protected Vistas 51 1991 – 2010. Figure 16. LVMF River Prospects and Townscape Views affecting City of London tall buildings. 53 Figure 17. St. Paul’s Heights Policy Area. 56 Figure 18. Buildings that infringe St. Paul’s Heights. 58 Figure 19. Monument Views Policy Area. 63 Figure 20. Thames Policy Area. 66 Figure 21. Public transport in the City of London. 69 Figure 22. London City Airport Safeguarding Area. 70 Figure 23. Tall Buildings in the City by Height. 75 Figure 24. Summary of Tall Building Constraints. 77 Figure 25. Anticipated Distribution of Development (% of floorspace and % of residential 80 units). Figure 26. Eastern Cluster (LDF Core Strategy). 81 Figure 27. Major Schemes in the Eastern Cluster. 82 Figure 28. Tall Buildings in the City of London. 85 4 5 1. Introduction 1.1 The City of London The City of London is internationally recognised as the world’s leading financial and business centre. The firms and institutions located here require a growing supply of high-quality, modern office accommodation, and the ‘Square Mile’s’ dynamic economy generates a high level of development activity. The City’s economy and employment levels are predicted to grow substantially in the longer term, notwithstanding current short to medium term economic conditions. This will create demand for a significant increase in office and other commercial floorspace. While the City’s residential population is small, the number of dwellings is also expected to rise. As all land in the City is already developed, this increase in both commercial and residential accommodation will be achieved through the redevelopment of existing buildings at higher density. Taller buildings will be one means by which this intensification can be achieved. Since the 1960s considerable numbers of tall buildings have been constructed in the City, and form a distinctive and characteristic element of parts of its townscape and skyline. The expected growth in the economy will mean that further proposals for tall buildings will be brought forward in future. The City of London is preparing a Core Strategy as part of its Local Development Framework. The Core Strategy should contain a clear and robust policy to guide tall development. The City has long been densely developed, and tall buildings are a modern expression of this. Tall buildings have very considerable impact on both their local surroundings and the London skyline. The City has a high quality of environment and is the most historically important area of London, so increased density will not be appropriate on all sites. Tall buildings provide a means of bringing about an increase in the total floorspace in the City by accommodating development on suitable sites and relieving pressure on those where intensification would be harmful. The Core Strategy’s policy therefore needs to be based on a thorough process of identifying those locations where tall buildings would be regarded as either appropriate or unacceptable. 1.2 Definition of Tall Buildings in a City Context “Guidance on tall buildings”, issued by English Heritage and the Commission for Architecture and the Built Environment, states that “it is not considered useful or necessary to define rigorously what is and what is not a tall building. The simplest definition would be to take a height threshold. However, a judgement as to whether a building can be considered tall is strongly influenced by its surroundings. The general height, scale and density of the townscape varies greatly from place to place. The EH/CABE guidance notes that “it is clearly the case that a ten storey building in a mainly two-storey neighbourhood will be thought of as a tall building by those affected, whereas in the centre of a large city it may not. The assessment is therefore a relative one. The London Plan (paragraph 4.119) defines tall buildings as those “that are significantly taller than their surroundings and/or have a significant impact on the skyline and are larger than the threshold sizes set for the referral of planning applications to the Mayor.” The height threshold for planning applications that need to be referred to the Mayor is 150m in most of the City, which is considerably higher than anywhere else in London. This threshold height 6 would exclude many buildings that would otherwise be considered tall, and so this definition is not appropriate for the City’s Core Strategy or this report. The City of London Unitary Development Plan (UDP) 2002 defined tall buildings as those which “significantly exceed the height of their surroundings.” This definition has been contained in the City’s development plans since the 1989 Local Plan. The definition allows a qualitative decision to be made as to whether a building is regarded as tall according to its context and so is used in this report. This definition would include a number of listed historic buildings, such as churches, some of which are significantly taller than their surroundings.
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