Liverpool Maritime Mercantile City World Heritage Site. Supplementary Planning Document Evidential Report March

Transcription

1 Liverpool Maritime Mercantile City World Heritage Site Supplementary Planning Document Evidential Report March

2 Section 2 : Policy Review and Gap Analysis

3 Page 1 World Heritage Site & Bufffer Zone Buffer Zone WHS Character Areas Area 1: Pier Head Area 2: The Albert Dock Conservation Area Area 3: The Stanley Dock Conservation Area Area 4: Castle St/Dale St/Old Hall St/Commercial Centre Area 5: William Brown Cultural Quarter Area 6: Lower Duke St 1.1 Purpose of Evidential Report and Relationship to the SPD The Supplementary Planning Document (SPD) has been prepared to guide development, conservation and investment in the Liverpool Maritime Mercantile City World Heritage Site (WHS) and its Buffer Zone with the aim of protecting the WHS s Outstanding Universal Value whilst ensuring that it continues to play a leading role in the sustained regeneration of the City and the wider sub-region. This Evidential Report supplies supporting and background information to inform the development and future use of the SPD. The Evidential Report has been designed to compliment the SPD and should be read in conjunction with the SPD. 1.2 Scope and Structure of the Report The Evidential Report and SPD address the entirety of the WHS and its Buffer Zone. Some aspects of the analysis have started at a City-wide level to provide context for the WHS and Buffer Zone, the majority of the analysis is however focussed on the WHS. The report begins with a review of the Policy Context in which the SPD is situated (Section 2). This examines the strategic and local planning context and identifies, in broad terms, current gaps in planning policy relating to the WHS. Section 3 provides an overview of the WHS, documentation relevant to it and examines the current issues surrounding the Site, as identified by UNESCO. Sections 4 and 5 form the heart of the report. Section 4 contains a wide-ranging urban design / townscape analysis at the City-wide level of the WHS and its Buffer Zone, whilst Section 5 contains more detail about each of the six WHS Character Areas. Figure Boundary of WHS and Buffer Zone

4 Section 2 : Policy Review and Gap Analysis

5 Section 2: Policy Review & Gap Analysis Policy Review and Gap Analysis : Section 2

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7 Page 5 2 Policy Review And Gap Analysis 2.1 Introduction An SPD is a planning document that is used to elaborate on adopted or saved planning policy given in Development Plan Documents (DPDs). SPDs must be consistent with national planning policy and be in conformity with regional and local planning policy. SPDs do not form part of the statutory Development Plan. They do however have statutory status as part of an area s planning framework. Unlike DPDs, SPDs are not subject to independent examination. When adopted, the SPD will expand on saved policies contained in the existing Unitary Development Plan (adopted November 2002) (UDP). The SPD has also been informed by the City Council s emerging Core Strategy. Additionally, given the Site s inscription in 2004 onto the World Heritage List, the SPD reflects relevant international conventions and declarations. The section begins with a review of the international context before consideration is given to the national, regional and local planning policy context. The section concludes with an analysis of current planning policy gaps in relation to the WHS. 2.2 International Context UNESCO Convention Concerning the Protection of the World Cultural and Natural Heritage (1972) The Liverpool Maritime Mercantile City was inscribed onto the World Heritage List by the World Heritage Committee of the United Nations Educational Scientific and Cultural Organisation (UNESCO) in 2004 under the terms of the UNESCO Convention Concerning the Protection of the World Cultural and Natural Heritage (1972). This convention was ratified by the UK Government in Under the terms of the Convention the UK Government (the State Party) recognizes that the duty of ensuring the identification, protection, conservation, presentation and transmission to future generations of the cultural and natural heritage referred to in Articles 1 and 2 and situated on its territory, belongs primarily to that State. It will do all it can to this end, to the utmost of its own resources and, where appropriate, with any international assistance and co-operation, in particular, financial, artistic, scientific and technical, which it may be able to obtain. (extract from Article 4 of the Convention). The Operational Guidelines for the Implementation of the World Heritage Convention (2008) have been established by the World Heritage Committee to facilitate the implementation of the Convention by setting out the procedures for the inscription of properties on the World Heritage List and the List of World Heritage in Danger; the protection and conservation of World Heritage properties; the granting of international assistance under the World Heritage Fund; and the mobilization of national and international support in favour of the Convention. Paragraph 4 of the Operational Guidelines states that The cultural and natural heritage is among the priceless and irreplaceable assets, not only of each nation, but of humanity as a whole. The loss, through deterioration or disappearance, of any of these most prized assets constitutes an impoverishment of the heritage of all the peoples of the world. Parts of that heritage, because of their exceptional qualities, can be considered to be of Outstanding Universal Value and as such worthy of special protection against the dangers which increasingly threaten them. The guidelines state in paragraph 15 that States Parties to the World Heritage Convention, have the responsibility to: b. adopt general policies to give the heritage a function in the life of the community; c. integrate heritage protection into comprehensive planning programmes; d. establish services for the protection, conservation and presentation of the heritage; e. develop scientific and technical studies to identify actions that would counteract the dangers that threaten the heritage; f. take appropriate legal, scientific, technical, administrative and financial measures to protect the heritage; g. not take any deliberate measures that directly or indirectly damage their heritage or that of another State Party to the Convention; The guidelines go on to state that Protection and management of World Heritage properties should ensure that the Outstanding Universal Value, the conditions of integrity and / or authenticity at the time of inscription are maintained or enhanced in the future. (para. 96) and that All properties inscribed on the World Heritage List must have adequate long-term legislative, regulatory, institutional and/or traditional protection and management to ensure their safeguarding Similarly States Parties should demonstrate adequate protection at the national, regional, municipal, and/ or traditional level for the nominated property (paragraph 97). Importantly paragraph 98 states that Legislative and regulatory measures at national and local levels should assure the survival of the property and its protection against development and change that might negatively impact the Outstanding Universal Value, or the integrity and/or authenticity of the property. States Parties should also assure the full and effective implementation of such measures. Policy Review and Gap Analysis : Section 2

8 Page 6 It is clear from the above that the UK government is obliged under the terms of the Convention and the Operational Guidelines to ensure that the management of the Liverpool Maritime Mercantile City WHS protects its outstanding universal value, authenticity and integrity. The UK Government achieves this through the planning system and in partnership with Liverpool City Council (LCC) and other agencies. This obligation includes managing change in a defined Buffer Zone around the WHS. As set out in paragraphs 103 & 104 of the Operational Guidelines Wherever necessary for the proper conservation of the property, an adequate Buffer Zone should be provided a Buffer Zone is an area surrounding the nominated property which has complementary legal and/or customary restrictions placed on its use and development to give an added layer of protection to the property. This should include the immediate setting of the nominated property, important views and other areas or attributes that are functionally important as a support to the property and its protection. The area constituting the Buffer Zone should be determined in each case through appropriate mechanisms. Budapest Declaration on World Heritage (2002) In 2002 the World Heritage Committee adopted the Budapest Declaration on World Heritage. This stated, amongst other items, that: We, the members of the World Heritage Committee, recognize the universality of the 1972 UNESCO World Heritage Convention and the consequent need to ensure that it applies to heritage in all its diversity, as an instrument for the sustainable development of all societies through dialogue and mutual understanding. The properties on the World Heritage List are assets held in trust to pass on to generations of the future as their rightful inheritance. In view of the increasing challenges to our shared heritage, we will: a. seek to ensure an appropriate and equitable balance between conservation, sustainability and development, so that World Heritage properties can be protected through appropriate activities contributing to the social and economic development and the quality of life of our communities; b. seek to ensure the active involvement of our local communities at all levels in the identification, protection and management of our World Heritage properties;. This declaration acknowledges the importance of sustainable development and activity in World Heritage Sites in terms of ensuring their long-term protection, but retains a strong emphasis on conservation. Part of the Waterfront adjacent to Albert Dock Section 2 : Policy Review and Gap Analysis

9 Page 7 Declaration on the Conservation of Historic Urban Landscapes (2005) In response to ongoing issues relating to contemporary architectural interventions in and around World Heritage properties and based on the outcomes of the international conference on World Heritage and Contemporary Architecture - Managing the Historic Urban Landscape (Vienna 2005) the General Assembly of States Parties to the World Heritage Convention adopted, in 2005, the principles expressed by the Vienna Memorandum on the Conservation of Historic Urban Landscapes as follows: 1. Continuous changes in functional use, social structure, political context and economic development that manifest themselves in the form of structural interventions in the historic urban landscape may be acknowledged as part of the city s tradition, and require a vision of the city as a whole with forward-looking action on the part of decisionmakers, and a dialogue with the other actors and stakeholders involved. 2. The central challenge of contemporary architecture in the historic urban landscape is to respond to development dynamics in order to facilitate socio-economic changes and growth on the one hand, while simultaneously respecting the inherited townscape and its landscape setting on the other. Living historic cities, especially World Heritage cities, require a policy of city planning and management that takes conservation as a key point of departure. In this process, the historic city s authenticity and integrity, which are determined by various factors, must not be compromised. 3. A central concern of physical and functional interventions is to enhance quality of life and production efficiency by improving living, working and recreational conditions and adapting uses without compromising existing values derived from the character and significance of the historic urban fabric and form. This means not only improving technical standards, but also a rehabilitation and contemporary development of the historic environment based upon a proper inventory and assessment of its values, as well as the addition of high-quality cultural expressions. The Assembly went on to state that In view of the challenges to the preservation of the historic urban landscape, the General Assembly: a. encourages policy makers, urban planners, city developers, architects, preservationists, property owners, investors and concerned citizens to work together to preserve the urban heritage, while considering the modernization and development of society in a culturally and historically sensitive manner, strengthening identity and social cohesion; b. further encourages the enhancement of quality of life of historic cities by improving living, working and recreational conditions and adapting uses without compromising existing values derived from the character and significance of the historic urban fabric and form; c. emphasizes the need to properly contextualize contemporary architecture in the historic urban landscape and stresses the importance of undertaking studies to analyze the impacts on cultural, visual and other values when contemporary interventions are being planned; d. invites States Parties to the World Heritage Convention to integrate the principles expressed in the Vienna Memorandum into all relevant national policies; e. encourages States Parties to the World Heritage Convention to integrate the concept of historic urban landscape in their nominations and in the elaboration of management plans of properties nominated for inscription on the World Heritage List. The Declaration clearly indicates that a balance needs to be struck between enabling the economic and social development of a historic urban landscape and ensuring the conservation of its Outstanding Universal Value, authenticity and integrity. As with previous statements this declaration still retains a strong emphasis on conservation as the principle objective of WHS management in urban areas. The UNESCO and ICOMOS Mission of 2006 UNESCO actively monitors all World Heritage Sites to ensure they are being managed appropriately and that they are not being put in danger. In October 2006, UNESCO and the International Council on Monuments and Sites (ICOMOS) undertook a State of Conservation Mission to Liverpool on the instruction of UNESCO s World Heritage Committee. The Mission looked specifically at the conservation of the WHS in its widest context. Outcomes of the Mission that the outstanding universal value of the WHS was not in danger and that the management of development in the WHS should be improved by producing detailed planning and design guidance for the Site. This is discussed further in Section 3. Policy Review and Gap Analysis : Section 2

10 Page National Planning Guidance Government guidance is provided in the form of Planning Policy Guidance and Statements (PPGs and PPSs). These set out the Government s national policies on various aspects of land use and spatial planning. The Planning White Paper (May 2007) identifies the Government s proposed reforms to the planning system. Underpinning the existing direction of all national planning guidance is the need to create sustainable communities by utilising land as efficiently as possible. The planning system also promotes mixed use developments which are seen to minimise the need to travel and promote vibrant communities. Relevant planning guidance at the national level is provided in the following: PPS1 - Delivering Sustainable Development including climate change supplement PPS3 - Housing PPG4 - Industrial and Commercial Development and Small Firms (under review) PPS6 - Planning for Town Centres (under review) PPS11 - Regional Spatial Strategies PPS12 - Local Development Frameworks (under review) PPG13 - Transport PPG15 - Planning and the Historic Environment (as amended by Circulars 01/2001, 09/2005 and 01/2007) PPG 15 contains existing national policy in relation to World Heritage Sites. This states that: 2.22 No additional statutory controls follow from the inclusion of a site in the World Heritage list. Inclusion does, however, highlight the outstanding international importance of the site as a key material consideration to be taken into account by local planning authorities in determining planning and listed building consent applications, and by the Secretary of State in determining cases on appeal or following call-in Each local authority concerned, taking account of World Heritage Site designation and other relevant statutory designations, should formulate specific planning policies for protecting these sites and include these policies in their development plans. Policies should reflect the fact that all these sites have been designated for their Outstanding Universal Value, and they should place great weight on the need to protect them for the benefit of future generations as well as our own. Development proposals affecting these sites or their setting may be compatible with this objective, but should always be carefully scrutinised for their likely effect on the site or its setting in the longer term. Significant development proposals affecting World Heritage Sites will generally require formal environmental assessment, to ensure that their immediate impact and their implications for the longer term are fully evaluated The government is currently reviewing its policy in relation to the historic environment and in April 2008 it published a draft Heritage Protection Bill. This bill proposes a number of significant changes including the way in which applications to change listed buildings and scheduled monuments (proposed to be re-designated as Registered Historic Structures) are addressed by planning authorities. The bill was not included in the Queen s Speech in December 2008 and it is yet to come before parliament. In the summer of 2008, the UK Government issued a draft circular and guidance from English Heritage on the management of all of the UK s WHSs, to clarify their policy in relation to them. The issue of the approved circular and guidance is awaited. Nevertheless, it is important to make progress with this draft SPD and Evidential Report in advance of the approved circular and guidance in order to provide specific guidance for Liverpool as soon as possible and to satisfy the request of UNESCO s World Heritage Committee. The WHS also contains a very significant number of listed buildings and is encompassed by a number of conservation areas. These designations are addressed in detail by PPG15 and the Planning (Listed Buildings and Conservation Areas) Act PPG16 - Archaeology and Planning PPG20 - Coastal Planning PPS25 - Development and Flood Risk Section 2 : Policy Review and Gap Analysis

11 Page Regional Policy Regional Spatial Strategy The Regional Spatial Strategy (RSS) for North West England was published in September 2008 and is now part of the statutory development plan for every local authority in the North West including Liverpool City Council. The RSS contains 9 broad principles (DP1 to 9). Of these the following 8 are of particular relevance to the SPD and WHS: DP1 DP2 DP3 DP4 DP5 DP6 DP7 DP9 Spatial Principles Promote Sustainable Communities Promote Sustainable Economic Development Make the Best Use of Existing Resources and Infrastructure Manage Travel Demand, Reduce the Need to Travel, and Increase Accessibility Marry Opportunity and Need Promote Environmental Quality Reduce Emissions and Adapt to Climate Change Other key policies in the RSS include: RDF1 Spatial Priorities : This states In making provision for development, plans and strategies should accord with the following priorities, taking into account specific considerations set out in Sub Regional Chapters 10-13: - - the first priority for growth and development should be the regional centres of Manchester and Liverpool; RDF3 The Coast W1 Strengthening the Regional Economy : Which states Plans and strategies should promote opportunities for economic development (including the provision of appropriate sites and premises, infrastructure, and clustering where appropriate) which will strengthen the economy of the North West by: W2 W3 W4 W5 Locations for Regionally Significant Economic Development Supply of Employment Land Release of allocated Employment Land Retail Development W6 Tourism and the Visitor Economy : This states Plans, strategies, proposals and schemes should seek to deliver improved economic growth and quality of life, through sustainable tourism activity in the North West. This should be in line with the principles outlined in Policy W7 and focused on: W7 L3 L4 RT2 RT6 RT9 EM1 the regional centres of Manchester, Liverpool (European Capital of Culture 2008), and Preston, where tourism is a contributory component of the economy; promoting business tourism through the development of high quality conference and exhibition facilities, particularly of European significance in Manchester and national significance in Liverpool and Blackpool; opportunities related to Regional Parks, Hadrian s Wall and Liverpool World Heritage Sites. Tourism activity in these locations should be promoted within the context of the relevant Strategic Frameworks and Management Plans Principles for Tourism Development Existing Housing Stock and Housing Renewal Regional Housing Provision Managing Travel Demand Ports and Waterways Walking and Cycling Integrated Enhancement and Protection of the Region s Environmental Assets - - building on the region s strengths, particularly the three City Regions of Manchester, Liverpool and Central Lancashire. This should reflect the following growth opportunities: Liverpool City Region advanced manufacturing and engineering, financial and professional services, media, creative and cultural industries, biomedical, high value added knowledge based industries, ICT / digital, tourism, maritime and communications; Policy Review and Gap Analysis : Section 2

12 Page 10 EM1(a) Landscape : LCR2 The Regional Centre and Inner Areas of Liverpool City Region : which states This states that: Plans, strategies, proposals and schemes should identify, protect, maintain and enhance natural, historic and other distinctive features that contribute to the character of landscapes and places within the North West. They should be informed by and recognise the importance of: - the characteristics and setting of World Heritage Sites EM1(c) Historic Environment : This states that: Plans, strategies, proposals and schemes should protect, conserve and enhance the historic environment supporting conservation-led regeneration in areas rich in historic interest, and in particular exploiting the regeneration potential of: - The maritime heritage of the North West coast including docks and waterspaces, and coastal resorts and piers... The Regional Centre is the primary economic driver of the Liverpool City Region and plans and strategies should support and enhance this role by: focusing appropriate commercial, retail, leisure, cultural and tourism development within the Regional Centre developing its role as the primary retail centre, main employment location and primary economic driver of the City Region; outside areas of housing market renewal, providing for proposals and schemes for residential development in the Regional Centre where they are part of mixed use employment schemes that comprise a good range of housing sizes, types tenures and affordability and where they contribute to the vitality and viability of the Regional Centre; expanding the knowledge economy within the regional centre particularly by maximising the research and development roles of the Universities and delivering knowledge nuclei sites and the expansion of professional services. They should focus residential development in the Inner Areas adjacent to the Regional Centre in order to secure a significant increase in population and to support major regeneration activity. This will entail: - Victorian and Edwardian commercial developments in Liverpool and Manchester city centres - maintaining and enhancing the roles of Birkenhead and Bootle to provide community facilities, services and employment; EM3 EM5 EM15 EM16 EM17 Green Infrastructure Integrated Water Management A Framework for Sustainable Energy in the North West Energy Conservation and Efficiency Renewable Energy The emerging RSS also contains 5 policies relating to the Liverpool City Region (LCR1 5). Of these the following are of particular relevance to the WHS and SPD: LCR1 Liverpool City Region Priorities the development of the New Heartlands Housing Market Renewal Pathfinder to revitalise housing in Liverpool, Sefton, and Wirral through comprehensive area based regeneration schemes; supporting the development of the Mersey Ports and the maritime economy; sustaining investment in the Mersey Waterfront Regional Park; and providing for employment within the inner areas in accordance with W2 and W3 and LCR1. The emphasis will be on providing a good range of quality housing in the inner areas in terms of size, type, tenure and affordability with a high quality environment and accessible local facilities and employment opportunities. Section 2 : Policy Review and Gap Analysis

13 Page 11 North West Regional Economic Strategy (RES) (adopted 2006) This is the regional framework for economic development. It identifies five priority areas business skills and employment, regeneration, infrastructure and quality of life. These inform the development of regional and local plans. The RES promotes investment in Liverpool and in particular it s city centre. It also recognises that The Northwest s natural and built heritage assets also contribute enormously to the quality of life in the region. The Lake District, the World Heritage Sites, its historic centres and Regional Parks are prime examples. Developing the economic potential of these, while retaining their environmental quality, should be a major objective. It also includes the following action that directly relates to WHSs in the region Deliver sustainable growth through use of the region s heritage environments and assets especially World Heritage Sites, the cities of Chester, Lancaster and Carlisle and The Lake District 2.5 The Unitary Development Plan The adopted UDP (2002) provides detailed planning policy on economic regeneration, heritage, open environment, housing, shopping, transport, community facilities and environmental protection. It remains the current statutory development plan for the WHS and Buffer Zone. Strategic Policies The adopted UDP contains a number of key strategic policies including GEN3 which deals with Heritage and Design in the Built Environment. They illustrate the broad intentions of LCC regarding economic regeneration, environmental and social issues that underpin the detailed policies of the plan. GEN1 Economic Regeneration aims to reverse economic decline by identifying the city centre, waterfront, docks and hinterland as regeneration areas. GEN2 Open Environment aims to protect and enhance spaces and also to protect open spaces for recreational use. GEN3 Heritage and Design in the Built Environment - aims to protect and enhance the built environment of the City by: i. preserving and enhancing historically and architecturally important buildings and areas, and, where appropriate, improving them through the levering of available funds; ii. Encouraging a high standard of design and landscaping in developments; iii. Improving accessibility for people with mobility and sensory impairments; and iv. Creating an attractive environment which is safe and secure both day and night. The Beacon & St. Johns Shopping Centre Policy Review and Gap Analysis : Section 2

14 Figure Extract from UDP Proposals Plan Page 12 Section 2 : Policy Review and Gap Analysis

15 Page 13 East Waterloo Dock Economic Regeneration Policy E6 (Mixed Use Areas and Sites for Various Types of Development) covers most of the city centre apart from those areas covered by residential, office or industrial policies. The main thrust of the policy is to promote the regeneration of the city centre. In those areas not covered by Policy E6, alternative policies exist that promote other types of use such as industrial (E1), office development (E2), port development (E3), tourist attractions and facilities (E8) and leisure development (E9). These policies aim to provide certainty with regard to the type of development that the council will support in different parts of the City. Proposals for developments that conflict with these policies are unlikely to be considered appropriate. These allocations are in some areas undergoing review and reassessment as part of the preparation of planning frameworks e.g. in Islington and the Baltic Triangle. Heritage and Design in the Built Environment As the UDP was adopted prior to the designation of the WHS, it contains no reference to it. At present, the City Council relies on policies relating to conservation areas and listed buildings to control development and protect the WHS. The locations of these designations are shown on Figure 2.2, although it should be note that not all listed buildings may be shown due to an ongoing process of designation. Conservation Areas Policies HD1, HD3, HD4, HD5, HD7-HD13 inclusive, HD14, HD17 and HD18 address the protection and enhancement of conservation areas in accordance with the Planning (Listed Buildings and Conservation Areas) Act 1990 and PPG15. The main reason to designate an area as a conservation area is to preserve and enhance the character of the area as a whole and to safeguard its setting, public realm and the quality of the townscape. In conservation areas fewer works can be undertaken without planning permission and development proposals must respect the character and appearance of such areas. In particular Consent is required for most demolition of buildings; Consent is required for most works to fell or prune trees; Higher standards of design and materials for proposals will be expected, and Permitted development rights are more restricted. Conservation areas that encompass the WHS include: Albert Dock; Castle Street; Duke Street; William Brown Street; and Stanley Dock. Listed Buildings Policies HD1-HD5 inclusive relate to Listed Buildings. These cover the retention, repair, maintenance, demolition, alteration and setting of listed buildings. One of the main implications of a building being listed is that listed building consent is required for any works of demolition, alteration or extension which would affect its character as a building of special architectural or historic interest. Urban Design and the Public Realm General design requirements across the City are covered in UDP policy HD18. Other relevant policies Other relevant policies include E1-E3, E5-E9 (relating to economic regeneration), OE4-6, OE11-OE17, HD1-HD28 (relating to heritage and design); H1-H7 (housing), S-S3 and S16 (relating to retail provision), T1-T16 (transport) and EP1- EP2, EP12-EP16 (environmental protection). Rope Walks Policy Review and Gap Analysis : Section 2

16 Page 14 Listed Buildings and Conservation Areas Section 2 : Policy Review and Gap Analysis

17 Page Emerging Local Policy The Planning and Compulsory Purchase Act 2004 introduced the Local Development Framework (LDF) a portfolio of Local Development Documents comprising Development Plan Documents (DPDs), Supplementary Planning Documents (SPDs) and operational documents ; the AMR, statement of Community Involvement (SCI) and Local Development Scheme (LDS). DPDs will eventually replace the policies in the current Unitary Development Plan (UDP); with SPDs replacing existing supplementary planning guidance (SPG). The programme for preparing these documents is set out in the Local Development Scheme (LDS). Although the SPD is linked to saved UDP policies, it has been prepared to be in general conformity with the emerging principles of the Core Strategy Preferred Options Report (2008). The following sections of that document are of particular relevance: PO1 - Spatial Strategy; PO9 - Key Urban Design Principles for Liverpool; PO10 - Historic Areas; and PO15 - Strategy for Liverpool City Centre. The council is currently preparing the Core Strategy - this provides the overarching strategic planning framework for the City and is the key DPD and one which all other DPDs and SPDs must be consistent with. Under the Planning and Compulsory Purchase Act 2004, the adopted UDP policies were automatically saved for a three year period from the commencement of the Act in September The UDP therefore retained its development plan status. Transitional arrangements put in place to ensure consistency and no gaps in the coverage of development plan policies, meant that policies can be saved beyond thee years until they are replaced by LDF policies. Local planning authorities must be able to demonstrate to the Secretary of state that there is a need to retain these policies and that they meet the criteria set out in PPS12. Following the request in September 2007, LCC received the Secretary of State s approval to save many of the policies of the adopted UDP (2002). This SPD is therefore linked to the saved policies in the UDP. Once these policies are replaced by those in the DPDs of the LDF, then it will also be necessary to revise the SPD in order to establish links to the new policies. Liverpool One - Under construction in 2007/8 Policy Review and Gap Analysis : Section 2

18 Page Other Statutory Local Planning Documents 2.8 Other relevant documents In addition to the UDP they are a number of other statutory planning documents that relate wholly or partially to the WHS. These are briefly outlined to the right. Rope Walks SPD (adopted December 2005) The Rope Walks area lies to the north of the Baltic Triangle, encompassing the Duke St Conservation Area and part of the WHS. The SPD provides detailed planning advice including a movement and public realm framework, development opportunities and key views. Oldham Street SPD (Adopted 2006) This SPD covers an area of the city centre lying between the universities, Ropewalks, Lime Street Station and the main shopping district. The document lists key development sites and principles relating to land use, public realm, sustainability, landmarks, building heights, access, servicing and parking. Commercial Quarter SPD (Adopted 2006) This provides guidance for the creation of a new Commercial Quarter in the city centre, expanding on the existing Commercial District to the northeast. It is located within the Buffer Zone of the WHS. The SPD covers both St. Paul s Square and Pall Mall. The preferred option for Pall Mall divides the area into 3 smaller sub-areas and provides guidance on appropriate types of development in each of these areas. Liverpool Urban Design Guide SPG (Adopted 2003) This SPG supplements design guidance contained in the UDP and provides a clear design framework for all developments within and around the WHS and its Buffer Zone. In addition to the above there are a number of other relevant documents that relate in whole or part to the WHS. These are briefly outlined below. Liverpool Maritime Mercantile City WHS Management Plan (2003) The Management Plan is a non-statutory document. It was produced by LCC in partnership with a range of organisations including the NWDA, Liverpool Vision, English Heritage, National Museums Liverpool (NML), ICOMOS-UK, Department Culture, Media and Sport (DCMS), Merseytravel and Government Office North West (GONW). It therefore has the broad backing and support of all the major statutory and non-statutory bodies in Liverpool. Section 2.3 (see above) sets out the text of paragraphs 2.22 and 2.23 of PPG15 which relate to World Heritage Sites. These state that WHSs are a key material consideration in planning terms, but they do not explicitly place any weight on WHS Management Plans. They indicate that local authorities should use development plans as the primary statutory tool for protecting WHSs. However, paragraph 6.40 of Circular 01/7 (which replaces Paragraphs of PPG15) states that: Local planning authorities are also encouraged to work with owners and managers of World Heritage Sites in their areas, and with other agencies, to ensure that comprehensive management plans are in place These plans should: appraise the significance and condition of the site; ensure the physical conservation of the site to the highest standards; protect the site and its setting from damaging development; provide clear policies for tourism as it may affect the site. The third bullet point indicates that a Management Plan has a role in the planning process and this is interpreted as indicating that they should be afforded weight in determining applications within World Heritage Sites and their settings. As such the existing WHS Management Plan, although a non-statutory document, does carry material weight in terms of determining planning applications. It will therefore be important to ensure that the SPD reflects the broad thrust of guidance contained in the Management Plan. The Management Plan sets of the following Vision for the WHS: The Liverpool - Maritime Mercantile City World Heritage Site will be managed as an exemplary demonstration of sustainable development and heritage-led regeneration which aims to: Forge an identity for Liverpool as a thriving, historic city of international significance Make the Liverpool city centre a more attractive place for people to live, work, shop and visit Foster pride, awareness and understanding of Liverpool s cultural distinctiveness and diversity Promote Liverpool s heritage as a driver for sustainable development Engage the residents of Liverpool in helping to sustain its significances Integrate world heritage matters into educational programmes within Liverpool Section 2 : Policy Review and Gap Analysis

19 Buffer Zone WHS Character Areas Area 1: Pier Head Area 2: The Albert Dock Conservation Area Area 3: The Stanley Dock Conservation Area Area 4: Castle St/Dale St/Old Hall St/ Commercial Centre Area 5: William Brown Cultural Quarter Area 6: Lower Duke St Page 17 Policy Review and Gap Analysis : Section 2 Figure 2.3 Boundaries of existing masterplans and SPDs/SPGs

20 Page 18 Delivering this Vision will involve drawing together all the key players involved in Liverpool s World Heritage Site to allow them to work in partnership to unlock the heritage potential of the Site and maintain a high-quality historic environment. The mechanism for delivering this Vision will be the Management Plan, which is based on the principles of: Defining, conserving and protecting the Site s Outstanding Universal Value and significances Protecting, conserving and enhancing Liverpool s historic buildings and townscape Encouraging the continued use of historic buildings for their original purpose, wherever possible Promoting sustainable new development and re-use of Liverpool s historic buildings and water-spaces, where the original use is no longer viable Developing and maintaining a high-quality public realm Ensuring sustainable access to the Site for all Continuing Liverpool s distinctive cultural life and identity Fostering national and local partnerships and facilitating social inclusion Promoting knowledge of the site and its significances to a local and global audience. As a result, Liverpool s next generation will be endowed with a heritage legacy of global significance woven into the heart of a vibrant city. Liverpool will be universally recognised as a city of international standing for both its unique contribution to world history and the outstanding quality of life it affords residents and visitors. In support of this vision the Plan sets out 50 objectives with supporting actions relating to the following themes: Management of the Site Regeneration Built Heritage Conservation Townscape / Public Realm New Development Transportation Archaeology Understanding the Site Culture and intangible Heritage Education and Interpretation Visitor Management and Tourism Setting of the Site Natural Environment These include an action (1.3.2) to Prepare Supplementary Planning Guidance for the Site based on the Management Plan. The SPD responds to this requirement. Section 2 : Policy Review and Gap Analysis

21 Page Regeneration Context There are five Strategic Investment Areas (SIAs) across Liverpool. These were identified to provide a strategic focus for investment. Two of these relate to the WHS and its Buffer Zone: the City Centre and Atlantic Gateway. City Centre Strategic Regeneration Framework (July 2000) The Liverpool City Centre Regeneration Company, Liverpool Vision was established in Its City Centre Strategic Regeneration Framework (SRF) is the blueprint for focussed investment and action in the city centre. The vision encapsulated in the SRF is establishing Liverpool as a world class city for the 21st century, building upon its identified potential to become one of Europe s most liveable City Centres. Liverpool City Centre is divided into sub-areas, and the SRF provides an appraisal including strengths, weaknesses and opportunities for each. Its Vision indefinites 12 goals, which are directed through seven action areas and six supporting themes, which will: Concentrate related activity; Create a co-ordinated approach to project delivery; and Prioritise actions to generate the maximum regeneration and economic benefit to the City. The framework sets the context within which future proposals for the City should be evaluated against. The SRF has been endorsed by the City Council and its partners, NWDA and English Partnerships, with agreement to support it through the statutory planning and funding processes. Atlantic Gateway Subsequently, the Liverpool Land Development Company (LLDC) was established by Liverpool City Council to target investment and action in the four SIAs outside of the City Centre; this included the Atlnatic Gateway. The Atlantic Gateway stretches from Leeds Street in the south, northwards to encompass the Northshore Area. In 2008, Liverpool Vision, LLDC and Business Liverpool came together to form a new Economic Development Company called Liverpool Vision. This organisation is aimed at improving the economic performance of the City. It remains focussed on the five SIAs and the Atlantic Gateway in particular. Housing Market Renewal Initiative (HMRI) Housing Market Renewal Initiative is fifteen year programme through which significant sums of investment will be spent on Liverpool s inner city s housing stock and its community. Several of the HMRI s areas of change either overlap or are close to the Buffer Zone as follows: City Centre North (zone 1) Stanley Park (zone 2) City Centre South (zone 3) Wavertree (zone 4) These areas are significant as change is proposed for these areas which could impact on the setting of the WHS. Proposals are set out in more detail in the HMRI Liverpool Delivery Plan. Liverpool City Centre Movement Strategy (2003) The Liverpool City Centre Movement Strategy (CCMS) (Merseytravel, LCC and Liverpool Vision 2000) is a component of the Local Transport Plan (LTP) and SRF. It is consistent with the SRFs theme of Putting People First. The CCMS advocates a balanced approach involving a three-way iterative process, referred to as the Golden Triangle, of: Transport and Movement Urban Design and Public Realm; and Development and Regeneration. The CCMS sets the principles for vehicle and pedestrian movement throughout the city centre. The key elements are: Pedestrian priority areas; High quality public transport corridors linking existing transport hubs and new development opportunities, and; Revised traffic circulation and parking plans. For the purposes of developing and implementing the CCMS the city centre was divided into the following sub-areas: City Centre Movement Strategy East City Centre Movement Strategy North City Centre Movement Strategy South Liverpool City Centre Public Realm Implementation Framework (Amended 2005) A Public Realm Implementation Framework (PRIF) was produced in association with the CCMS. The purpose of this guidance is to set quality and performance parameters within which the movement and public realm schemes are to be developed. It defines the functional requirements of the city centre public realm in the form of a Framework and establishes quality benchmarks for design and construction in the form of a Performance Specification. LCC administers the document through development control and through its ongoing programme of public realm implementation. Policy Review and Gap Analysis : Section 2

22 Page not adopted) The unadopted and draft Tall Buildings SPD provides interim, non statutory guidance on tall buildings. The document covers a range of issues and gives guidance for the future planning of high rise buildings in Liverpool. Section 7 provides criteria based guidance on the type of sites that would be considered for tall buildings (Part A). Part B identifies three clusters where the development of tall buildings would generally be supported: Around the commercial district to promote a presence of a skyline from the northern approach; Around the southern approach around Sefton St, Parliament St and Chaloner Street Junction. Potential for a cluster of tall buildings to frame the City s skyline; and Lime Street station as an important location within the city centre. Part C provides the guidance for tall buildings on the fringes of the city centre including non-city centre waterfront locations. Parts D and E contain guidance regarding inner and outer suburbs and district centres and design detail. There is also an amended draft SPD for consultation, incorporating an Urban Design and Policy Analysis (2006), which has been used as one of the background documents for the production of this Evidential Report and SPD. As the Tall Buildings SPD has not been adopted, one of the objectives of the Liverpool WHS SPD is to provide appropriate guidance with regard to this issue. Kings Dock Masterplan (English Partnerships, 2004) A major mixed-use master plan, with outline planning permission, for one of the City s largest docks. The proposals include the now constructed Convention Centre / Arena. The plan outlines the development framework for conference centre, exhibition space, residential, hotel and other uses. Much of the development identified in the master plan has detailed planning permission or is in the process of being built. Baltic Triangle Planning Framework (2008) The framework identifies a mixed pattern of uses throughout the Baltic Triangle area, many of which are currently lower value activities such as vehicle repair showrooms. The development framework seeks to reintegrate the Baltic Triangle with the city centre and change some existing land use designations to mixed use. The framework includes 5 sub areas including the Hub, a new public open space, on St James St. Islington Planning Framework (2008) The Islington Planning Framework is being developed to guide the phased development of an area in the northeast of Liverpool city centre. The framework seeks to revitalize the area and redesignate some uses to mixed use. The framework encompasses four character areas, including a central green core of public realm. It is approved for development control purposes. Mann Island Development Brief (2005) In June 2005, LCC prepared a Planning and Development Brief for Mann Island. This provides the framework for the development of the site which includes the development of a new museum of Liverpool and 3 mixed-use buildings. All of these have detailed planning permission and are currently in the process of being built. Section 2 : Policy Review and Gap Analysis

23 Page Planning Policy Gap Analysis North Liverpool Area Action Plan The North Liverpool Area Action Plan (AAP) is an emerging document that will respond to the identified needs of the area with sites for development and proposals for design and layout, scale and type of land uses, traffic. Public consultation on the Preferred Options stage is scheduled to take place in Hall Lane Strategic Gateway - Urban Development Framework (September 2003) This establishes the basis on which the Hall Lane area should be redeveloped. It provides a series of principles within which development should take place in this area, at the eastern gateway to the city centre and alignment options for the completion of the inner ring road which will help direct traffic to the south of the city centre. Emerging Masterplans In addition to the documents mentioned above there are a number of emerging masterplans being prepared for 3 areas which may affect the WHS and Buffer Zone: University of Liverpool; Royal Liverpool University Hospital; and Moor Street Development Brief. Under LCC s current planning policy framework the WHS is not specifically considered in the UDP in view of the fact that it was adopted prior to the inscription of the WHS. The WHS is therefore currently predominately protected through a framework of policies relating to conservation areas and Listed Buildings. Given the international context and emerging national planning policy and legislation the WHS will require more focussed and specific attention in the emerging Local Development Framework, including in the Core Strategy. This is particularly important given the current development pressure in Liverpool and UNESCO s undoubted focus on the Site. The existing policy regime lacks specific guidance regarding views to and from the WHS although it does contain policies relating to the setting of the listed buildings and conservation areas that are situated within the WHS. There is no specific guidance relating to building heights across all of the WHS and Buffer Zone although existing policy relating to the conservation of the character of conservation areas, the setting of listed buildings and the setting of conservation areas does implicitly address the issue of building height; and some of the approved planning frameworks and SPDs, provide sub-area guidance on height within parts of the WHS and Buffer Zone.. Policy Review and Gap Analysis : Section 2

24 Liverpool Maritime Mercantile City World Heritage Site Section 2 : Policy Review and Gap Analysis

25 Section 3: The Liverpool Maritime Mercantile City World Heritage Site. Policy Review and Gap Analysis : Section 2

26

27 Page 25 3 The Liverpool Maritime Mercantile City World Heritage Site 3.1 Introduction This section provides and overview of the WHS, its historic development and its outstanding universal value. It also provides information on the reasons for the site s inscription and the issues that arose following the inscription of the site and the UNESCO-ICOMOS Mission of The World Heritage Site The WHS encompasses a substantial part of Liverpool s historic waterfront and docks from Stanley Dock in the north to Wapping Dock in the south, it covers the historic commercial centre of the City from the Pier Head to the Queensway Tunnel entrance and the Cultural Quarter around William Brown Street. It also encompasses the west end of Duke Street. The Site essentially consists of a series of interrelated historic areas which represent surviving aspects of its historic role as an internationally important commercial port. The World Heritage Site is articulated in six areas of distinct townscape character and surrounded by a large buffer zone: 1. Pier Head with the three main buildings: Royal Liver Building, Cunard Building, and Port of Liverpool Building, is the heart of the early 20th century Liverpool; 2. Albert Dock Conservation Area, to the south of the Pier Head, comprises a series of warehouses, docks and other facilities related to port activities from the 18th and 19th centuries; 3. Stanley Dock Conservation Area to the north of the Pier Head, comprises docks, dock boundary walls, several warehouses and other facilities related to port activities from the 19th century; 4. The historic centre around the Castle Street/Dale Street/Old Hall Street Commercial Area, extends to the east of the Pier Head. The area includes outstanding buildings from the 18th, 19th and early 20th centuries in various architectural styles and materials. The WHS is surrounded by a Buffer Zone (see Section 2.2). This was defined at the time of the Site s nomination and the ICOMOS Evaluation Report (2003) noted that The Buffer Zone is considered well defined and large enough to protect the nominated area. The Buffer Zone draws a line beyond the WHS boundary which includes historically significant features and major landmarks as well as areas, both visible from the WHS and those that are not currently visible from the WHS, where development needs to be sensitive to the need to preserve and enhance the character of the WHS. There are areas of the Buffer Zone where the historic character extends beyond the boundaries of the WHS. This is the case to the east of Character Area 5, where there are surviving streets of early 19th century housing and bridges associated with Lime Street Station; to the west, east and south east of Character Area 6, where the Rope Walks Conservation Area extends beyond the WHS boundaries and to the north and south of Character Area 4, where there are historic buildings adjacent to the WHS. The views to and from the ridge to the south east and east of the commercial centre also provide a link in character and places from which the significance of the whole can be appreciated. Along Waterloo Road and Regent Road, to the east of the dockyard wall, there are a number of shops, warehouses and factories that are contemporary with the 19th to mid 20th century use of the docks that respond to the character of the WHS and preserve its setting. Thus the railway line to the east of Character Area 3, dates to the mid 19th century and forms part of the Victorian landscape around Stanley Dock. There are also a number of mid 19th century docks that are outside the WHS. These have generally been structurally altered and have had their dockside warehouses and much of their historic dockyard surfaces removed. These docks form part of the historic dock landscape, incorporate some historic elements and their development and its quality need to take account of their location within the historic docks William Brown Street Cultural Quarter, to the east of the previous, includes St. George s Hall, St. John s Gardens, and other public buildings and monuments; Lower Duke Street, to the east of the Albert Dock, comprises old warehouses and merchants houses. Further analysis of these areas can be found in Sections 4 and 5 of this Report and in the Nomination Document (2003) and the Management Plan (2003). The Liverpool Maritime Mercantile City World Heritage Site : Section 3

28 Page 26 Character Area 1: Pier Head Character Area 4: Castle Street / Dale Street / Old Hall Street Commercial Area Character Area 2: Albert Dock And Wapping Dock Character Area 5: William Brown Street Cultural Quarter Character Area 3: Stanley Dock Conservation Area Character Area 6: Lower Duke Street Section 3 : The Liverpool Maritime Mercantile City World Heritage Site

29 Page 27 Example views of the Buffer Zone The Liverpool Maritime Mercantile City World Heritage Site : Section 3

30 Page Historic Development of the WHS The City was established by charter in the 13th century, and was established as a port by the 16th century. The location in the angle between the Mersey and the Pool of Liverpool provided much scope for the expansion of the docks and the City became an important hub in the transatlantic trade by the mid 17th century, with riverfront quays running along the line of Strand Street. The early layout of the City is clearly demonstrated in Figure 3.1 below. this shows the seven main histotic streets of Liverpool that still provide it s basic structure today; namely Castle Street, Old Hall Street, Chapel Street, Water Street, Dale Street and Tithebarn Street. liverpool s importance grew in the 18th and 19th centuries and this period saw the rapid expansion of the docks and the City. Central to this expansion was the building in 1715 of the Old Dock which was the first permanent commercial wet dock in the world. This was sited inland in the backfilled Pool of Liverpool (see Figure 3.2 and 3.1). This major development provided the impetus for the expansion of the City southwards and the development of the Rope Walks area. The 18th century also saw the expansion of the docks to the west of the Strand. Salthouse Dock, completed in 1754, for instance, catered for the exportation of salt, much of which went to Newfoundland as part of the Northern Triangular Run, where cod bought in Newfoundland was exchanged for sugar and coffee in the West Indies. This triangular trade was an alternative to the triangular slave trade, in which the Liverpool merchants also participated. George s Dock, formerly within Character Area 1, was also built in the 18th century ( ). Duke s Dock, built by the Duke of Bridgewater, south of Salthouse Dock, opened in 1773 (see Figure 3.2). Its warehouse stored goods that were carried on the Bridgewater Canal. Duke s Dock also handled ceramics brought from the Potteries by the Trent and Mersey Canal (built 1777). These canals and the Leeds and Liverpool Canal ( ) facilitated the development of Liverpool as the trading hub for the north-west of England. Figure 3.1 Kay s Plan of 1670 Section 3 : The Liverpool Maritime Mercantile City World Heritage Site

31 Page 29 Figure 3.3 Tallis & Co Map of Liverpool 1851 (Courtesy LRO) Figure 3.2 Eye s Map of Liverpool 1765 (Courtesy LRO) The Liverpool Maritime Mercantile City World Heritage Site : Section 3

32 Page 30 The City s historic development followed a distinctive pattern. The medieval and early postmedieval town was restricted to the angle between the two waterways. Some narrow streets (to the east of Castle Street and to the north of Dale Street, such as Leather Lane and Hackins Hey) retain their medieval widths and scale. Narrow medieval burgage plots also survive in the widths of later property frontages, their survival attesting to the pressure for development within the city centre resulting from economic prosperity. (see photographs) The historic centre encompassed the municipal, commercial and residential functions of the City. Thus, the early merchants lived in the city centre, usually with warehouses attached to their houses. As they prospered, and the City developed, the merchants generally moved out of the town and built commercial premises, of increasing grandeur, with attached or integrated warehousing in the city centre to replace the housing. The earlier pattern of development, of residences with attached warehousing, still partly survives within Character Area 6. Narrow burgage plots on Dale Street Leather Lane Figure 3.4 Example of Historic Narrow Streets and Burgage Plots Section 3 : The Liverpool Maritime Mercantile City World Heritage Site

33 Page 31 During the 18th century the population of Liverpool grew more than tenfold, with an increase of almost ninefold again in the 19th century. With the growth of the economy and the City came the need for civic buildings and commercial and financial institutions. The 18th century Town Hall, designed by Wood (renowned for his work in Bath, which revolutionised urban planning) is an example of the quality of civic architecture in the 18th and 19th centuries. Its development marked Castle Street and the formal vista that it provided of the Town Hall as a central feature of the commercial centre of the City (see Figure 3.5 and 3.6). The significant buildings that appeared along the streets to the east and west of Castle Street, such as Dale Street, Water Street James Street, Lord Street and the later Victoria Street (cut through in the 1860s), reinforced the primacy of Castle Street and the surrounding streets as the commercial core of the City. This major programme of alteration was designed to enhance the City s grandeur and status. In doing so the fabric of the earlier city was extensively altered and remodelled. As an example of this process, the widening of Castle Street (see Figure 3.7) and the creation of a grand new wide street terminated by two strongly classical buildings with paired domes (see Figure 3.6) required the large-scale removal and remodelling of earlier buildings and streets. The scale of this enterprise reflects broadly contemporary schemes in other great cities across the UK including Bath and Edinburgh. Major civic planning therefore has a long history in Liverpool and forms part of a now well established trend of public sector-led intervention across the city. Centre of City with defined vista between the Town Hall and Customs House c: 1911 to 1927 Missing Image Figure 3.5 Town Hall at the end of Castle Street (pre WWII) Figure 3.6 Town Hall 1829 Figure 3.7 Castle Street being widened in 1786 The Liverpool Maritime Mercantile City World Heritage Site : Section 3

34 Page 32 The embellishment of the City with civic buildings on a grand scale reached its apogee with the development in the mid and late 19th century of the formal arrangement of cultural buildings centred on St George s Hall, at the east end of the WHS (Character Area 5). This group, built in the classical style with formal spaces and monuments, included galleries, museums, hotels and educational institutions and was augmented by a theatre in the early 20th century. The location of this group, in front of Lime Street Station provided a fittingly grand gateway into what had become the second city of the British Empire. The importance of this gateway area was emphasised by the view across the lower ground of the former Pool, into the roofscape of the commercial centre from the front of Lime Street Station. The increasingly grand and varied domes, cupolas and gables that appeared within the commercial centre, created an increasingly varied roofscape that enhanced this view and the role of Lime Street as a gateway. The views towards the commercial centre from the opposing slope of Character Area 5 and from the river, by which much of the traffic approached, were correspondingly enhanced. The use of a wide repertoire of classical styles and motifs in the buildings of the commercial centre gave the City a predominantly classical flavour, with varied and often innovative embellishments. Beyond the commercial centre residential area were laid out in the 19th century, with the focus of architectural embellishment being in the city centre, although the importance of the City saw increasingly varied architecture gradually appear, even in these areas. William Brown Street Area c: 1899 to 1908 (2nd Edition OS) St Georges Hall View from museum steps (courtesy E.Chambre Hardman Trust William Brown Street

35 Page 33 The building of increasingly monumental and architecturally accomplished commercial institutions throughout the centre of the city culminated in the construction of the iconic early 20th century buildings of the Pier Head Complex including the Royal Liver Building, Cunard Building and Port of Liverpool Building. These buildings broke forward from the heart of the city and created the commercial centrepiece within the wider dockland landscape. They all show classical influences, are symmetrical but innovative, being of a scale that shows the potential of steel framed and reinforced concrete construction, already established on the other side of the Atlantic. Thus the buildings represent a stylistic gateway to the transatlantic route, in which they played an important role. They also found the backdrop for the Liverpool s main linking stage which was the departure point for so many emigrants. The landing stage at the Pier Head, designed to be accessible at high and low tide, was added in A replacement of the original structure, by William Cubitt, was opened in 1845 and a landing stage in this location remains a significant feature of the Pier Head. Pier Head before and after development (1st Ed. OS and 3rd Ed. OS Histioric view of Pier Head and Landing Stage Pier Head Complex in the late 20th Century Liverpool Landing Stage 1937 NML The Liverpool Maritime Mercantile City World Heritage Site : Section 3

36 Page 34 Between the late 18th century and the mid 19th century the docks were extensively developed and eventually stretched seven miles along the river front. The growth of the docks facilitated the industrial revolution and ensured its success, Liverpool docks being the port through which raw materials, such as cotton were imported and through which manufactured goods were exported. Canning Dock was opened in 1832, with Canning Half tide Dock being added in the 1840s. Other major docks added in the early 19th century include Princes Dock (1821), Waterloo Dock (by Jesse Hartley, 1834, which was later expanded), and Clarence Dock (1830, also designed by Hartley). The 1840s saw the largest dock building programme, with the construction of Hartley s Albert Dock (a major feature of the WHS) and the large scale extension of the docks northwards, with the construction of Salisbury Dock, Collingwood Dock, Stanley Dock, Nelson Dock, Bramley- Moore Dock, Wellington Dock and Sandon Dock. Wapping Basin and Wapping Dock, at the south end of the WHS, were added in the 1850s and were also built to Hartley s designs. Plan of Liverpool Docks c:1958 (MDHC) View North along docks with former overhead railway on right Salthouse Dock 1897 courtesy LCC Poster for the former Overhead Railway Section 3 : The Liverpool Maritime Mercantile City World Heritage Site

37 Page 35 The brick warehouses associated with this phase of dock building are monumental, have characteristic fenestration and are supported on large cast iron columns that face onto the docks. The warehouses, dock walls and other buildings are built in brick and granite with some use of sandstone decoration. The need for security meant that there was a dock wall on the eastern side of the dockyards, which remains a significant feature within the WHS. There is a high degree of coherance in the architecture of the docks and their surviving warehouses and in the consistency of materials used in their construction. This reflects the fact that these docks were developed in a period of a little over 20 years and that Hartley was involved in the design of many of them. Albert Dock Stanley Dock Waterloo Dock The Liverpool Maritime Mercantile City World Heritage Site : Section 3

38 Bank of England Castle Street White Star Building, James Street As Liverpool became increasingly central to the national economy and it established itself as the second city of an expanding empire during the 18th and 19th centuries. The wealth and profile of the City attracted the most renowned architects of the day, such as Charles Cockerell (who worked on St George s Hall, built the Bank of England building in Castle Street, insurance offices in Dale Street and the former Bank Chambers in Cook Street), Alfred Waterhouse (who built Lime Street Chambers) and Richard Norman Shaw (responsible for the White Star building, on James Street and the National Westminster Bank, on Castle Street). Lime Street Chambers (former North Western Hotel) National Westminster Bank Castle Street Tower Building, Water Street

39 Page 37 The entrepreneurial spirit of the City encouraged innovation in architecture and design, with the result that the surviving historic buildings often display virtuosity and are in some cases ahead of their time. Examples of unusual and innovative buildings include Tower Buildings on Water Street an early 20th century white terracotta clad steel framed building, by Aubrey Thomas (designer of the Royal Liver Buildings). The work of Peter Ellis is also ahead of its time. His Oriel Chambers, built in 1864, although nominally gothic, has large areas of glazing separated by slender stone mullions that rise to the height of the building. This building was very much a precursor of modernism. Another Ellis building at 16 Cook Street also has nominally gothic influences and a lightweight construction with large windows. Its three bay frontage is reminiscent of the design of the City s warehouses. It is thought that this building influenced John Root s work in Chicago. Its style also appears to look forward to Art Nouveau. Fredrick Fraser s 1906 City Building façade of cast iron and glass, with its curved corner, also looks forward to later modernist architecture. Another precursor of modernism is the Art Nouveau influenced Cotton Exchange on Old Hall Street, with facades of cast iron and glass. J Francis Doyle and Norman Shaw s collaboratively built former Royal Insurance Building, on the corner of Dale Street and North John Street represented an early example of a steel framed building. Oriel Chambers, Water Street 16 Cook Street Royal Insurance Building, Dale Street

40 Page 38 Beyond the city centre buildings appeared that echoed the grandeur and innovation of the commercial centre. Thus the two cathedrals were built on the ridge to the east and south east of the WHS, buildings that accord with the City s international importance. The need for warehousing to service the docks along their length led to the gradual expansion of warehousing inland to the south of Character Area 6, such as the concentration of buildings in the Baltic Triangle. These and other buildings on the ridge and slopes to the south east of the former Pool have created significant views to the south east and east out of the commercial centre to complement those that look into the centre. The prominent buildings on the ridge also complement views from the river across the City and across the WHS. The City and Docks suffered intense bombing during the Second World War. After the war the docks were repaired and improved. The docks and the commercial centre continued to play a vital role in British commerce throughout the 1950s with the importation of raw materials, such as iron ore for the steel industry, and food, and the export of manufactured goods. The prosperity continued until the early 1970s, with considerable building, especially in the commercial area, to the south and south east of Character Area 4. This redevelopment has created breaks in the historic character of the city centre, which have defined the limits of the WHS. The Metropolitan Cathedral represents the optimism and innovative spirit of this period. The early 20th century saw the continued expansion of the docks, with the construction of the massive tobacco warehouse in Stanley Dock, dated 1901, as well as the redevelopment of the Pier Head. Despite the economic decline that followed the First World War, major building projects continued in the City and a new Dock, Gladstone Dock came into use in The number of Art Deco influenced buildings in the WHS attests to the City s continued prosperity. Transport infrastructure also improved, with the opening of the Queensway Tunnel in Bomb Damage in WWII Queensway Tunnel Section 3 : The Liverpool Maritime Mercantile City World Heritage Site

41 Page 39 The end of the empire, and accompanying changes in Britain s role in the world economy, the introduction of larger ships and economic decline led to a decline of the docks and Liverpool s economy during the 1970s and 1980s. The larger ships used the northern docks, rather than the smaller south docks, which were closed in The decline in Lancashire s traditional role as a major world manufacturing centre also contributed to the decline, as the flow of raw materials in and manufactured goods out of Liverpool s docks diminished. The closure and the fact that the south docks were allowed to be subject to the tides meant that they silted up. From 1981 to 1998 the Merseyside Development Corporation worked to find new economically viable uses for the docks and to solve the silt problem. As part of this process Princes Dock, which closed in 1981, was partly backfilled in the late 1990s as part of a major regeneration project that is still underway. In the 1990s and early 21st century there has been a reversal of fortunes in Liverpool s economy, with accompanying regeneration projects and commercial, tourist and residential development. In recent years there has been considerable development to the north of the commercial centre and at the time of writing the area north-west of Hanover Street is subject to major development and regeneration. Within the WHS there are still a few sites in need of regeneration that are scars on the character of the WHS. Recent developments that have been part of this regeneration in and around the WHS include the landmark Beetham Tower and Unity Buiding on the north side of the commercial centre, and at Princes Dock. There are major regenerative developments underway on Paradise Street, on Mann Island, and conservation-led regeneration in the Baltic Triangle. There is also work within Character Area 6, around Duke Street and there are also proposals for redevelopment around Lime Street Station. Age of surviving Historic Buildings The WHS, and to some extent some adjoining parts of the City, retain a high proportion of historic buildings from all periods after the early 18th century. The building age mapping presented here is based on published sources and an external visual appraisal of the buildings. In some cases the superficial appearance of the buildings does not provide an indication of date, as buildings are often refaced and have hidden elements and rear extensions that cannot be seen from the street. Buildings are also often multi-phased in their development, such as the Church of Our Lady and St Nicholas at the west end of Chapel Street which has medieval elements and an early 19th century tower. Other than the tower, the church was substantially rebuilt after being bombed in WWII. It is shown on the figure as early 19th century as this is the age of its earliest surviving substantial element. The age of the built fabric has been identified adjacent to the edge of the WHS where the relationship of the edge to the surrounding townscape contributes to the character of the WHS, contrasts with it, or has a significant relationship with it. Where there is a clear break in character the age of the buildings beyond the WHS boundary are often not identified. The Liverpool Maritime Mercantile City World Heritage Site : Section 3

42 Page 40 Section 3 : The Liverpool Maritime Mercantile City World Heritage Site

43 Page Inscription onto UNESCO s World Heritage List The World Heritage Site was inscribed by UNESCO in 2004 under the following criteria and for the following reasons: Criterion (ii) to exhibit an important interchange of human values, over a span of time or within a cultural area of the world, on developments in architecture or technology, monumental arts, townplanning or landscape design; Liverpool was a major centre generating innovative technologies and methods in dock construction and port management in the 18th and 19th centuries. It thus contributed to the building up of the international mercantile systems throughout the British Commonwealth. Criterion (iii) to bear a unique or at least exceptional testimony to a cultural tradition or to a civilization which is living or which has disappeared The City and the port of Liverpool are an exceptional testimony to the development of maritime mercantile culture in the 18th and 19th centuries, contributing to the building up of the British Empire. It was a centre for the slave trade, until its abolition in 1807, and to emigration from northern Europe to America. Criterion (iv) to be an outstanding example of a type of building, architectural or technological ensemble or landscape which illustrates (a) significant stage(s) in human history Liverpool is an outstanding example of a world mercantile port city, which represents the early development of global trading and cultural connections throughout the British Empire. 3.4 The Site s Outstanding Universal Value The ICOMOS evaluation report (2003) set out the following General Statement of Outstanding Universal Value: The proposed nomination of Liverpool consists of selected areas in the historic harbour and the centre of the city, defined as the supreme example of a commercial port at the time of Britain s greatest global influence. Liverpool grew into a major commercial port in the 18th century, when it was also crucial for the organisation of slave trade. In the 19th century, Liverpool became a world mercantile centre and had major significance on world trade being one of the principal ports of the British Commonwealth. Its innovative techniques and types of construction of harbour facilities became an important reference worldwide. Liverpool also became instrumental in the development of industrial water canals on the British Isles in the 18th century, as well as of railway transport in the 19th century. All through this period, and particularly in the 19th and early 20th centuries, Liverpool gave attention to the quality of its cultural activities and architecture. To this stand as testimony its outstanding public buildings, such as St. George s Hall and the many museums. Even in the 20th century, Liverpool has given a lasting contribution, which is remembered in the success of the Beatles, who originated from this city. More recently, English Heritage and Liverpool City Council have prepared a Statement of Outstanding Universal Value. Whilst this statement remains to be approved by UNESCO it does provide a clear overview of what is considered to be of Outstanding Universal Value and consequently what merits preservation and enhancement under the terms of the 1972 Convention. The following Statement of Significance and assessment of Authenticity and Integrity is derived from the Statement of Outstanding Universal Value. The Liverpool Maritime Mercantile City World Heritage Site : Section 3

44 Page 42 Liverpool Maritime Mercantile City World Heritage Site consists of selected areas in the historic docklands and the centre of the city, defined as the supreme example of a commercial port at the time of Britain s greatest global influence. Liverpool grew into a major commercial port in the 18th century, when it was also crucial for the organisation of the trans-atlantic slave trade. In the 19th century, Liverpool became a world mercantile centre for general cargo and mass European emigration to the New World. It had major significance on world trade being one of the principal ports of the British Commonwealth. Its innovative techniques and types of construction of dock facilities became an important reference worldwide. Liverpool also became instrumental in the development of industrial water canals on the British Isles in the 18th century, as well as of railway transport in the 19th century. The surviving buildings, monuments and technological structures bear witness to Liverpool s role as an innovative port city. All through this period, and particularly in the 19th and early 20th centuries, Liverpool gave attention to the quality and innovation of its architecture and to cultural activities. To this stand as testimony its outstanding collections of commercial offices, warehouses, banks, public buildings, such as St. George s Hall, museums and monuments. Even in the 20th century, Liverpool has given a lasting contribution to the world s culture, as it is known world-wide for the success of The Beatles, who originated from this city. Integrity and Authenticity The existing urban fabric of the World Heritage Site dates from the 18th to the 20th centuries, with an emphasis on the 19th and early 20th centuries. The city has suffered from the Second World War destruction as well as from the long economic decline after the war. The historic evolution of the Liverpool street pattern is still readable representing the different periods. There have been some alterations after the war destruction in In the protected area, the main historic buildings have retained their authenticity to a high degree. There are a small number of areas, especially in the buffer zone, where the damages from the war period still exist. There are also new constructions from the second half of the 20th century, of which not all are to high standard. The main docks survive as water-filled basins within the protected area and the buffer zone. They are not any more operational, though one dock area is operated by Merseyside Maritime Museum, and another is used for ship-repairs. The warehouses are being converted to new uses. Here attention is given to keep changes to the minimum. Judging in the overall, though, the protected area has well retained its historic authenticity and integrity. In fact, the ICOMOS expert mission was complimentary, emphasising that not only the buildings were in good state but every effort has been made to preserve the minor detailing of architecture such as the original pulleys of the docks and various other cast iron features. 3.5 Post-Inscription Issues & the UNESCO-ICOMOS Mission of 2006 At the time of its inscription the World Heritage Committee at UNESCO made the following recommendations / requests which reflected its concerns relating to proposed and future developments: 2. Recommends that the authorities pay particular attention to monitoring the processes of change in the World Heritage areas and their surroundings in order not to adversely impact the property. This concerns especially changes in use and new construction. 3. Requests that the State Party, in applying its planning procedures rigorously, assure that: a. the height of any new construction in the World Heritage property not exceed that of structures in the immediate surroundings, b. the character of any new construction respect the qualities of the historic area, c. new construction at the Pier Head should not dominate, but complement the historic Pier Head buildings; These concerns continued and resulted in the Committee requesting a joint UNESCO-ICOMOS Reactive Monitoring Mission in This was duly undertaken in October The report arising from the Mission was generally positive regarding the state of conservation of the WHS; indeed it stated that The overall state of conservation of the World Heritage Site is good as the docks and port areas, as well as the city s listed historic buildings, are either restored and wellmaintained, or part of a programme of rehabilitation, all carefully planned, documented and executed with great respect for the authenticity of the design and materialization. The report did not recommend that the WHS be placed on the World Heritage in Danger List and made the following assessment in relation to current and potential threats: Following Operational Guidelines paragraph 179 on ascertained danger to cultural properties, the mission assessed that there was: i. No serious deterioration of materials many projects for restoration and conversion of historic buildings respect authenticity of form, lay-out and fabric. ii. No serious deterioration of structure and/or ornamental features urban morphology of docks, harbour and related structures and historic buildings remains intact. iii.no serious deterioration of architectural or town planning coherence on the contrary, several development projects such as Paradise Project, Lime Street Station and Ropewalks are in fact contributing to the city s coherence as they restore earlier fragmentation that occurred during the 1940s, 50s and 60s. iv. No serious deterioration of urban space the development projects are designed to improve functionality or quality of urban space; in Ropewalks for instance new open spaces were created to improve poor urban conditions. Section 3 : The Liverpool Maritime Mercantile City World Heritage Site

45 Page 43 v. No significant loss of historical authenticity the city s physical evidence and memory of it s great past remain prominent and visible, and in some cases will be enhanced. vi. No important loss of cultural significance the historic environment is used to strengthen cultural significance by introducing projects with a clear focus on culture and cultural activities that will attract visitors both from its residential population, as well as tourists. Furthermore, in assessing the potential danger in particular from threatening effects of town planning ( 179 b. iv) the mission noted that the city appears today as the result of a long process of change which has profoundly modified its visual, as well as functional integrity through time; twentieth-century war, economic decline and some ill-planned modern era additions have altered its original coherence; renovation, rehabilitation and redevelopment initiatives, in progress or proposed, essentially aim at carefully re-establishing the city s coherence through the enhancement of its numerous remaining historical features, the infill of vacant lots and the redesign of the public realm, which is modernized and sometimes extended to accommodate contemporary needs. They did however indicate that there was room for improvement in the planning regime associated with the Site and called for the introduction of a stricter regime of planning control based on a thorough analysis and description of townscape characteristics and sense of place. They also recommended that the Ropewalks SPD (2005) be used as a model for the development of such a regime. In relation to other developments away from the Museum of Liverpool project and particularly in relation to hi-rise buildings, the report noted that Concerning the other development proposals in the overall Scheme, being Princess Dock, Lime Street Gateway, Ropewalks and Paradise Project, the mission is of the opinion that the site analyses were always comprehensive and sensitive to the site s requirements, economically, functionally and culturally. Aside from these few development nodal points, the mission advises the City Council to cluster future tall buildings in the current Central Business District, and not to disperse them all over the city. By any means, respect for the silhouette and skyline of the inherited townscape remains of the utmost importance and the mission strongly supports the position of the City Council that no buildings should exceed in height the shoulders of the Anglican Cathedral in the backdrop. The mission also recommends that no new building inside the World Heritage Site and its Buffer Zone in the area that stretches from Mersey River to Strand Street be allowed to exceed in height that of the new Museum of Liverpool, in order for the Three Graces to remain the main focal point of the urban landscape along the waterfront One of the issues that consistently emerged within the report related to the nature of the design and quality of new development in and around the WHS. The report strongly promoted the concept of harmonious integration, however as noted in the report The concepts of high-quality architecture and harmonious integration are not well-defined and, the mission agreed, not so easy to define. The issues associated with the concept did seem however to fall under two broad categories. Firstly, the issue of large-scale and / or tall developments which are more likely by their very nature not to harmonise with their surroundings. In this area the Mission, whilst recognising the need for such developments particularly where they addressed major gaps in the urban fabric (e.g. Liverpool One), clearly recommended that very strict controls should be implemented. As outlined above they advised the City Council to cluster tall buildings in the current Central Business District and to ensure that tall buildings did not intrude into the visual backdrop of the Pier Head complex and that the topographic bowl on which the two Cathedrals sit was respected by proposals. In essence, issues relating to large scale / tall buildings are primarily associated with location and it is clear that recommendations for siting such structures will need to be contained in the SPD if it is to address the UNESCO / ICOMOS concerns. The Liverpool Maritime Mercantile City World Heritage Site : Section 3

46 Page 44 Example of building styles, heights and forms of the WHS and Buffer Zone The second area relates to the relationship between new developments and their more immediate locales. Here, issues of building heights are still relevant but other issues relating to urban grain, density, townscape character, public realm and materials also need serious consideration in the context of harmonious integration. As noted by the Mission harmonious integration does not necessarily mean pastiche or copy, but rather it is seemingly a development response to place that seeks to draw on established patterns of architecture and townscape. As the report states Developers and architects are allowed to promote high-tech or iconic designs for buildings, which do not always integrate or complement, or cannot always be considered compatible to, the traditional architecture that characterizes the inherited townscape. It is clear however that the WHS does not have a singular townscape character nor one traditional form of architecture. Rather the different areas of the WHS have different characters that have a degree of internal harmony but contrast with surrounding adjacent areas. This difference is explored further in Sections 4 and 5. Given the variety of architectural and townscape forms in the Site achieving harmonious integration will require detailed responses to local circumstances. This can be best achieved through the development of Design / Development Briefs for individual sites within the context of broad design policy developed from an understanding of the Site s overall character and form. The role of the SPD and Evidential Report is therefore to set the broad parameters and policy guidance for design responses to local situations. The SPD will therefore need to provide broad guidance for new development within and around the WHS as well as more specific guidance for development in different areas of the WHS and Buffer Zone. This guidance will need to cover a range of areas including amongst others, building heights, urban grain, public realm, materials etc. A final level of detailed guidance will then need to be achieved at the Design / Development Brief level. Section 2 : Policy Review and Gap Analysis

47 Page Key Issues for the SPD Overall, although the Mission s report was broadly positive it did make a series of recommendations which need to be taken into account during the development of the SPD, these are outlined below: The projects of the Museum of Liverpool and of Mann Island generated considerable opposition from committed groups of citizens, which demonstrated that this dossier was seen by many as being very significant. The City Council should further improve its information, consultation and participation processes, involve local communities and make public the results of hearings and the arguments in support of new designs in order to allow a more informed decision making and diminish polarization. The City Council should improve its methods for the management of new developments inside the World Heritage site and its Buffer Zone, particularly as regards the introduction of a stricter regime of planning control based on a thorough analysis and description of townscape characteristics (including building density, urban pattern, materials) and sense of place. In this respect, the City Council should clearly establish maximum allowed heights, so new buildings inside the World Heritage Site and its Buffer Zone along the waterfront, between Mersey River and Strand Street, would not be allowed to exceed that of the Museum of Liverpool, and for buildings in the backdrop of the Three Graces that of the shoulders of the Anglican Cathedral. The City Council has committed itself to rapidly producing a set of Supplementary Planning Documents covering these aspects; the mission suggests that the Council should be required to inform the Committee of the timetable for the completion and implementation of the works, and that the Council should indicate how the Committee will be consulted to express its view on the issue. The City Council should take measures to raise the population s awareness of the motives which formed the basis for the city s inclusion in the World Heritage List, and in particular to ensure that property developers and building professionals who intervene on the site are aware of these motives. The Outstanding Universal Value, and its translation into physical characteristics supported by historic townscape analysis, should be statutorily indicated in all calls for proposals, architectural competitions and professional contracts issued or awarded by the city or its partners which relate to projects situated inside the site or in its Buffer Zone. It should be made compulsory for the developers and professionals concerned to take this value into account when drawing up their proposals. It is clear that the SPD will need to address the UNESCO-ICOMOS issues in the context of the UK planning system and its traditions of guidance and negotiation. It will however need to contain a certain level of prescription, within the context of the existing policy framework (see Section 2) to ensure that the interrelated townscape and architectural heritage of the WHS (which underpins its outstanding universal value) is conserved and respected by future development. This guidance will need to be targeted on particular issues and at an appropriate level of detail. Given the size of the WHS and its Buffer Zone it is not feasible to provide detailed guidance for each and every development site within the SPD area; instead general guidance will need to be included for the entire area supported by more detailed guidance for particular locales (i.e. character areas) in the WHS / Buffer Zone. In terms of responding to the UNESCO-ICOMOS Mission s concerns the SPD will need to address (at these differing levels) the following areas: General guidance for development in the WHS and its Buffer Zone to reflect the concept of Harmonious Integration Location and form of Tall Buildings Visual setting of the World Heritage Site Need for more detailed Design / Development Briefs for sites within the WHS / Buffer Zone New building heights in relation to their immediate environs (within the WHS) Provision of broad ranging supporting townscape analysis and policy guidance to provide the context for new development and to reduce the numbers of wholly inappropriate schemes that come forward (see Sections 4 and 5 of the Evidential Report) Clear guidance is required to prepare detailed analysis of the townscape character of the environs of item development and in the context of the wider WHS. The Liverpool Maritime Mercantile City World Heritage Site : Section 3

48 Page Liverpool 46 Maritime Mercantile City World Heritage Site Section 4 : Urban Design & Townscape Analysis

49 Page 47 Urban Design & Townscape Analysis : Overview. Section 4: Urban Design & Townscape Analysis : Section 4

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51 Page 49 4 Urban Design & Townscape Analysis: Overview 4.1 Introduction This section of the evidential report looks in more detail at the overall urban structure of the World Heritage Site and Buffer Zone, and considers those factors that have had an influence on its character. It focuses on strategic issues and factors that are relevant to the whole WHS and not specific to individual character areas - these are explored in more detail in Section 5. In particular it considers the relationship of the different character areas to each other, their relationship to the river, and the linkages, both visual and physical, with the wider city. 4.2 Understanding Townscape In the introduction to his seminal book The Concise Townscape, Gordon Cullen speaks of the art of relationship rather than the art of architecture. His purpose is to highlight that is in fact the relationship between all of the elements that go to make up the built environment: buildings, trees, nature, water, traffic etc., and the way they are weaved together that actually delivers the excitement and drama of the City. Nowhere is this more accurate than within the WHS. The basis of the Mercantile City is trade and wealth; however the most interesting aspect of the physical manifestation of this is in the buildings and spaces, and the legacy that it has left behind. It is in fact the way in which commercial and industrial buildings were interspersed with cultural and residential buildings and the associated spaces that were delivered. This balance between trade and culture underpins the OUV of the Mercantile City WHS, and emphasises that it is the relationship between elements, as much as the individual elements themselves, that make Liverpool unique. Culllen points to three aspects of townscape that are the most important to how we experience and understand our surroundings. Firstly Vision. For the majority of people it is almost entirely through vision that our environment is comprehended. We look around us and produce mental maps of an area (for more information on mental maps please see section 4.6) based upon what we can see. These maps are largely shaped by the topography, buildings, and spaces of the city and while not necessarily being geographically accurate they allow us to position elements of the city in context with one another in our own mind. This process creates an alternate reality of the city that is then refined as we actually experience the place and this is our second aspect of townscape. The idea of Place is concerned with our physical interaction with the environment, and in particular with our reactions to the position of our body within its environment. Some small spaces would be described as intimate while others may call them claustrophobic. The balance of scale of both buildings and spaces is an important defining characteristic of the WHS, and in particular helps to define the different character areas for example the tighter more intimate scale of the Ropewalks over the larger scale of the Albert Docks. In general, the scale of the spaces reflects the scale of the buildings that enclose them. The third aspect is Content. This focuses on the actual fabric of the city materials, colour, texture, scale, details, style, character and uniqueness of buildings and spaces. The purpose is to develop a commonly accepted framework that offers guidance to preserve and enhance the OUV of the World Heritage Site townscape, but with sufficient flexibility for it not to become an urban museum - a set piece locked in one historical period. Liverpool has a history of reinvention and change, and there must be an ability to manipulate the nuances of place in a way that allows for the re-use and re-activation of defunct land uses and buildings, without compromising the WHS. Urban Design & Townscape Analysis : Section 4

52 Page Topography While the majority of the built environment we see today is a legacy of the maritime heritage of the City, the early development of Liverpool, and indeed its very establishment as a port, was driven by its topography. The landform created a natural pool that became the earliest incarnation of the port, and then through both reclamation and organic growth, the city began to grow, ultimately covering the area that it does today, both within the WHS and Buffer Zone, and beyond. The topography of Liverpool is influenced by a steep sandstone escarpment which curves away from Breeze Hill, through Everton, St James Mount, behind the city centre and breaking forward at the river at Dingle in the south. A unique setting is created by this sandstone ridge which frames the city centre, thus creating a City surrounded by landscape. The location of the city centre on a shallow amphitheatre formed by surrounding higher ground allows for important views on the open side facing the Mersey estuary. Various key views are apparent from high vantage points over the City, and are discussed in more detail in Section 4.5. The 30m contour is of particular importance to the city centre s setting, as development on the ridge above this height has far greater potential to impact upon the views of the Anglican and Metropolitan Cathedrals. The views to these buildings assist with legibility and orientation within the lower parts of the City. While the topography can be easily seen in the ground levels within the city, it is frequently confused and far less obvious when looking at the roofscape, even though it is this (particularly in the key views and vistas) that is the more obvious visual characteristic. Should a city ever be built of a uniform building height then the contours of the underlying landscape would be neatly replicated in the rooflines for all to see. Of course, with the great variation in building heights and styles across the city, this relationship to the topography is much harder to comprehend visually. As a result of topography there are a number of important factors that need to be considered to protect the WHS. These include: The impact of development on the ridge line The impact of development on views The legibility of the City created by landmarks In order to allow for the underlying topography to be readable, it is desirable wherever possible to ensure that there are sections through the WHS where there is a general uniformity of building heights, which in turn will allow for an understanding of the underlying topography Showing dominance of ridgeline in historic views from the river Section 4 : Urban Design & Townscape Analysis

53 Page 51 Contour Map Topographic Map of City Contours and Ridgeline around the WHS Urban Design & Townscape Analysis : Section 4

54 Page The Waterfront Liverpool occupies a river frontage of some 12 miles overlooking the mile wide Mersey estuary towards the towns of the east Wirral coast. This relationship has a significant influence on the character of the WHS and Buffer Zone, and as such needs to be considered as a whole within this overview chapter, and not just within the individual character areas. The historic function of the waterfront in the WHS and Buffer Zone as working docks largely ceased in the 1970s and parts of the area have remained derelict ever since. Exceptions to this are the Albert Dock, Pier Head and Princes Dock which have been converted and developed for new mixed use development. The character of the waterfront is also significantly influenced by the Dock Wall which runs north to south along Regent Road and Waterloo Road. By necessity, the Docks have traditionally been insular in design. For the security of the goods passing through they have been protected by significant dock walls that formed a protective ring around them and separated them from the rest of the city. Limited access point reduced the risk of theft, and meant that the docks at Liverpool became an attractive place to store goods. This is further emphasised in the materials of the Albert Docks Brick, Iron and Stone which made the warehouses virtually fireproof compared to the many other docks that relied upon structural wood in their construction. This is a significant factor of the docks visual character. By contrast, Pier Head was the point at which the city that had grown up behind the dock walls was able to reach out down to the water s edge, and has been more permeable and better linked to the City behind. The redevelopment of the docks into an assortment of new uses has brought a desire to encourage pedestrian access and permeability which goes against the historical character of the area as a whole. There is a some disparity between Urban Design best practice and historical integrity in this area. Future development in the Docks should seek to encourage internal permeability, and movement along the river itself and maximise use of existing openings in the Dock Wall. The development of Liverpool One has reconfigured the pedestrian movement flows in the City Centre, and people are now naturally guided to a point between Canning Dock and Salthouse Dock, opposite the southern tip of Chavasse Park. This contrasts to the traditional pedestrian route to the River which was the line of Victoria Street and Dale Street, between St Georges Hall and Pier Head. In particular the route along Victoria Street is important as it provides a significant view along Castle Street to the Town Hall as one moves between the alignment of Victoria Street and Brunswick Street. In addition to these key issues affecting the Waterfront, there are a number of additional important factors that need to be preserved to protect and enhance the integrity of the WHS along the Waterfront. These include: Preservation of views across the River Mersey Character of large expanses of water including the Mersey itself and the water in existing dock spaces. The immediate setting of historic warehouses Retention and reuse of Stanley Dock Complex Provision of a pedestrian and cycle route alongside the River Mersey Preservation of historic pedestrian routes to the River Retention of the Dock Wall and ensuring that new openings are kept to a minimum Retention of the legibility of the Pier Head as a principal focal point Retention of the legibility of the city centre as the heart of the wider urban area Section 4 : Urban Design & Townscape Analysis

55 Page Views and Vistas The views to, from and within the World Heritage Site are an important aspect of its visual character and directly contribute to its Outstanding Universal Value. They also form part of the character and setting of the conservation areas that encompass the WHS and some of the views form part of the setting of numerous listed buildings within the WHS and Buffer Zone. These views are structured by the topography of the wider City, its relationship with the river, the locations of landmark buildings and the urban form and skyline of the City and World Heritage Site and its Buffer Zone. The analysis presented below draws on previous work including the North West Regioanl Assembly (NWRA) sponsored Strategic View Analysis of the River Mersey and Ship Canal (Entec 2003) and the WHS Management Plan (2003). Key Visual Landmark Buildings within the World Within the World Heritage Site there are many significant landmark buildings and building complexes that make a positive contribution to the skyline and distinctiveness of the City because of their size, architectural quality, location and / or their relationship with each other. The most significant of these at a City level in the WHS include: The Stanley Dock Complex The Pier Head Complex including the Mersey Tunnel Ventilation Building The Albert Dock complex The Town Hall (predominately local in effect) St George s Hall Liverpool Museum / Walker Art Gallery Lime Street Station St Nicholas Church There are also a number of significant landmarks outside the WHS but within the Buffer Zone, these include: Anglican Cathedral Metropolitan Cathedral St Luke s Church Beacon Beetham Tower West Unity Building These landmarks provide visual reference points across the cityscape that act as mnemonic devices in peoples lives. They also form major components of key views to, from and within the World Heritage Site. Many, but not all, of these landmarks are also listed buildings and the views to and from them form part of their setting and consequently are a material consideration in planning applications Key Local Views The urban analysis has identified numerous local views some of which are outlined below, however this is not considered to be a definitive list. These key local views have been separated into three broad groups: Defined Vistas - These are views towards a landmark building, and are typically along streets or thoroughfares. Examples include: View north along Castle Street to The Town Hall Views east and west along Dale Street and Water Street to the Town Hall View south along Bold Street to St Lukes View east along Brunswick Street to Old Bank of England Building General Views / Panoramas - These are often broad ranging views that enable the viewer to place a number of landmarks within the wider urban context, examples include: Skyline of Anglican Cathedral from Wapping Dock Skyline of William Brown Street Conservation Area from St John s Lane Skyline of Metropolitan Cathedral from Brownlow Hill View over Liverpool city centre from Anglican Cathedral View over Liverpool city centre from Metropolitan Cathedral General Views with focal point - these views vary considerably in terms of their scope but will have at least one focal point which is often a key landmark building, examples include: View of The Pier Head Complex from Albert Dock View of The Pier Head Complex from Princes Dock View west along Chapel Street to St Nicholas Church View North along Regent Road to Stanley Dock Warehouse View North along Duke Street to The Pier Head Complex View East along London Road towards Beetham Tower West Royal Insurance Building Municipal Buildings Urban Design & Townscape Analysis : Section 4

56 Page 54 Section 4 : Urban Design & Townscape Analysis

57 Page 55 Distant Views to the World Heritage Site The majority of the distant views identified below have been drawn from the NWRA / GONW sponsored study of Strategic Views along the River Mersey (Entec 2003). Two additional views have been identified in the Evidential Report; these had previously been identified in the WHS Management Plan. These distant views provide broad ranging panoramas of the city centre, including the World Heritage Site, and defined lines of sight to key landmark buildings within and around the World Heritage Site. These views place the key landmarks in their wider urban context and support the identification of areas where new development could either obscure a view to a landmark or affect its visual prominence by altering its backdrop or the edge of the view. River Prospects: these are broad views from the other side of the River Mersey that have a clearly defined river edge against the backdrop of the city centre. View to Liverpool city centre from Magazine Promenade, Wallasey (Grid Reference: , ) View to Liverpool city centre from Wallasey Town Hall View to Liverpool city centre from Woodside Ferry Terminal Panoramas: These are long distance views over the city centre from high viewpoints. View to Liverpool city centre from Bidston Hill View to Liverpool city centre from Everton Park View to Liverpool city centre from Anglican Cathedral View to Liverpool city centre from Catholic Cathedral Urban Design & Townscape Analysis : Section 4

58 Page 56 Liverpool Waterfront Rationale One of the most widely continuously available views of the Mersey Estuary with the UK Candidate World Heritage Site in the central background to generate an instantly recognisable view. Visual interest enhanced by the ships and ferries in the middle ground. Suggestions for View Enhancement and Preservation The scrap berth located within the docks at Bootle needs be screened/removed; Consider lighting of key buildings on the Liverpool Waterfront and City Centre; Ensure that any new development along the Waterfront maintains the established scale and massing as determined by the Three Graces and the warehouses; Suggestions for Viewpoint Improvement Options Information board required to identify and provide background information on key elements within the UK Candidate World Heritage Site; Consider the provision of a telescope to enable public to view areas of interest; Tidal rubbish on southern bank of the Mersey to be regularly collected and disposed of; Regular maintenance required to ensure that the whole stretch of promenade to minimise vandalism and encourage use by the public; Increased provision of litter bins and seating; Consider the provision of shelters on the promenade. Details Study key number 2 Assessment Criteria Aesthetic quality Uniqueness of view Grid reference Viewpoint local authority Type of view Local authorities within defined strategic view , Wirral Metropolitan Borough Council Sense of place Popularity of view Accessibility of viewpoint Quality of viewpoint Panoramic Total Liverpool City Council Metropolitan Borough of Sefton Council North West Regional Assembly Strategic Views along the River Mersey Figure 4.1 View from Slipway on Magazine Promenade, at end of Holland Road, Wallasey 0km Scale 3km June S17a.cdr barkr Based upon the Ordnance Survey Map with the permission of the Controller of Her Majesty s Stationery Office. Crown Copyright. Entec UK Ltd. AL Section 4 : Urban Design & Townscape Analysis

59 Page 57 Rationale The area around Wallasey Town Hall is a rare example of a well maintained, publicly accessible viewpoint located in a slightly elevated location above the promenade. A popular location with especially good views across the Mersey to the Waterloo and Stanley Warehouses Suggestions for View Enhancement and Preservation The scrap berth located within the docks at Bootle needs be screened/removed; Vegetation to the right of the view to be removed as at present it is obscuring views to the Three Graces and Albert Dock; Ensure that there is no obscuring development in front of the Waterloo and Stanley Warehouses and that any development behind them does not break the horizon; Development in vicinity of Victoria Tower should be of appropriate height and massing to ensure nodal prominence of tower is retained. Suggestions for Viewpoint Improvement Options Information board required to identify and provide UK Candidate Nominated World Heritage Site; Consider the provision of a telescope to enable public to view areas of interest; Increased provision of litter bins and seating; Grass in front of viewpoint needs to be mown regularly and litter picking increased; Consider the provision of shelters. Study key number Grid reference Viewpoint local authority Type of view Local authorities within defined strategic view , Wirral Metropolitan Borough Council Panoramic Liverpool City Council Metropolitan Borough of Sefton Council North West Regional Assembly Strategic Views along the River Mersey Aesthetic quality Uniqueness of view Sense of place Popularity of view Accessibility of viewpoint Quality of viewpoint Total Figure 4.2 View from Wallasey Town Hall 0km Scale 5km June S18a.cdr barkr Based upon the Ordnance Survey Map with the permission of the Controller of Her Majesty s Stationery Office. Crown Copyright. Entec UK Ltd. AL Urban Design & Townscape Analysis : Section 4

60 Page 58 Rationale A hidden location very close to one of the key transportation hubs of Birkenhead that provides some of the best views of UK Candidate World Heritage Site waterfront, and in particular Albert Dock and allows the most visually attractive section of the Liverpool Waterfront to be seen in true perspective. It's role as a strategic view will be increased with the introduction of prospective developments such as the proposed Fourth Grace. Suggestions for View Enhancement and Preservation The Woodside Ferry Terminal looks dated and needs a makeover to make it less visually intrusive; In order to preserve the present skyline, ensure careful consideration is given to any tall development proposed for locations behind or in the immediate vicinity of the Anglican or Catholic cathedrals or the Radio City Tower. Likewise careful consideration should be given to allowing tall development behind the Royal Liver Building which could diminish its role as a visual focal point; Consider lighting of key buildings on the Liverpool Waterfront and City Centre. Suggestions for Viewpoint Improvement Options The viewpoint should be clearly signed from the main entrance to the Ferry Terminal and pedestrian linkages improved; Information board required to identify and provide background information regarding the key elements within the UK Candidate World Heritage Site; Introduction of litter bins and seating; Consider the provision of shelters. Details Study key number 4 Grid reference Viewpoint local authority Type of view Local authorities within defined strategic view , Wirral Metropolitan Borough Council Broad Prospect Liverpool City Council North West Regional Assembly Strategic Views along the River Mersey Assessment Criteria Aesthetic quality Uniqueness of view Sense of place Popularity of view Accessibility of viewpoint Quality of viewpoint Total Figure 4.3 View from Woodside Ferry Terminal 0km Scale 5km June S19a.cdr barkr Based upon the Ordnance Survey Map with the permission of the Controller of Her Majesty s Stationery Office. Crown Copyright. Entec UK Ltd. AL Section 4 : Urban Design & Townscape Analysis

61 Page 59 Rationale One of very few elevated, publicly accessible locations in the northern part of the Wirral providing a variety of partial views of Birkenhead, Wallasey, Liverpool and the Mersey. Views include many landmark buildings and in contrast to other strategic views which include many of the same landmarks this viewpoint is in semi-rural surroundings of woodland and heath. Suggestions for View Enhancement and Preservation Careful selective felling of fore- and middle ground trees to ensure that views are properly framed, but not clear cut or coupe felling; Ensure that this woodland area has an effective management programme in place to maintain present woodland densities; No new development in the fore- and middle ground that would obscure view. Suggestions for Viewpoint Improvement Options Bidston Hill has no facilities, yet is a popular recreational area, hence consider introducing seating and litter bins; Introduce an information board about the Hill and its geology and ecology in the vicinity of the windmill; Establish and possibly waymark trails, in particular to the Observatory; Provision of carparking; Possible creation of viewing platform and information board highlighting principal elements in the view. Local Authorities within defined strategic view - Wirral Metropolitan Borough Council/Liverpool City Council/Metropolitan Borough of Sefton Council. Details Study key number 5 Assessment Criteria Aesthetic quality Uniqueness of view Grid reference Viewpoint local authority Type of view Local authorities within defined strategic view , Wirral Metropolitan Borough Council Sense of place Popularity of view Accessibility of viewpoint Quality of viewpoint Broad Prospect Total Wirral Metropolitan Borough Council Liverpool City Council Metropolitan Borough of Sefton Council North West Regional Assembly Strategic Views along the River Mersey Figure 4.4 View from Bidston Hill 0km Scale 3km June S20a.cdr barkr Based upon the Ordnance Survey Map with the permission of the Controller of Her Majesty s Stationery Office. Crown Copyright. Entec UK Ltd. AL Urban Design & Townscape Analysis : Section 4

62 Page 60 Rationale The best view of the whole of the city centre from the cathedrals to the Seaforth Docks including landmark buildings (including the proposed Fourth Grace) and the wider context of the Mersey and Wirral. The viewpoint is easily accessible, well maintained and generally a pleasant environment and is nationally known due to its use in the opening sequences for 'Brookside'. Site locally known for spectacular sunsets over Wirral and mouth of Mersey. Suggestions for View Enhancement and Preservation There are very few practical enhancement options that could be introduced into this view, hence the focus should be on preserving clear lines of sight to key landmarks in the middle ground and background. Views to the Royal Liver Building are partly interrupted by office blocks in the city centre and careful consideration will be required with regard to design, location and massing of any further high rise developments along this direct view axis. Whilst the Anglican Cathedral is on the periphery of the defined view, the line of sight is in danger of being foreshortened by a clump of trees within the Park, hence consideration should be given to crown reduction of these trees to preserve the view. The horizon is formed by the Wirral and the Clwydian Hills and the small number of high rise buildings in the city centre that break the horizon line automatically become focal points, although they lack the distinctiveness of key buildings such as the Royal Liver Building and the cathedral. Hence any proposals for tall buildings in the city centre should consider their relation to the horizon in views from Everton Park with regard to their design, location and massing. Suggestions for Viewpoint Improvement Options There are few practical improvements that can be introduced to the Park and these would need to be considered within its wider management framework. There is already a reasonable provision for seating and litter bins and parking is available very close to the most elevated location where the best views occur. Maintenance levels appear to be high which will encourage use and discourage vandalism. Any further tree planting would need to be carefully located to prevent the fragmentation of the view whose appeal lies partly in its completeness. As with most of the other viewpoints providing strategic views there is potential for an interpretation board pointing out the key features and landmarks in the view. In the case of Everton Park there is potential for improving links with tourism in Liverpool generally by provision of interpretation leaflets and encouraging visitors, especially coach tours to include a visit so that they can see the entire city in its regional context. Details Study key number 104 Grid reference Viewpoint local authority Type of view Local authorities within defined strategic view , Liverpool City Council Panoramic Liverpool City Council Metropolitan Borough of Wirral North West Regional Assembly Strategic Views along the River Mersey 0km Scale 3km Assessment Criteria Aesthetic quality Uniqueness of view Sense of place Popularity of view Accessibility of viewpoint Quality of viewpoint Total Figure 4.23 View from Everton Park, Liverpool June S39a.cdr barkr Based upon the Ordnance Survey Map with the permission of the Controller of Her Majesty s Stationery Office. Crown Copyright. Entec UK Ltd. AL Section 4 : Urban Design & Townscape Analysis

63 Page 61 Views to the World Heritage Site from the River Mersey As discussed above the relationship between WHS and the River Mersey is fundamental to the Site s history and Outstanding Universal Value and it is clear that the view of Liverpool s waterfront, in particular the Pier Head complex, from the River Mersey played a part in the decision to inscribe it on the WH List. The Mersey was the main trading artery in and out of the City and formed the gateway to the transatlantic trade route. The fact that the City grew out of this trade means that its development responded to the topography of the river frontage. Views from the River are predominately gained from the ferry service, from private and commercial craft on the river and from cruise ships heading to the new liner terminal. The ferry service has the largest passenger population and for the majority of the people this will be the only way that they can experience views of the WHS and wider skyline from the river. Cruise ships are becoming increasingly important and there are also historical relationships between the Liverpool Diaspora and the passage of people along the Mersey today. The views from the Mersey Ferry and from Cruise ships are therefore important. Mapping these views and defining view point locations is not possible given the mobile nature of the views and the varying course that the ferry and ships take. Illustrative views from the Ferry have been included below however these are not suitable for use in developing accurate visual representations of developments. The development of an accurate digital model of the city centre in terms of its topography and built form will enable the planning authority and developers to model the impact of new development of a defined changing view route that broadly relates to the course of the Ferry and Cruise ships. This approach will provide a consistent methodology for measuring and assessing change. The model does not yet exist but is required in the very short term to enable the management of these and other views in the WHS and Buffer Zone. River views In addition to the views from the river to the WHS the visual connections between the WHS and the river are also important. These include: Views of the river from the dockyards and surviving historic buildings along the river Extant views of the river along the east-west roads within the WHS View of the Waterfront 2009 Urban Design & Townscape Analysis : Section 4