Preston City Council LOCAL PLAN

15. DESIGN

	Policy D1: Design Criteria
	Policy D2: The Local Context
	Policy D3: Daylight and Sunlight
	Policy D4: Safety and Security
	Policy D5: Tall Buildings
	Policy D6: Vistas
	Policy D7: The Layout of Development
	Policy D8: Accessibility
	Policy D9: Works of Public Art
	Policy D10: Public Art and New Development
	Policy D11: Landscape Treatment
	Policy D12: Housing Development
	Policy D13: House Extensions
	Policy D14: Shop Fronts
	Policy D15: Retail Warehousing and Industrial Development
	Policy D16: Advertisements
	Policy D17: Advertisement Hoardings
	Policy D18: Rural Development
	Policy D19: The Conversion of Rural Buildings

Introduction

15.1

Over many years, the process of development has created many attractive buildings and spaces in Preston, particularly in the city centre. These buildings and spaces make up the physical character of the City and the surrounding villages. The development process has also resulted in some mediocre buildings and spaces which have not enhanced the overall quality of the environment.

15.2

The Local Plan has an important role to play, therefore, in ensuring that new development makes a positive contribution to the cityscape.

Design

15.3

Good design of new development is an integral part of the Local Plan’s overall objectives. Good design is concerned not only with aesthetics but also with crime prevention, personal safety, and energy conservation.

15.4

The policies in this chapter seek to apply the following general principles of urban design:

Local Context;
Daylight and Sunlight;
Safety and Security;
Layout;
Landscape treatment.

15.5

A number of cityscape policies designed to enhance and protect the skyline, vistas, and public spaces are also included. These are followed by policies which look at housing development and other kinds of development requiring specific design guidance.

15.6

Whilst the main emphasis of the following policies is the urban environment, policies have also been included to influence the design of development in rural areas.

15.7

The policies in this chapter must be read in conjunction with the plan’s general land use policies. Any proposal will have to satisfy these land use policies; however well designed it might be, before planning permission will be given. Design considerations will also be of importance on a number of key sites identified in the plan, and these are the subject of site specific policies (see Section 17).

15.8

Important as design is, it is only one instrument among many that may be used to improve and enhance the urban environment. It must be used in conjunction with other measures like traffic calming, public transport, and street cleaning and maintenance, the implementation of which is beyond the remit of the Local Plan.

Cityscape

15.9

‘Cityscape’ concerns the shape and form of the built environment and is determined by street patterns and public spaces, natural topography, and the height and location of individual or groups of buildings. It is important that, in considering new proposals particularly in the City centre, attractive Cityscape features are protected and enhanced. In Preston’s case it is vital that the Local Plan protects the attractive views or vistas within the City, as well as the City’s distinctive skyline.

15.10

Cityscape policies are particularly relevant to the city centre and aim to ensure that new development has an appropriate relationship with its surroundings, and enhances the adjoining public spaces.

Public Spaces

15.11

Policies are needed to protect and enhance the spaces between buildings i.e., streets, public squares and other spaces, which are important as pedestrian routes and can provide refuges from the motor vehicle. Clearly, pedestrians have a close relationship with the environment at this level, so attention to detail becomes particularly important.

Rural Development

15.12

The principles of allowing limited and appropriate development to take place outside the main urban area are set out in the Development in the Countryside policies. Such development is generally limited to three categories: that within existing rural settlements, that which takes place in the open countryside, and that which comprises the conversion of agricultural buildings for some other use. Design considerations are important aspects of rural development, given its often sensitive location. Development within existing settlements will be governed, in terms of its design, by the general design policies contained in this chapter.

Policy Context

15.13

The Town and Country Planning Act 1990 (as amended by the Planning and Compensation Act 1991) requires that development plans should include policies for the conservation of the natural beauty and amenity of the land, and for the improvement of the physical environment.

15.14

Furthermore, the Town and Country Planning (Development Plans) Regulations 1991 expressly require local authorities to take account of environmental considerations when preparing their development plans.

15.15

Central government advice in the form of PPG12: Development Plans and Regional Planning Guidance (1999) highlights the importance of policies concerning the improvement of the physical environment within the scope and extent of Local Plans. PPG1: General Policies and Principles (1997) has defined a role for local planning authorities in the area of aesthetic control. Local planning authorities are urged to reject poor designs, particularly where their decisions are supported by clear plan policies and supplementary planning guidance. However, the Government is adamant that local planning authorities should not impose taste or style, or discourage imaginative or innovative design.

15.16

Further advice, information and related supplementary planning guidance can be found in separately published documents, and is cross-referenced in each policy accordingly.

Objectives

TO ENSURE THAT NEW DEVELOPMENT IMPROVES THE IMAGE AND CITYSCAPE OF PRESTON, AND CONTRIBUTES TOWARDS AN ACCESSIBLE, SAFE, AND ATTRACTIVE ENVIRONMENT.

Design Criteria

15.17

The Council wants to ensure that new building, and refurbishment schemes, achieve the highest possible standard in design and play their part in improving the appearance of Preston.

15.18

The policy below establishes broad principles of good design; it is not intended to stifle original architectural expression. Modern original architecture which is sensitive to its surroundings can contribute greatly to the emerging character of the City. However, where an area has a dominant character in terms of scale, massing or materials, a building that respects these considerations and uses the same palate of materials will be more readily absorbed into, and enhance, the Cityscape.

15.19

As a general principle, new buildings should reflect their local context, particularly the height of adjacent buildings, the density of surrounding development, and existing building lines and plot sizes. These are discussed in more detail in the following policies (D2 and D7).

15.20

The Council is particularly keen to ensure that some specific design issues are given adequate attention. Roof forms are often neglected in new buildings and yet they often represent an opportunity to create a feature of interest. In larger developments which involve a corner site, schemes should embrace this opportunity to embrace a feature of interest. When development involves a building of considerable mass, such as an office block, the detailing on the elevations should be interesting and varied. Finally, in rural areas buildings must fit into the surrounding landscape and fit in with and be complementary to their surroundings. These points are discussed in more detail in policies D2, D7, and D18 below.

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Policy D1

Design Criteria

In order to ensure a high quality of design, all planning applications for new building development will be assessed against all of the following criteria:

(a)

the impact on the local context, including the height, density, prevailing materials, and design forms of buildings in the surrounding area, (see D2 - Local Context, D5 - Tall Buildings, and D18 - Rural Development);

(b)

the attention given to the layout and form, including building lines and corner features and the commitment given to the use of quality materials, (See D7 - Layout of Development);

(c)

the need to create a strong and attractive frontage onto the street;

(d)

the need to ensure safety and security (see D4 - Safety and Security);

(e)

the need to provide safe and convenient pedestrian access (See D8 - Accessibility);

(f)

the need for landscape treatment (See D11 - Landscape Treatment), and;

(g)

the need to ensure that energy conservation, including building orientation, are taken into account

The Local Context

15.21

“Local context” refers to the relationship of a building to its surroundings. For buildings to fit sympathetically into their new environment, they must respect the visual and functional characteristics of the area, and any effect they might have on the visual impact of historic buildings, views or landmarks. The main features which a designer should acknowledge are the density at which the surrounding area has been developed and the height and mass of existing buildings. The extent to which these characteristics influence a new development will depend upon the scale of that development. At a relatively small scale, such as an infill plot or an extension to an existing building, the detailing of the new development is particularly important.

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Policy D2

The Local Context

Development should be designed with regard to local context. In determining applications, account will be taken of the following:

(a)

the prevailing density of surrounding development, subject to policy H1;

(b)

the height of neighbouring buildings subject to policy D5;

(c)

the mass of neighbouring buildings and;

(d)

the level and type of detailing, including materials and roof forms, that may predominate in an area.

15.22

The Local Plan seeks to protect important, attractive, impressive views and vistas as well as those of historic buildings and landmarks.

15.23

In general, it is desirable that new development respects the density of the area which surrounds it. Density can be measured in terms of gross floorspace per hectare, or, in the case of residential development, the number of dwellings per hectare. It is recognised that there are circumstances when a higher or lower density of development may be appropriate, without causing detriment to the character of the area.

15.24

The height of buildings is also important in determining the character of an area. The design of a new building must therefore reflect the height of adjacent buildings so that it is integrated into its locality. As a general principle, building heights should be within 1 storey of adjacent buildings. Developers would have to demonstrate the Cityscape benefits of allowing a taller building. It is acknowledged that tall landmark buildings can be desirable in certain specific locations

15.25

The scale or ‘mass’ of buildings in a locality must also be taken into account. Mass is determined by the depth and width of a building, as well as its height. New development, including extensions to existing buildings, must not overwhelm neighbouring buildings by virtue of its mass. The dimensions of new development should be in proportion to adjacent buildings.

15.26

As regards detailing, designs should seek to emulate adjacent roof forms, and use matching materials. In the case of extensions, or alterations, attention should also be given to finer details such as window and door details, and architectural mouldings.

15.27

The application of the policy is not intended to stifle originality or to encourage developments which are simply copies of what has taken place before. There will be occasions, particularly in the City centre, where distinctive, landmark buildings are required.

Daylight And Sunlight

15.28

Designs should take into account the effect that a proposal would have on the amount of natural light enjoyed by those living or working in adjacent buildings. This is particularly important where proposed developments are close to existing houses, and is most frequently an issue when domestic extensions are being considered.

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Policy D3

Daylight and Sunlight

In determining applications for development, account will be taken of the impact of the proposed development on the amount of daylight and sunlight enjoyed by those living or working in an adjacent property. Planning permission will not be granted where any loss is deemed to be unacceptable.

15.29

British standards have been established to measure the levels of daylight and sunlight that are regarded as an acceptable minimum standard. The Building Research Establishment has devised a method for assessing the impact of proposed development on the amount of light reaching a neighbouring building. Where the loss of light is a material consideration in determining a planning application, the Council will apply these methods in order to measure objectively the impact of the proposal.

Safety And Security

15.30

The Council wants to see the creation of environments that are safe, secure and free from unnecessary hazards. Designers need to avoid the mistakes of the past, where attempts to create interest and variety have sometimes resulted in an environment that encourages crime.

15.31

Design can do much to reduce the opportunities for criminal activity. In particular it can help to lessen the fear of crime, which is an important factor affecting the quality of life. Designers should heed the advice contained in the police publication “Secure by Design”, and aim to avoid creating recesses and hideaways. Public routes should be well-lit along their length. Where appropriate, public surveillance and self-policing will be encouraged in new development; this can be achieved where buildings directly overlook public areas.

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Policy D4

Safety and Security

New development must result in a safe and secure environment. Planning applications will be assessed against all of the following criteria:

(a)

improvements to the safety and security of public routes;

(b)

the opportunities provided for self-policing and the surveillance of public spaces; and,

(c)

the use of appropriate surface treatments and the careful positioning of street furniture.

Tall Buildings

15.32

Preston’s elevated position on the Ribble Valley escarpment and the location of a number of tall buildings in and around the City centre combine to create a distinctive skyline. Hence, Preston is very prominent in the wider landscape, when viewed from the M6 or M61 driving north, or from a number of vantage points to the south of the river (for example, from the Penwortham By-Pass, or the Bamber Bridge By-Pass). The Council will strive to protect this skyline, and ensure that any new tall buildings are located so that it is enhanced and not adversely affected.

15.33

The Council is particularly anxious to avoid high-rise developments which result in an over-bearing environment at street level. Developments should always include a low-rise, element at human scale on the street frontage. This will avoid the ‘canyon’ effect that can occur when high-rise buildings are built right up to the pavement; this can result in a loss of sunlight and adverse wind conditions.

15.34

Tall buildings must make a positive contribution to Preston’s skyline, so it is considered that even within the general area identified; only a few new tall buildings can be accommodated satisfactorily.

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Policy D5

Tall Buildings

Development which includes a tall building will be permitted provided that:

(a)

it is in a location that enhances the Preston skyline;

(b)

it does not inhibit the view of, or adversely affect the setting of, important landmark buildings;

(c)

it is designed to provide an environment at street level which is of human scale and not overbearing (see policy D7); and,

(d)

it does not result in a proliferation of tall buildings in any one locality.

An area to the north and west of the City centre bounded by Corporation Street, Moor Lane, North Street, Walker Street, and Ringway has been identified as a location in which the above criteria may be satisfied.

15.35

It is difficult to define the height of a “tall building” in precise terms. However, for the purposes of this policy, a tall building will be considered to be of six or more storeys (or the equivalent, should the building feature a tower or spire). Developers will be required to demonstrate that the criteria have been satisfied by their proposals.

Vistas

15.36

Preston’s City centre presents an exciting skyline when viewed from a distance, particularly when approaching the City centre form the south-west (Penwortham) or the south-east (Walton-Le-Dale). This policy, in conjunction with the previous policy on Tall Buildings, seeks to preserve these views. It also seeks to protect views out of the City centre, particularly of St. Walburge’s Church.

15.37

Within the City centre, Preston’s historic street pattern has created a variety of attractive vistas which often culminate in a distinguished ‘landmark’ building. The most important views and vistas are identified on Plan 6 and are as follows:

Along Friargate towards the Harris Museum;
Along Friargate towards St. Walburge’s Church;
Along Market Street towards Lowthian House;
Up and down Harris Street;
Along Fishergate towards the Parish Church;
Along Fishergate towards the Fishergate Baptist Church;
Along Lancaster Road in both directions;
Along Corporation Street towards St. Walburge’s Church;
From Avenham and Miller parks towards Avenham/East Cliff;
Along Avenham Walk towards the Harris Institute.

15.38

Wherever possible, new developments will be encouraged which create or enhance vistas.

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Policy D6

Vistas

New development must not have an adverse effect on:

(a)

established long distance views into the City centre, particularly from the south; and, important local vistas which focus on landmark buildings; all as indicated on Plan 6.

Plan No: 6 - Location and Direction of City Centre Vistas - Policy D6 and Area Suitable for Tall Buildings - Policy D5

Click image for a larger view

The Layout of Development

15.39

The layout of a development is important because it concerns the creation of pedestrian routes and public spaces, such as City centre squares. New development, particularly if it is extensive, provides an opportunity to create and define interesting and varied public spaces and pedestrian routes. In defining these public spaces, it is important that established building lines and plot sizes are respected. Random setbacks should be avoided and the building line should only be varied to denote important buildings or junctions, or create a well-defined space. The location of public spaces should help people to find their way around the City, by reinforcing intersections of traffic and pedestrian routes. Public spaces also help to enhance the significance of historic or cultural buildings. In creating new public spaces, designers should take advantage of existing views and vistas.

15.40

Much has been achieved in recent years through the creation of new pedestrian spaces in Friargate and Lune Street. It is hoped that new developments will provide further opportunities to create publicly usable urban space.

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Policy D7

The Layout of Development

The layout of development should reinforce or create attractive or distinctive environments at a human scale. Planning applications will be assessed against all of the following criteria:

(a)

the clear distinction between public and private spaces;

(b)

the location of public spaces;

(c)

the relationship of the proposal to established building lines and adjacent site sizes;

(d)

any potential adverse impact on local climatic conditions, for example, overshadowing; and,

(e)

consideration given to energy conservation, particularly through building orientation.

15.41

In the case of development and housing in particular, layout is concerned with the clear separation and distinction between public spaces (roads, footpaths, and open space) and private spaces (gardens).

15.42

The effects of a proposed development on local climatic conditions must also be considered. For example, adverse wind conditions and overshadowing can produce an uncomfortable environment for pedestrians. The orientation of buildings should also seek to minimise energy use by, for example, taking advantage of south facing slopes.

Accessibility

15.43

The Local Plan should ensure that the urban environment is ‘accessible’ to pedestrians, both able bodied and disabled, with safe and convenient routes. Development should retain existing routes going through or around sites and should provide safe and attractive routes, integrated with the existing network. It is important that these routes are designed with safety and security in mind.

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Policy D8

Accessibility

New development/redevelopment proposals must provide for safe and convenient pedestrian access, in accordance with polices T8, T15 and T17.

To obtain planning permission proposals must be designed so as:

(a)

to give priority to the convenience of pedestrians over that of vehicle users;

(b)

to retain existing public rights of way, except where satisfactory alternative pedestrian routes exist or form part of the scheme;

and, wherever practicable:

(c)

to enhance pedestrian access, through the inclusion of new routes integrated into the existing pedestrian network.

15.44

The issue of access for the disabled and others with a mobility disadvantage is dealt with under Policies T15-17.

Works of Public Art

15.45

The provision of art, either in public places or integrated within new buildings, improves the quality of the built environment and increases the attractiveness of a development. This type of environmental improvement brings with it wider benefits in that it contributes to the positive image of the City making it more attractive for new business, and hence, aiding economic regeneration.

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Policy D9

Works of Public Art

Proposals for works of public art which require planning permission will be permitted where they enhance the cityscape and/or open space within which they are to be located. Priority locations are public spaces in the City centre, including parks and pedestrianised areas, conservation areas, and main road corridors.

15.46

Examples of public art include the design and production of metalwork, stonework, brick detailing and patterning, signs, stained glass, murals, or perhaps street furniture.

Public Art and New Development

15.47

The Council wishes to encourage the developers of major commercial, industrial or leisure schemes to commission work by artists and craftspeople. This work should ideally form an integral part of the development, and not be added as an afterthought. In some cases it may be appropriate to commission work for a public space. It must be stressed, however, that a quality piece of art cannot make a poor development acceptable.

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Policy D10

Public Art and New Development

In determining planning applications for major schemes the local planning authority will promote, in its negotiations with developers by means of a voluntary agreement, the provision of new works of art or craft by developers either as an integral part of the scheme or located off site in an appropriate location.

15.48

The Council will negotiate with developers at an early stage over the provision of public art.

Landscape Treatment

15.49

Hard and soft landscape treatments can greatly enhance the built environment. Landscape treatment needs to be considered at an early stage in the design process so that it can be fully integrated into a development.

15.50

Schemes should take advantage of existing features such as trees and hedgerows, stone walls, railings and paving. Developers are obliged to preserve any tree which is protected by a Tree Preservation Order, but any mature tree or shrub that can be retained and successfully incorporated into a landscaping scheme will enhance the development.

15.51

As with other aspects of design, landscape treatment must complement its local surroundings.

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Policy D11

Landscape Treatment

Where development requires the creation or improvement of its setting in order to integrate it into a street or wider context, then a suitable landscape treatment will be required which meets all of the following criteria:

(a)

is an integral part of the development;

(b)

incorporates existing landscape and habitat features of value;

(c)

complements local surroundings and the wider landscape context; and,

(d)

includes locally indigenous species, where appropriate.

Conditions will be imposed on any planning approval to ensure the satisfactory implementation of landscape works and its future maintenance.

15.52

Developers should seek consistency in the use of materials, planting, and street furniture where new development fits into the context of a larger public space or street. Where the existing landscape is poor, then developers are encouraged to provide landscaping that will generally uplift the area’s environment.

15.53

The use of hard landscaping, such as paving or walls, should be appropriate to the site and should be either consistent or compatible with the surrounding area.

15.54

Planting within a scheme can fulfil many functions; it can soften or screen featureless elevations, provide shelter, enclose and define spaces, attract wildlife, or encourage play as part of overall open space provision. The choice of plants should respect the landscape context, indigenous species, and the uses of the site. It is recognised that landscape schemes can take a number of years to reach maturity.

Housing Development

15.55

Many suburban housing developments, particularly those built in the 1960’s and 1970’s lack any distinctive character. Whilst the design of new housing has improved markedly in recent years, the Council wishes to see standards raised. New housing schemes need to be distinctive and have a ‘sense of place’. They must provide a satisfactory standard of amenity, whilst also being safe and secure.

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Policy D12

Housing Development

In order to obtain planning permission the design of housing development will be expected to create an attractive residential environment which is well integrated into its surroundings. Proposals should meet all of the following criteria:

(a)

contribute to the character and identity of the area;

(b)

create a safe and attractive environment for pedestrians and cyclists;

(c)

make adequate provision for vehicular access and parking, in accordance with policy T19 and T25, whilst maintaining pedestrian priority;

(d)

reflect the requirements for privacy, including daylight and sunlight, whilst providing for safety and security;

(e)

make provision for private open space, public amenity space and play areas, landscape and boundary treatment;

(f)

include measures for energy conservation, through building design and orientation.

15.56

New housing schemes should adhere to the general design of policies contained in this section. The Council has also prepared supplementary planning guidance to address many of the issues that are raised when developing housing sites. This guidance (SPG6: ‘Housing Guide’) illustrates the criteria listed in the policy.

House Extensions

15.57

Proposals for domestic extensions comprise a very significant proportion of all planning applications. Although they are minor forms of development, they can be very contentious: a poorly designed extension can be detrimental to neighbours and the residential amenity of the street or neighbourhood.

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Policy D13

House Extensions

House extensions requiring planning permission will be permitted provided that:

(a)

an adequate level of private open space is retained;

(b)

there is no unacceptable reduction in the level of privacy and daylight/sunlight enjoyed by immediate neighbours; and,

(c)

the character of the house or the street is not adversely affected.

15.58

Extensions should be designed to reflect the style of the original buildings and be sensitive to the character of the local area. It is particularly important that extensions do not result in a significant loss of sunlight or daylight to the property or its neighbours. Furthermore, extensions should not be overbearing, or result in unacceptable overlooking or loss of privacy.

15.59

The Council has prepared supplementary planning guidance in the form of SPG7: ‘Residential Alterations & Extensions Design Guide’ which set down specific criteria for terraced, semi-detached, and detached properties.

Shop Fronts

15.60

Shop fronts are an important element of the environment. Well-designed shop fronts are essential if the visual quality of Preston’s shopping areas is to be enhanced.

15.61

Over the years, traditional shop fronts have tended to be replaced by standardised modern shop fronts, which has led to a deterioration in the quality and character of many shopping streets. The Council will encourage the use of traditional shop front designs in older properties, and will resist standardised logos unless they are sensitively incorporated into the design. Modern shop fronts may be more appropriate in new or more recent developments, but this still requires careful design so that they are uncluttered yet still have visual interest.

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Policy D14

Shop Fronts

New shop fronts will be permitted provided that:

(a)

they do not adversely affect the original design and construction of the upper floors;

(b)

they respect the surrounding Cityscape and street scene; and,

(c)

they make appropriate provision for integral signs, canopies and security measures.

15.62

Shop front design must address a range of issues. These concern not only attracting customers and respecting the local context, but also signs and security. Especial attention should be made to ensure that roller shutters do not result in unattractive, blank, dead frontages. Access, particularly for those with a disability, is also important and is addressed by other plan policies. Further advice on these is given in the Council’s published supplementary guidance - ‘Shop Improvement Design Guide’.

Retail Warehousing and Industrial Development

15.63

Retail warehouse development is concentrated in a number of locations in the City, generally beyond the City centre core. Retail warehouses are large buildings favoured by DIY chains and furniture retailers, but now also popular amongst sellers of electrical goods and even toys. In the past, there has been a tendency for this type of development to use a very standardised type of design, and for the building itself to be located towards the rear of the site with car parking to the fore. This often results in an anonymous and uninviting environment.

15.64

A number of sites have been identified on the edge of the City centre for future retail warehousing developments. In these locations the Council will insist on a very high quality of design. Standard designs will not always be acceptable, and a number of the identified sites are regarded as key gateway sites.

15.65

In these edge of centre locations, developers will be expected to include the creation of new public spaces within their schemes.

15.66

Industrial buildings may occupy less prominent sites but their design is nonetheless important in achieving an attractive environment. Whilst recognising that they must suit their function, the Council sees no reason why the same design criteria should not apply to them so that building standards can improve.

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Policy D15

Retail Warehousing and Industrial Development

In order to ensure a high standard of design and that development is well integrated into the Cityscape, all applications for planning permission for new retail warehousing and industrial development will be assessed against all of the following criteria:

(a)

the attention given to the layout of the site in order to create an attractive frontage;

(b)

the attention given to reducing the visual impact of the associated frontage;

(c)

the attention given to; the use of materials; roof design; the location and design of signs; the use of boundary and landscape treatment which is appropriate to its location.

15.67

Depending upon the characteristics of the site, developers will be expected to position the building towards the front of the site with the majority of the associated car parking to the rear, to create an appropriate street frontage. The general design policies of the plan will be relevant in considering the appearance of the building. However, particular attention needs to be given to the use of materials, the design of the roof, the use of signs, and boundary and landscape treatment to ensure that the development fits well into its surroundings.