Architecture+DesignScotland | Design Review | Lessons Learnt
Masterplans
Architecture+DesignScotland (A+DS) is Scotland’s national champion for good architecture, design and planning in the built environment. Established by the Scottish Government in April 2005 A+DS has a wide and proactive role in advocating the benefits of good design and place-making. Some rights reserved. No image or graphic from this publication may be reproduced, stored in a retrieval system, copied or transmitted without the prior written consent of the publisher except that the material may be photocopied for non-commercial purposes without permission from the publisher. The text of ‘Masterplans’ is licensed under a Creative Commons Attribution 2.5 Scotland License. This document is available in alternative formats on request from A+DS. Printed on recycled paper. Designed and produced by REPUBLIC www.republicproductions.com Architecture and Design Scotland Bakehouse Close, 146 Canongate, Edinburgh EH8 8DD T: 0845 1 800 642 F: 0845 1 800 643 E: info@ads.org.uk
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Contents
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What is Design Review?
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Why masterplans?
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Lessons learnt
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Vision and ambition Content Opportunity Process Context Integration Public realm Landscape Infrastructure Sustainability Implementation
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Conclusions
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IMAGE: A+DS Design Review Panel conduct site visit.
What is Design Review
A+DS aims to facilitate the creation of places where people want to be. These places will satisfy functional requirements and contribute positively to their wider surroundings. They will be capable of adaptation over time and, importantly, they will feel good. The principles – does it work? Will it stand the test of time? Does it bring joy? – are time honoured, and form a basis with which to review any project. Design Review aims to offer helpful and useful advice to the various parties involved in the development process. Design is a challenging progression; it requires considered analysis of the key issues, a careful appreciation of context, and an assured grasp of competing elements. Together with our partners in the design process, we seek to enquire into assumptions and by dialogue with the presenters to ensure that the design quality for a project is as good as it can be. Our Design Review team considers proposals for projects of varying types and sizes, ranging from large-scale masterplans to designs for individual buildings. To have the greatest benefit, we endeavor to carry out the review process early in the life of a project; consequently we encourage participation at pre-planning application stage.
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IMAGE: Raploch Masterplan.
Why masterplans?
The Scottish Government has promoted the use of masterplans as part of its ‘urban design toolkit’ since launch of the policy statement Designing Places in 2001. Partly as a result, masterplanning is now widely encouraged as it allows consideration of the overall relationship between buildings and spaces, the three dimensional qualities of places that are to be created, and how proposals integrate with a wider context. A+DS encourages the making of well-designed places that respect and contribute to their settings, promote a sense of well-being and make the best use of resources and opportunities. These qualities can be assessed effectively in the context of a masterplan; early Design Review is a practical way to engage with the design process at a formative stage to set the context for future development. This booklet articulates the lessons A+DS believes can be learnt from masterplans that have been assessed through our Design Review process. The evidence base for these lessons are projects considered at our Reviews between September 2005 and December 2009. There was considerable variety in the scope of masterplans reviewed, the disciplines leading the proposition, and the intentions that lay behind them. Nevertheless, our analysis of proposals identified common points which we believe constitute ‘lesson learnt’ and are of value in the development of future materplan projects.
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IMAGE: Maryhill Locks, Glasgow. Image by ISIS / Glasgow Canal Regeneration Partnership / LAND / Elder and Cannon Architects.
Vision and ambition
Lessons Learnt
Key Questions
Masterplans should set out bold, imaginative visions and exhibit a demonstrably high level of ambition and design quality for the creation of tomorrow’s places. To achieve this, strong and aspirational leadership is required.
• Does the design avoid the formulaic and instead capitalise on the specific qualities of the site or its unique location?
Regrettably, a number of the masterplans reviewed failed to set out an ambitious vision. Many of them lacked clear vision statements for their site or the wider setting or, where such statements existed, offered a generic vision, shaped predominantly by engineering or short-term market pressures. As a result a recurring comment in our reviews was the need to guard against a standard, formulaic approach.
• Does the masterplan exhibit a high level of ambition and design quality, for the creation of tomorrow’s places?
• Is there evidence of strong aspirational leadership?
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IMAGE: Example of 3D illustration; project seen through Design Review.
Content
Lessons Learnt
Key Questions
Our review panels were therefore critical of masterplans that presented only two-dimensional zoning or constraints diagrams as appropriate. This is necessary to explain how the built form will deliver the intended vision. Three-dimensional representation is essential to evaluate the qualities of the places that are to be created. Our review panels were therefore critical of masterplans that presented twodimensional zoning or constraints diagrams; clearly these also fell short of the guidance described in Designing Places.
• Is the masterplan vision adequately demonstrated through three-dimensional drawings supplemented by text, maps, models and diagrams? • Has a Design Statement (based on PAN 68) been submitted? • Is it evident that good urban design principles have been incorporated within the masterplan?
Panels welcomed and encouraged written descriptions that explained a masterplan and its urban design principles in the way set out in the Scottish Government’s Planning Advice Note 68: Design Statements (PAN 68, 2003). Design Statements can include descriptions of how proposals relate their constituent parts to each other and to the wider context, how mixed uses may be integrated to ensure activity at different times of day, how ground floors are enlivened, how car parking is handled and how large retail activities are incorporated into the urban fabric. www.ads.org.uk
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IMAGE: An Camas Mor. Image by Gehl Architects.
Opportunity
Lessons Learnt
Key Questions
The scale of a proposal can present opportunities to consider new ways of living, both within the site and in the surrounding area. Larger masterplan sites may deliver ecofriendly infrastructure, such as district heating or power generation. By the same token carefully considered development densities can promote sustainable travel and living patterns
• Does the scale of proposal present an opportunity to consider new ways of living?
Also, high quality public spaces can be an investment for the future and in some cases can be assisted by the promotion of high density or mixed development. Climatic considerations can influence forms of development that take full advantage of weather conditions, orientation and aspect.
• Have initiatives such as eco-friendly infrastructure, sustainable travel and living patterns, and investment in high quality public places been fully considered? • Does the proposed form of development take full advantage of climatic conditions, orientation and aspect? • Does the masterplan capitalise on unique assets of the site? • Is the proposal flexible enough to allow for unplanned, creative interventions?
Generally, our Design Review panels have encouraged masterplanners to capitalise on unique assets. These might include the sea, river or canal waterfronts, or established adjacent settlements. Concurrently, masterplans should also be flexible enough to accommodate unplanned, creative interventions that can contribute to a special quality of place.
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Organising master plan workshops and design seminars, involving architects and designers from across Europe as well as local officials and representatives.
This resulted in a highly creative, well considered, robust Masterplan.
Most design meetings are held on site to gain an understanding of the project and it's context.
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IMAGE: Calderwood, West Lothian. Image by Whatmore Urban Design and Architecture.
Process
Lessons Learnt
Key Questions
Engaging with the A+DS Design Review programme as early as possible is vital to maximising the benefits of the process; a successful masterplan is more likely to result when that design process is well considered from the outset.
• Is there evidence of close collaborative working between the project team, local authority and other stakeholders from the outset?
In our experience the commitment to design quality starts with the site owner or developer and is expressed through the appointment of a design team with expertise and commitment to design quality, clear briefing and an adequate budget.
• Has there been open and transparent consultation with key stakeholders, including A+DS, at an early stage? • Does the masterplanning exercise sit within a wider policy initiative, such as a ‘design framework’?
We recommend collaboration and consultation with the local authority, key stakeholders and ourselves as a project develops.
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IMAGE: Calderwood West Lothian. Image by Whatmore Urban Design and Architecture.
Context
Lessons Learnt
Key Questions
Our Design Review process interrogates how satisfactorily a masterplan integrates with its wider context and we expect that a contextual analysis will have been prepared in advance of its development. The Scottish Government’s policy statement Designing Places and advice contained in PAN 68 on Design Statements provide guidance on this aspect. Regrettably we have found that the priorities of some masterplans appear to be driven by guidelines for roads, pattern book approaches to urban design, and standard housing layouts. Accordingly we are concerned to encourage recognition of the positive qualities of a site in order to prompt a more distinctive design solution.
• Has there been a thorough analysis of the site, its setting and its history, that evidently informs the masterplan’s development? • Has a contextual analysis been carried out, and has this informed the development of the masterplan? • Is the masterplan driven by a ‘standards approach’, or has sufficient emphasis been placed on recognising the unique positive qualities of a site to arrive at a distinctive design solution? • Does the masterplan integrate with its wider context?
To be convincing, a masterplan proposal should address key issues and opportunities that have been identified through a systematic analysis of the site, its setting and its history. Panels commended designs that capitalised on such specific qualities of the site or its unique location.
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Lessons Learnt The reviewed masterplans demonstrated a varying level of integration between their constituent parts and with their wider setting. Most of those for urban area extensions recognised the need to link into adjacent networks of streets, public transport and open space; however, the boundaries of some masterplan areas may relate to specific factors such as land ownership. In some instances, very large site areas may be planned in effect through a number of adjacent masterplans and their integration becomes critical to the success of the entire area. A local planning authority may have a crucial role to play in drawing these issues together. It is important to consider how new communities will integrate with existing. The provision of communal facilities is one way to overcome perceived barriers to integration.
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IMAGE: Integrating masterplan into wider context; project seen through Design Review.
Integration
Key Questions However, in some situations we examined it was apparent that the proposed location of facilities had not been considered relative to their catchments. In every case the integration of communal facilities requires safe and convenient access routes for the people they will serve. We have encouraged the creation of integrated mixed-use communities that bring together residential, employment, retailing and other uses, along with easy access to good public transport connections. Those masterplans proposing single use zonings were the least well received at our reviews.
• Does the masterplan demonstrate a high level of integration between its constituent parts and within its wider setting? • In situations where there are adjacent masterplans, how well do they integrate - who takes the lead in drawing them together? • How are new communities to integrate with existing ones? • Has the proposed location of facilities been considered in relation to their catchments, and are there safe, convenient access routes for the communities they will serve? • Does the masterplan seek to achieve integrated mixed-use communities?
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IMAGE: Quartermile, Edinburgh. Image by Foster and Partners.
Public realm
Lessons Learnt
Key Questions
The development of high quality public spaces was an important consideration when assessing masterplan proposals, and was supported by our review panels as a way of setting standards for further development and acting as a catalyst to encourage wider investment.
• Is it evident how high quality public spaces can set the standard for further development, and act as a catalyst to encourage wider investment?
Masterplans were interrogated to establish the quality of the public spaces that were being proposed: how they took into account climatic considerations, how they were conceived as an entirety, how they dealt with the relationship between inside and out, and the extent to which they set the context for specific buildings.
• Has the design of the public spaces taken into account climatic considerations? • Could the proposed design of the public realm be improved? • Does the public realm integrate with areas adjacent to the masterplan?
The best masterplan examples attempted to integrate the public realm with adjacent areas. For example, mixed uses and higher densities might front public spaces as a means of activating those areas during the day and the evening.
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Lessons Learnt At a strategic level the landscape can be an ordering device that binds and makes sense of a masterplan area. We have seen examples where a landscape framework helped to identify and integrate networks of open space, movement routes and views as well as other aspects that are important components of masterplans. Our panels consider that the design of external spaces is as important a masterplan consideration as the design of the buildings. A landscape strategy can provide a structured setting for buildings or development plots. To secure the implementation and maintenance of a masterplan’s landscape elements we have sought assurance that management plans will be prepared at an early stage so as to allow those key features to become established as a setting for later building.
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IMAGE: Aerial view of Whiteness masterplan. Image by Farrells.
Landscape
Key Questions Unfortunately, in some of proposals it was evident that the landscape had been dealt with as an afterthought, and that open spaces were residual – the parts left over once road and plot layouts had been determined. Moreover insufficient consideration had been given to climatic issues where large open areas ran the risk of becoming windswept and unattractive. By contrast, Design Review panels look for public and private spaces that are well defined. In the best examples, positive external spaces are proposed that properly recognise, and take advantage of, a site’s characteristics: orientation, topography, wind, light, shade, water, and other factors. Good landscape plans go as far as explaining how the interior of buildings relates to external spaces.
• Has a landscape architect been appointed to the masterplan team, early in the process? • Is the landscape treated as an integral part of the design exercise and possibly as an ordering device that binds and makes sense of a masterplan area? • Are public and private spaces well defined, and are positive external spaces proposed that properly recognise, and take account of orientation, climate and other factors? • Is a landscape management plan proposed that will be maintained throughout the phased delivery and completion of the project?
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Lessons Learnt New infrastructure can be a very significant physical and financial component of masterplans. In some of the Design Reviews the panel expressed concern that the high cost of initial infrastructure provision might lead to a consequent reduction of design quality at a later stage; it is useful for there to be a robust assessment of the likely scale and allocation of infrastructure costs early in the process, and attention given to how these are to be phased throughout the delivery and implementation of the masterplan. Concern was also expressed about the risks inherent in designs where important infrastructure provision was reliant on agencies outwith the masterplan team. The commitment to providing such infrastructure should be confirmed, in order to establish whether alternative arrangements should be anticipated and prepared for. It is also recommended that the investment in infrastructure could be more effectively considered as a wider asset within the plan, to serve the new community and enhance the public realm and green space network.
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IMAGE: Inverness Airport Business Park. Image by MAKE Architects.
Infrastructure
Key Questions We have found that some masterplans were unduly influenced by transport considerations at the expense of both pedestrian movement and the quality of the public realm. Sometimes sites that deserved to be the civic heart of a town were intentionally proposed as car parks rather than high quality spaces. Elsewhere, undercroft parking gave rise to concerns about the potentially adverse impact on adjacent streets; here the potential for on-street parking to activate streets was noted. Where appropriate, our Review panels have challenged standardised road layouts and encouraged greater use of more pedestrian friendly solutions.
• Has there been an assessment of the likely scale and allocation of infrastructure costs, and how these are to be phased throughout the delivery and implementation of the masterplan? • Is there a concern that the high cost of initial infrastructure provision could lead to consequent reduction of design quality at a later stage? • Is important infrastructure capable of being delivered by the masterplan team, or is it reliant on others? • Has significant investment in infrastructure been considered as a wider asset within the plan? • Is the masterplan unduly influenced by transport considerations at the expense of both pedestrian movement and the quality of the public realm?
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SUSTAINABLE ECONOMY •
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Accommodate mixed economy with diverse activities from the start Allow for change of use to adapt to changing needs Make space for innovation Ensure a wide range of home types and tenures for resilience to market change Provide different kinds of workspaces spread throughout the settlement Include micro-economy of home workspaces and local sub-letting Establish and maintain standards to enhance wellbeing, behaviour and value
SUSTAINABLE MOBILITY •
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Reduce reliance on private motor transport Create good connections to public transport network Make walking and cycling attractive and realistic alternatives to vehicular use Offer as wide a range of services and amenities available locally as possible Provide good internet connection Make it possible to work from home
SUSTAINABLE RESOURCE MANAGEMENT •
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Minimise use of resources and energy in construction Minimise use of resources in running and maintenance Reduce waste of water Encourage composting and recycling Use renewable energy sources (possibility of district heating) Reduce lighting pollution Take advantage of microclimate (wind shelter, solar gain) Provide space for fabrication to reduce builders' transport needs
IMAGE: Top image: Simon Varvell. Centre/bottom image: Sust. Text: Gehl Architects.
Sustainability
Lessons Learnt
Key Questions
A commendable objective of a number of the masterplans we reviewed was the creation of new sustainable communities. To achieve this, appropriate decisions need to be taken early in the design process. Design Review panels encouraged the creation of high quality pedestrian and cycle routes in preference to reliance on the private car, stressed the need to invest in the infrastructure necessary to ensure sustainable transport and travel patterns, and attempted to identify how the earliest development phases of a new or expanded community could realise such ambitions.
• Is sustainability a guiding principle of the proposals?
Review panels also promoted proposals for the formation of communities founded on principles of good health and eco awareness and supported the development of flexible housing types that allow for future adaptation. The provision of sustainable power generation has been commended, as has enhanced biodiversity through the incorporation of nature as an integral element within the design.
• What decisions have been taken early in the design process to ensure that a sustainable community can be delivered? • Are sustainable transport and travel patterns (including walking and cycling) encouraged, and are they achievable in the earliest development phases? • Are local employment and service opportunities proposed? • Is there provision for flexible housing typologies that allow for changing lifestyles and needs? • Has sustainable power generation been considered?
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Masterplan option for each area
Lessons Learnt Community exhibition consultation with Council and other stakeholders
Analysis of feedback from community and stakeholders
Create brief for redevelopment (Development Prospectus)
Appoint plot specific consultant teams
Design and approvals in collaboration with community
Implementation on-site
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The phasing of a masterplan is an important consideration and should establish how design quality will be maintained throughout the implementation of the project. Designing Places describes that masterplans should be accompanied by an illustration of how the different parties in a phased development can deliver a project. How land is to be assembled or made available for development needs to be understood; on occasion panels have been concerned to identify whether land critical to the success of the project is within the client’s control. Where appropriate the ongoing involvement of the masterplanners through the later design stages has been encouraged to assist in delivering aspiration and vision. In some planning authorities the appointment of a Design Champion has also been identified as a means of ensuring that the quality is maintained. Similarly, our panels have commended the adoption of
IMAGE: Adapted from Aberdeen Futures Community Masterplans.
Implementation
Key Questions a masterplan as Supplementary Planning Guidance by planning authorities and in certain cases recommended that design coding should be used, particularly where more precise and detailed guidance on the design of buildings is necessary. Commissioning a major project early in the life of a masterplan can be used as a tool to set the level of ambition and establish high design standards from the outset.
• How is a masterplan phased and how can design quality be maintained throughout the project? • Is the masterplan accompanied by an explanation of how it can be delivered by different parties on a phased basis? • Is land critical to the success of the project within the client’s control and how is land to be made available for development over the life of the project? • Are there mechanisms in place throughout the subsequent detailed design stages to assist in delivering the aspirations and vision of the plan? • Can design quality be promoted in other ways such as by a local authority appointing a Design Champion, adopting the masterplan as Supplementary Planning Guidance or introducing design coding? • Can a project be commissioned early in the life of a masterplan, to set the level of ambition and establish high design standards?
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IMAGE: Integration with existing context; project seen through Design Review.
Conclusions
Masterplanning sets the context for making buildings and public spaces in an integrated and co-ordinated way over a wide area, in a manner which ideally is not restricted within a tightly drawn boundary. The significance of masterplanning is nationally recognised in Designing Places (2001) and the more recent Planning Advice Note (PAN 83, 2008). However, policy alone does not ensure successful outcomes. The evidence from A+DS Design Review is that the term ’masterplan’, and the air of assurance that it implies, can be misunderstood or misleading. The quality of projects seen at Design Review is variable and, when first seen, not every ‘masterplan’ is as good as it could be. The Design Review process seeks to guide those projects that are less successful towards a more positive outcome. In general, the most successful projects are where skilled and talented professionals negotiate and develop a design in a creative way in response to specific circumstances. Masterplans will have an important role to play in assisting Scotland’s modernised planning system to provide clearer guidance about what goes where and why. When adopted as supplementary planning guidance (SPG), masterplans will translate policy ambitions into three dimensional spatial visions that are capable of being delivered, reducing risk and uncertainty and providing greater clarity in order to help to deliver sustainable economic growth. We hope that by publishing the lessons learnt on masterplanning, based on evidence gathered through Design Review since September 2005, A+DS will encourage the preparation of better masterplans that will in the future deliver more places where people want to be.
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A+ DS’s Lessons Learnt from carrying out Design Reviews on Masterplans since September 2005.
Architecture and Design Scotland Bakehouse Close, 146 Canongate, Edinburgh EH8 8DD T : 0845 1 800 642 F : 0845 1 800 643 E : info@ads.org.uk
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