People and Place Public Realm Strategy For BCC

People & Place Reflections of a City Public Realm Strategy for Belfast City Centre
People & Place: Public Realm Strategy for Belfast City Centre
CONTENTS
FOREWORD SUMMARY OF PROPOSALS SECTION 1: INTRODUCTION The Study Area Project Aims and Objectives The Project Team The Steering Group Integration with Other Strategic Projects Equality Considerations SECTION 2: HISTORIC BACKGROUND SECTION 3: ANALYSIS The Importance of the Public Realm National and International Best Practice Regional Economic Importance Creating a Distinctive City Creating a Memorable City The Commercial Environment The Social Environment The Visitor Environment Existing Public Realm Existing Buildings Character Areas Social Dynamics Management and Maintenance SECTION 4: IMPROVING THE PUBLIC REALM OVERARCHING CONCEPTS AND PRINCIPLES Concept Plan Developing the Character of the City A Legible Structure of Routes and Spaces Green Links Materials Kerbs Pedestrian Spaces Complementary Paving Materials Vehicular Spaces Street Trees and Vegetation Lighting Street Furniture Interpretation Public Art Public Transport Private Commercial Vehicles 2 3 6 6 7 7 7 7 7 9 10 10 10 10 11 11 11 12 12 13 14 15 16 16 19 19 19 20 21 21 22 22 22 22 23 24 24 24 24 24 25 SECTION 5: PUBLIC REALM IMPROVEMENT PROPOSALS The Civic Spine Donegall Square City Spaces Custom House Square Lanyon Place Corporation Square Odyssey Plaza Queens Quay Royal Belfast Academical Institution (RBAI) Bank Square Cathedral Quarter Writers Square Bridge Street/Four Corners Linen Quarter Blackstaff Square Library Quarter City Routes High Street/Castle Street Chichester Street and May Street Waterfront Boulevard Odyssey Boulevard The Retail Core York Street North Street Cathedral Way/Royal Avenue The Golden Mile Dublin Road Great Victoria Street Connectivity to City Centre Neighbourhoods SECTION 6: MAINTENANCE AND MANAGEMENT THE NEED FOR CHANGE Management of the Public Realm Maintenance of the Public Realm The Planning Framework SECTION 7 : PUBLIC REALM IMPROVEMENT PROJECT IMPLEMENTATION PLAN FUNDING PROFILE TABLE APPENDIX A : Consultees And Reports 26 26 26 27 27 27 28 28 28 28 29 29 30 30 31 31 32 32 32 33 34 34 35 35 36 36 36 36 37 37 38 39 40 41 42 43 44
FOREWORD
This document contains governments proposals for development of the public realm in Belfast City Centre to achieve world class standards in urban design, maintenance and management of the streets and public squares at the heart of the City. The City Centres public realm is the shop window of Belfast. It is the first and last impression for those who live and work in the City, and those who visit. It should convey a strong and positive message to its citizens and to potential investors and visitors. Outwardly, the quality of the public realm of the City should provide an aesthetically inviting image, but fundamentally should both prime and support economic and social development. Through the proposals set out in this document, government aims to maximise the potential of the City Centres public realm to position Belfast as a premier European regional capital and the primary retail and leisure destination in Northern Ireland. In recent years, there has been significant built development within Belfast City Centre, with many new and refurbished buildings. There has, however, been relatively little strategic thinking or investment made in the public realm. This has been recognised by government in the commissioning of this Strategy to provide a vision for the future. Government has made available substantial capital investment resources to realise that vision. The existing condition and use of Belfast City Centres public realm does not fulfil its potential or come close to doing so. Investment is required in order that the economic viability of the City Centre is not compromised, and indeed that it should become stronger. The experience of other cities in the UK, and across the European Union, shows that carefully structured investment in public open space can play an important part in regeneration and economic growth. This strategy outlines key projects and principles that should be adhered to in order that the public realm in Belfast City Centre can be developed cohesively. The Department for Social Development will take a positive lead to instigate the proposed public realm improvement projects through the Departments urban regeneration initiatives and also through the support of Laganside Corporation, ensuring seamless integration of the public realm across the City Centre. This work will be complemented by support provided by Belfast City Council, the Department of Finance and Personnel Central Procurement Directorate, the Department of Regional Developments Roads Service and the private sector. From the outset, support from all key stakeholders is required, to ensure that development can be progressed. Following the launch of this strategy, it will be important to maintain momentum. It is proposed that the key stakeholders should agree the detailed arrangements for implementation, including legislative changes, maintenance/management and scheme development. It will be equally important to seek the views of citizens as we begin to reshape the City Centres open spaces to provide a legacy for future generations to enjoy. This strategy identifies a vision of a place that Belfast City Centre could be, which addresses physical form, economic and social issues. It provides a pragmatic and deliverable approach to developing the City Centre in a way that will enhance its distinctiveness. An improved amenity will be provided for its citizens, along with a focus for promoting business investment and tourism within an international marketplace.
Rt. Hon. John Spellar MP Minister for Social Development
SUMMARY OF PROPOSALS
SUMMARY OF BELFAST CITY CENTRE PUBLIC REALM IMPROVEMENT PROPOSALS
City Centre Civic Spine: A central proposal of this strategy is to establish a Civic Spine, running north to south through the City Centre, incorporating the existing high footfall at areas of Donegall Square, Donegall Place and Royal Avenue. The spine would provide points of linkage with presently disparate areas of the City Centre, at Royal Avenue, Dublin Road, Laganside and Cathedral Quarter. Generous tree lined footways are proposed to consolidate prime retail frontages and encourage pedestrians to explore the entire City Centre. Donegall Square: Donegall Square has a pivotal role to play in integrating the different strands of the City Centre. Proposals for the Square include reducing the dominance of vehicular traffic and public transport in the area, and revitalising the area around the City Hall for pedestrian use reinforcing its position as the focal point for the City. Custom House Square: Laganside Corporation has implemented public realm improvements at Custom House Square achieving a space of international standard. Lanyon Place: Lanyon Place already has a high quality of public realm. Further enhancement of the area should be promoted by completion of the remaining development sites to encourage more activity to the area adjacent to the Waterfront Hall. Corporation Square: It is proposed to develop Corporation Square as the northern-most City Centre space providing an enhanced setting for the Harbour Commissioners office and a more public, active use. Odyssey Plaza: Odyssey Plaza is situated west of Corporation Square. The existing setting is of high quality, but would benefit from increased emphasis to the riverside aspect in response to the proposed development at the Boulevard and bridge link to Corporation Square. Queens Quay: This proposed space will complement Lanyon Place and the proposed Odyssey Boulevard. Masterplan proposals have been developed by Laganside Corporation to realise the potential of this area as a significant public space. Royal Belfast Academical Institution (RBAI): The open space at Inst terminates the vistas from Wellington Place and should be retained as a visual amenity. Opportunities to facilitate links to the West as well as maintaining the perimeter to the school property should be promoted. Bank Square: Bank Square is situated behind Royal Avenue bordering Chapel Lane. DSD will bring forward proposals to maximise the opportunity presented for the Square as part of the regeneration of the North West Shopping Quarter. Library Quarter: The streetscapes of Library Quarter should be developed to complement the character of the area and promote its viable regeneration. DSD will bring forward regeneration proposals for the area within the North West Quarter Draft Masterplan (Part 2). Cathedral Quarter: This area is the cultural quarter for the City Centre. Laganside Corporation is in the process of completing the physical renewal of the Quarter. Proposals set out in DSDs draft regeneration masterplan for the adjoining North East Shopping Quarter will further enhance public space in this part of the City Centre.
Writers Square: To the southwest of St Annes Cathedral is Writers Square. The open space currently lacks vitality and proposals for the Square have been set out in DSDs draft regeneration masterplan for the Area. Bridge Street/Four Corners: The area from the junction of Bridge Street with North Street, Donegall Street and Waring Street is an important link between Cathedral Quarter and the Retail Core. Streetscape improvements have been carried out and further enhancement of the public realm in this area is proposed in the DSD draft regeneration masterplan for the Area. Linen Quarter: Linenhall Street runs north-south through the area, with the termination at the Ormeau Baths Gallery and Green Links to the south. Public realm enhancement of the area envisage St. Malachys Church and its setting providing the focus for the area. Blackstaff Square: Blackstaff Square is located along Amelia Street and should be developed as a neighbourhood space providing controlled opportunities for outdoor entertainment and dining. The Retail Core: Key streetscapes within this area include Lombard Street, Rosemary Street, Ann Street, Castle Lane, Arthur Street, Montgomery Street, Church Lane, Fountain Street, Queen Street and the series of entries and arcades particularly linking with High Street. It is proposed that the streets and lanes should be enhanced to provide an improved quality of environment within the existing busy retail area.
High Street/Castle Street: High Street and Castle Street are strategic connections within the City Centre. It is proposed that through traffic should be displaced, with bus and services access retained, thus releasing significant space for public realm enhancement and positive use. Chichester Street/May Street: These are two complementary civic streets linking the Citys primary civic buildings of the City Hall and Waterfront Hall. High quality streetscape should be implemented, taking account of the Victoria Square Scheme and lighting columns with banner attachments introduced to brand civic activities. Waterfront Boulevard: The link from Clarendon at the north to East Bridge Street at the south is at present disparate in character and lacks legibility around the Queen Elizabeth Bridge and Queens Bridge. It is therefore proposed to rationalise the street form and to establish a boulevard that links the City spaces of Corporation Square, Custom House Square and Lanyon Place. York Street: It is proposed that consideration be given to the regeneration of York Street with the objective of renewing its City functions. Redevelopment of the University of Ulster Campus and Cathedral Gardens should hopefully maximise the potential liveliness that student activities can bring to the area. North Street: This is an important interface between the retail core to the South and Library Quarter to the North and is in a poor physical state. It is proposed that the buildings and streetscape be developed as a key component of City linkage. DSD will bring forward proposals for the area in the Draft North West Regeneration Masterplan including a major new public space. Cathedral Way/Royal Avenue: This area runs between the Royal Avenue Retail Core and Cathedral Quarter. DSD will bring forward development proposals for this area in its Draft Regeneration Masterplan for the North East Quarter.
The Golden Mile: This area has a considerable number of pubs, clubs and restaurants and late evening activity is significant. The physical environment of the area is relatively poor and dominated by vehicles. A programme of public realm improvements will be brought forward with the aim of attracting increased numbers of people visiting the area throughout the day. Dublin Road: Dublin Road will be more closely linked with the rest of the City Centre. Public realm improvements in this area will aim to develop a city route between Shaftesbury Square and the Civic Spine via Linenhall Street West. Great Victoria Street: Land to the west of this area has significant problems due to derelict land, inappropriate building and land uses. There is a lack of integration with the City Centre and adjacent residential communities. It is advocated that Great Victoria Street, Fisherwick Place, College Avenue, Millfield and Carrick Hill should be developed, where possible, with an attractive street form and function. To the west, it is proposed that regeneration and development should be focused on Great Victoria Street Station. Management Of The Public Realm Increased use of the public space in Belfast City Centre through the facilitation of staged events
in recent years at the City Hall and Laganside has demonstrated the potential of the Citys public space to offer economic and social benefits. There is currently little proactive coordinated management of the public space, which will increase in value as the implementation of the above proposals begin to take effect. Improved coordination of essential utility works, which too often result in the unacceptable and unattractive disfigurement of the streetscape, is also required. DSD will work with Belfast City Council, DRD Roads Service and the private sector to fully address the issues that have been outlined in Section 6 of this Strategy concerning management and maintenance to ensure that the potential of the public realm is fully realised and its attractiveness protected. Implementation DSD proposes to take forward the implementation of the above proposals over a period of 5 to 10 years. The implementation of the improvement schemes is subject to the outcome of economic appraisal, the availability of funding and meeting planning legislative requirements. DSD will appoint an urban landscape design expert with an established international track record to advise on the implementation of public realm improvement in Belfast City Centre.
SECTION 1: INTRODUCTION
1.1
Development of the public realm is a core component of urban regeneration, for which the Department for Social Development (DSD) has statutory responsibility in Northern Ireland. DSD in April 2004 published a Regeneration Policy Statement for Belfast City Centre, which set out governments vision, objectives, priorities and plans for the regeneration of the City Centre. At the heart of this is governments commitment to work in partnership with the private sector, public sector and community sector stakeholders to enhance Belfasts role as a premier European regional capital. A key contributor to realizing the full potential of the City Centre is the need to improve the quality, accessibility and safety of the public realm.
1.2
As part of its regeneration plans for Belfast City Centre, DSD commissioned The Paul Hogarth Company, specialists in urban design, to produce, in consultation with key stakeholders, a detailed public realm improvement strategy for the City Centre. This document summarises the conclusions and recommendations produced by The Paul Hogarth Company and sets out DSDs plans for implementing the Strategy.
The Study Area 1.3 The project brief assigned to The Paul Hogarth Company defined the study area as that which was within a half-mile radius of the City Hall. It included the Westlink to the west, the River Lagan to the east, Shaftsbury Square to the south and
Frederick Street to the north. The boundaries were refined at the outset of the project through discussion with the Steering Group. Project Aims and Objectives 1.4 The form and function of the public realm cannot be divorced from that of the buildings that give it definition. This relationship of mutual dependency requires to be understood and shaped cohesively for the City Centre to function effectively. The project team appraised the built and open space fabric of the City Centre and consulted widely with those who were, or should be, actively involved in its development. A concept was developed which underpinned a Framework Plan for the area, dovetailing existing and proposed built form and public realm. Prototype design proposals were developed for key areas to illustrate how the Framework Plan can be implemented and facilitate the production of outline budget costs. 1.5 Through broad consultation and the production of a pragmatic strategy, a structure has been established with the objective of facilitating the delivery of a high quality public realm that will contribute positively to the economic and social vitality of the City. Whilst it is fundamental that the implementation of public realm improvement across the City Centre conveys a strong sense of cohesion, projects have been identified which can be delivered as stand alone elements, subject to economic appraisal, funding and meeting statutory planning requirements.
secure sustainable regeneration of the public realm of the City Centre. The consultant team comprised: The Paul Hogarth Company (Framework Planners and Landscape Architects) Colin Stutt Consulting (Consultant Economist) GVA Grimley (Property Development Consultant) David Campbell Associates (Chartered Quantity Surveyors) The Steering Group 1.7 A Steering Group, chaired by DSD, was established to guide the consultants. The Steering Group was comprised of: Belfast City Council; Laganside Corporation; Department of Regional Developments Roads Service; Department of the Environments Planning Service; and, Belfast City Centre Management Company. DSD is grateful to the Steering Group for their contribution in developing the public realm strategy. Integration with other Strategic Projects 1.8 The principles addressed by this strategy are wide-ranging and relate cohesively with other strategic initiatives. These include the over-arching Belfast City Centre Regeneration Policy Statement, the Draft Belfast Metropolitan Area Plan, in particular the Urban Design component prepared by Urban Initiatives has significant relevance to this strategy, and the Belfast Metropolitan Transport Plan. This strategy will be updated if necessary to reflect any changes, which may emerge. Equality Considerations 1.9 Under section 75 of the Northern Ireland Act 1998, DSD is required to have due regard to the need to promote equality of opportunity between:
The Project Team 1.6 An experienced, multi-disciplinary team of consultants combined their expertise to comprehensively address the issues and to develop a strategy that can be used as a practical tool by the relevant agencies to
Persons of different religious belief,

political opinion, racial group, age, marital status or sexual orientation;
Men and women generally; Persons with a disability and persons

without; and
people most likely to be affected, by consulting with and taking into account, how policy development may impact on them. 1.10 The Department has screened this strategy in accordance with the criteria laid down by the Equality Commission for Northern Ireland and is satisfied that there are no significant implications for equality of opportunity that would require a full Equality Impact Assessment to be undertaken at this stage. In consulting with key stakeholders in the development of this strategy, no specific equality of opportunity issues were raised. However, given the overarching nature of this strategy and the earlier high level consultation with key stakeholders, the Department has undertaken to screen each of the more detailed recommendations that will now emerge as identified public realm improvement schemes from this strategy. This further screening will involve consultation with representatives of each of the section 75 groups as well as other stakeholders and interested parties. These identified schemes have been chosen on the basis of the condition of the existing public realm and the importance of such areas to the overall perception of Belfast (e.g. Donegall Square, Retail Core). There is a degree of flexibility within the implementation process to revise the list of nominated schemes. Programmes of work to be undertaken will only proceed after this further consideration of the statutory duty obligations.
Persons with dependants and persons

without. In addition to this obligation, the Department in carrying out its functions shall have regard to the desirability of promoting good relations between persons of different religious belief, political opinion or racial group. DSD is fully committed to complying with this statutory obligation and has set out in its Equality Scheme how it will fulfil this. These obligations are designed to ensure that equality and good relations considerations are made central to policy development and have the potential to make a real difference to the lives of the
SECTION 2: HISTORIC BACKGROUND

2.1 Early Belfast established as a settlement at a crossing point of the River Farset at its confluence with the River Lagan, in the vicinity of what is now the Custom House. The River Farset extended west to the hills, along the line of the High Street. The original Belfast Castle was built in 1200AD by the Normans, between what is now Castle Place and Corn Market. The River Farset itself has long since ceased to be an open watercourse and is now little more than a culverted sewer. The history associated with it and the evolving City to either side should, however, be recognised. Much of the City form evolved in Georgian times, as industrialisation manifested itself in the form of the linen, tobacco and ship related industries. It was during this period that much of the gridiron street form was established, along with numerous buildings of distinction, which still exist. This legacy of strong urban structure is a great asset that should be capitalised upon through the development process. The City Hall, built on the site of the former White Linen Hall is a relatively new building (constructed between 1890 and 1906), but has become the centrepiece of the City, and is bounded by fine buildings to each side. The Department of the Environment has designated three Conservation Areas within the study area, recognising their historic importance. These are the Cathedral Conservation Area, Linen Conservation Area and Belfast City Centre Conservation Areas. The recent history associated with civil unrest has had a significant impact on the City as a whole. During that period, buildings were damaged and replaced according to need resulting in a lack of cohesion within the built form. During the most difficult times, people tended to move out of the City Centre, choosing to live and socialise in outlying areas. Whilst there has been a recent introduction of apartments to a number of areas, including alongside the River Lagan and in the Linen Quarter, the legacy of displacement still impacts on the City Centre, with limited activity in the core areas after business hours. There continues to be a high dependency of people on car borne travel into the City Centre and the resultant dominance of wide streets and vehicles within the core areas. 2.3 Laganside Corporation has had a significant impact on the development of the City. It was charged with the regeneration of Belfasts riverside and waterfront areas and the Cathedral Quarter. Fundamental to that process was the establishment of the Lagan Weir to control water levels. Previously at low water, the mud banks were exposed and the odour associated with the River was a deterrent to business and residential development. Now the area is evolving strongly. Concern has however been noted, that the success of the Laganside area has highlighted deficiencies in the quality of the traditional City Centre and in establishing connections with it and outlying communities. Development pressure within the City Centre and around its periphery is considerable and sustained. It is important that the public realm strategy, in the context of the Regeneration Policy Statement, should provide a response to past development issues that have affected the City Centre in positive or negative ways and future development opportunities.
2.2
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SECTION 3: ANALYSIS
The Importance of the Public Realm 3.1 The current lack of cohesion of Belfast City Centre public realm compounds the fragmented form of the area. Prolific use of materials of relatively poor quality, such as the block paving along Donegall Place, creates a dated impression of a transient environment. By contrast, the use of high value, long lasting materials, such as those at Lanyon Place give a positive message to the private sector that it is a place that has a long-term investment future. There is a strong need for that commitment to be extended throughout the central areas. 3.2 Development of high quality public realm, for the reasons outlined is one of the core policies contained within the Belfast City Centre Regeneration Policy Statement. The provision of good access between the City Centre and its facilities and the outlying communities, particularly to the north and west, are also recognised. The need for a high quality, effective public realm is not optional. Without sustainable, targeted and integrated development, Belfast will have difficulty in competing with other UK regional centres such as Birmingham, Glasgow, Liverpool and Manchester and indeed with other centres of population across the European Union. the developing trends in national and international public policy which emphasises the importance of high quality, well-designed public realm as underpinning economic growth and social development. 3.4 In recognition of the contribution which high quality urban design has made to achieving urban renewal in regional capital cities across Europe, DSD will appoint an urban landscape design expert with an established international track record to advise on the implementation of public realm improvement in Belfast City Centre.
National and International Best Practice 3.3 Research produced by the Commission for Architecture and the Built Environment (CABE) in England and Wales, The Value of Public Space published in January 2004, found that there is an increase in land values surrounding good quality open spaces. The research indicated that the presence of good parks, squares, gardens and other public spaces becomes a vital business and marketing tool as companies are attracted to locations that offer welldesigned, well managed public spaces and these in turn attract customers, employees and services. The CABE research reflects
Regional Economic Importance 3.5 The Northern Ireland Regional Development Strategy (RDS) sets out governments vision and agenda for Belfast. That vision is to enhance the role of Belfast, improving its international image and maintaining its role as the cultural capital, the centre of regional administration and specialised services, and as a major industrial centre. A key objective of the RDS is to restore Belfast City Centre as the regional hub for retail, leisure and business. The Regeneration Policy Statement for Belfast City Centre provides clear direction and a route map for the further regeneration of the City Centre and a guide to private sector investors by identifying governments regeneration objectives, priorities, plans and guiding themes to achieve regeneration including the development of the public realm. The Public Realm Strategy set out in this document aims to establish a public realm improvement programme that will help contribute to improving Belfasts position as a premier European regional capital.
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Creating a Distinctive City 3.6 There is a need to strategically position Belfast in the international market place, defining the characteristics that would entice a company or individual to invest in or visit the City rather than go elsewhere. In this respect the public realm should be the shop window for the City, presenting a strong and positive message as a first and last impression. The public realm as part of a package. Its activities and culture need to be memorable, so that those who visit for whatever reason leave with positive memories that they will enthuse about to others. This would create a growing constituency of interest in the City, similar to that which has happened in Glasgow, Prague or Barcelona. The public realm and use of Belfast City Centre currently fails to function at that level but holds the potential to redress this. Creating a Memorable City 3.7 Belfast does not currently have a public realm that it can market internationally. With the exception of a few notable buildings, the City has few recognisable icons. Images such as the Smithfield torches in Dublin, the Guggenheim Museum in Bilbao, or the London Eye are instantly recognisable and magnetic in their attraction. Belfast has the potential to develop new and existing buildings and spaces to genuinely compete on an international basis. The Commercial Environment 3.8 The retail experience of the City Centre does not fulfil its potential. The City tends to operate in zones, with insufficient movement from one to another. Accordingly, there is a hit and run mentality that influences shopping patterns, whereby people know what they want and go directly to, say CastleCourt, do what is required then leave, without
venturing to the Dublin Road or Cathedral Quarter. Governments commitment to the development of the retail-led proposals for Victoria Square, and the North West and North East Quarters, will be of significant benefit to the retail experience of the City, providing increased quantity and diversity. Importantly, Victoria Squares location will provide a significant incentive to the movement and distribution of people between the established retail environment of Donegall Place and Royal Avenue/Castle Court, and with Lanyon Place, the River and riverside developments. 3.9 Improvements to the public realm can facilitate the movement of people, providing that the destinations it connects are of appropriate quality. The Edinburgh example of the stone paved magic carpet is well recognised, where businesses located on streets with high quality finishes experience higher footfalls. The shopper/visitor has a visual reassurance that they are within a special area, which they would expect to enjoy for whatever reason. Within retail areas, the public realm has a distinct function to fulfil, that is, to facilitate the processes of shopping. Narrow pavements and traffic congestion tend to make people move more quickly than generous pavements with little threat from vehicles. If people move more slowly, browsing is promoted, the length of stay is increased and there is an encouragement to venture into adjacent areas, thereby extending the stay and maximising consequent spending capacity. Vehicle dominance in the prime retail streets, combined with pavements that are uneven, along with street trading and other obstructions, undermines the potential of Belfasts City Centre in this respect.
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The Social Environment 3.10 The Belfast City Centre Regeneration Policy Statement emphasises the need for the public realm to be developed to complement the other key themes, which includes reinforcing city communities. Public spaces are places where people should meet and be involved in a range of activities whether passive or dynamic. Particularly in respect of the social context of Belfast, with its divided outlying communities, the role of City Centre spaces is vital. They provide common ground where people from all backgrounds can meet and participate in the life of the regional capital.
The Visitor Environment 3.11 Civic spaces are places that are expected in most cities to be hubs of activity. They can become attractions in their own right, and provide a valuable function in orientating people. Consulting a map does not usually indicate to visitors where the best shops or restaurants are, but civic squares are recognisable. Experience of other successful cities tends to suggest that these should be the focus for activity. Unfortunately Belfasts civic spaces are limited and do not fulfil expectations, which undermines the legibility of the City and is yet another aspect that mitigates against Belfast realising its potential. Heritage is something which both local people and visitors are attracted by. Belfast
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has a wealth of culture and heritage. The story of the City is not however made readily accessible and for many, the history of the people and culture remain untapped sources of inspiration. Existing Public Realm 3.12 The existing land and building uses within the study area have been appraised. This process was consolidated by an extensive programme of consultations with government departments, other public sector bodies, stakeholder organisations, consultants working on significant projects, and developers whose work influences the way in which the City functions. A list of consultees and reports that were reviewed to provide the context for this strategy are listed in Appendix A. 3.13 Land that is not occupied by buildings is apparently prolific within the City Centre. In reality, little is genuine public realm, with many areas currently being used for surface car parking and vehicular circulation. Many of the spaces were not designed, but were the result of demolition work, or were left-over spaces that could not be economically developed. That which exists is varied in its usefulness and contribution to the City. Blackstaff Square, for example is a public space that has become misused, and detracts from adjacent business premises. 3.14 Lanyon Place however, adjacent to the Waterfront Hall, is high quality public realm that is managed and maintained to a high standard, thereby creating a prestige setting for the concert hall and premire business premises. Use of materials throughout the City Centre, with a few notable exceptions, lacks quality and cohesion. Paving, lighting columns and other elements of street furniture are eclectic, and rarely add to the distinctiveness of the City. Without a
guiding framework this lack of integrity will continue to undermine the essence of the City Centre. Poor design standards often contribute to maintenance problems, furthering the spiral of decline. Linkages through the City Centre largely exist in appropriate locations, though many are not of appropriate quality. Towards the edge of the study area linkage to peripheral communities and facilities are in places poor or absent. This is particularly relevant alongside the Westlink, and to the east between the River and Short Strand/Lower Newtownards Road. Through the appraisal work, it was identified that land and building uses tend to function within zones, but are disjointed from surrounding areas. The retail core to either side of Donegall Place/Royal Avenue tends to operate in isolation of the Dublin Road/Bedford Street area, whilst Laganside, with its Lanyon Place and Odyssey zones is separate again. 3.15 There is currently a lack of critical mass to the retail/visitor experience, and the image that is conveyed does not have the impact that it could - or should. As identified by the Belfast Visitor & Convention Bureau, and by comparison with the Republic of Ireland and other European Cities, visitor and retail stays are
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shorter than they could be. This is in part because people are not encouraged to explore the City as a whole, and in part due to a lack of quality and quantity of facilities and overall experience. 3.16 However, the situation is undergoing significant change. The Victoria Square Regeneration Scheme, due to open in 2007, will provide significant impetus to the process of improving this situation, not only adding to the quality and diversity of retail on offer, but also facilitating connections between different quarters. Regeneration masterplanning is underway in the North West and North East Quarters of the City Centre. Laganside is well on the way to completing its physical regeneration remit within Cathedral Quarter and development proposals for Titanic Quarter are emerging. 3.17 Much remains to be done to raise the Belfast experience to the urban design standards of the best European regional capital cities which provide memorable civic spaces that epitomise the image of such cities. Belfast has some fine buildings,
but routes and spaces that are special, because of the quality of materials and detailing and because of the way in which they are used should complement these. Spaces and routes should be coherently linked with views, landmarks and other forms of punctuation, which encourage movement from one area to another. It is in this respect that the relationship between buildings and spaces is fundamentally important. Spaces need buildings to provide enclosure and spatial definition, but most also require them to contribute vitality and use. Existing Buildings 3.18 Of principal importance to the public realm strategy is the role that the buildings play in terms of contributing appropriate activation to the spaces and routes. If a route or space does not have buildings alongside which interact with it, through the doors and windows of shops, cafes, restaurants, pubs, galleries or tourist facilities it is difficult to encourage the movement of people from one end to the other, no matter how high quality the route itself is. Likewise, most City Centre
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premises rely on footfall for their business success. Without high quality public realm, it is difficult to encourage the movement of people and the duration of stay to be extended. It is clear therefore that the buildings and public realm must work together for the potential of the City to be fulfilled. 3.19 Buildings with dead ground floor elevations bound many existing areas of public realm and key routes. The link between Donegall Square and the Waterfront Hall is relatively short, but due to visual barriers associated with security adjacent to the Courts and lack of active frontage along Chichester Street, the route is currently under-used, although this will change with the opening of Victoria Square. Landmarks punctuate the legibility of the City. Buildings, collections of buildings, landscapes and vistas to them, make Belfast the special place that it is. Through this strategy, it is important to identify those that make a positive contribution and which should be retained and enhanced. It is also important to identify locations where new landmarks should be created.
3.20 Some of the Citys finest buildings have a magnetism that attracts people to them, but unfortunately do not reward the visitor with an opportunity to enter and engage with them. The agencies that now own and manage buildings such as the City Hall, the Customs House, Harbour Commissioners Office and Waterfront Hall need to be encouraged to maximize the opportunity which these fine buildings can offer to the visitor through extended opening hours, events and exhibitions. St.Georges Market has been restored with great care and is now a hive of activity on Fridays and Saturdays, but again holds greater potential for visitors to the City through further extended opening hours. There is a significant need to identify key buildings, which can or should be landmarks and focal points for the City, not only visually, but through their use and activation. Character Areas 3.21 It is important that the strategy facilitates the realisation of a high quality, distinctive City environment. It should build on the characteristics that make Belfast a special place, and ensure that these components
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are safeguarded, and indeed enhanced and complemented. It is in this way that an image can be portrayed that will be embraced by those who have grown up and lived in the City and by those who are contemplating it as a place to work, live or visit. As with the existing land and building uses, the character areas of the City are currently fragmented and lack cohesion. These areas are influenced by amongst other things, their uses, the scale of buildings and the spaces between them, and by colours and textures of materials. Currently, there is neither a comprehensive character and identity for the whole of the City Centre, nor a legible sequence of localized areas. Draft BMAP has identified nine character areas which specify urban design criteria including allignment, massing and scale. The full policy for the control of development within City Centre Character Areas is contained in Policy UE1. In taking forward the implementation of this strategy DSD will give regard to this Policy. Social Dynamics 3.22 The vitality of the City Centre relies on the built fabric of buildings and spaces, but it is also fundamentally related to the way in which people use and interact with it. Whilst solitude is a characteristic to be cherished in the Mournes or on the North Coast, it is rarely something that makes a City Centre space special. The City Centre is a place for people to shop and do business, it is somewhere that people should meet and socialise and somewhere that people visit to be part of a vibrant environment. Spaces, routes and buildings need to respond positively to social dynamics. With few people currently living in the City Centre, the connections to places where people do live are particularly important. Appropriate routes to the neighbourhoods across the City need to be provided. The impact of divided
communities requires careful, sensitive consideration in the implementation of the public realm strategy with the objective of using best practice in urban design to contribute positively to the reduction of elements of division. Whilst there is a significant lack of positive use of the City Centre public realm, it was noted through the consultation process that one of its important qualities is that it is accepted and used by all sections of the community. This is a factor that should be consolidated upon, as appropriate uses are introduced. Management and Maintenance 3.23 High quality public realm requires the combination of good design, detailing, materials, and buildings. Even when these components are integrated, the potential is rarely fulfilled without appropriate management and maintenance regimes. Janitorial maintenance operations are essential, ensuring that areas are kept clean and safe. DSD will address the need to further improve the coordination of the management and maintenance of the public realm within the City Centre.
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3.24 Memorable spaces are often made, not by the design components, but by the ways in which they are used. For some this may be passive, for quietly enjoying a sunny seat or a pleasant view. Other spaces are driven by activity, by the passage of people, performances and of things happening. Belfasts public realm lacks cohesive positive use. The prime retail streets are compromised by inappropriately located street traders, seats, kiosks and other furniture and traffic. This creates a congested environment that is a deterrent to browsing and enjoying spending time in the place, which in turn is an important factor associated with inhibiting increased spending potential. In addition, public spaces such as Writers Square and Blackstaff Square lack appropriate activity and purpose. 3.25 There are times when existing policies and legislation compromise the ability to use the public realm to its full potential. The Road Traffic Act does not allow streets to be closed for carnivals and other civic events. The placing of tables and chairs on footways outside cafes is deemed an obstruction and currently the only penalty
for a vehicle parked within a pedestrian zone is a parking fine. There are no mechanisms at present for the vehicle to be removed to enable the public realm to function as intended. Current planning policies place little emphasis on developers to introduce appropriate ground floor uses in key areas, and indeed often result in their use for parking. The Draft Belfast Metropolitan Area Plan highlights the importance of developing a high quality urban environment and refers to the Belfast City Centre Public Realm Strategy as guiding the cohesive development of public realm in the City Centre. The Draft BMAP seeks to promote vitality at street level. New development will be expected to incorporate active uses and positive features at ground floor level. This feature will assist in the animation of the street and improve legibility.
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SECTION 4: IMPROVING THE PUBLIC REALM OVERARCHING CONCEPTS AND PRINCIPLES

Concept Plan 4.1 The Concept Plan responds to the appraisal of the existing conditions and presents a strategic response to the need for positive changes to be delivered. This provides a comprehensive and cohesive vision for the future, which will require significant capital expenditure and policy changes to bring to fruition. Clearly this will take a considerable period to realise, but should be viewed in the context of initiatives that can be undertaken from an early date that will contribute significantly to the processes of change that are required, whilst being integral parts of the overall vision. 4.2 Whilst recommendations are made which, together will bring about the sustainable and comprehensive enhancement of the public realm of the City, it is also firmly founded on delivering the core principles contained within the Belfast City Centre Regeneration Policy Statement. This section of the strategy outlines overarching concepts and then develops the principles of key components to illustrate how they may be manifested. This is structured as follows: The Character the image of the City as a whole and the need for distinctive Quarters; Legible hierarchy of routes and spaces the proposed structure of public realm; Green Links the concept of physically as well as visually linking the City with the hills to the west and east and the value that green space brings to a City Centre; Materials; Public transport; Private and commercial vehicles. Developing the Character of the City 4.3 It is important that the proposed development of the built and public realm form of the City Centre should consolidate the positive characteristics to ensure that it becomes a distinctive City which those who live and work there respect and recognise as their own but which also appeals to those considering the location of a prospective business, or those who are leafing through holiday or week-end break brochures. Through discussion with the Belfast Visitor & Convention Bureau, one of the primary assets of the City that has been identified is its people. Visitors have noted the warmth of welcome that is provided. It is important that the City should develop in such a way that this asset is capitalised upon. The current lack of spaces for people to meet and participate in activities, as well as the lack of nighttime activity within the central areas are issues that should be resolved in order that the Citys potential can be realised. 4.4 Characteristics that make Belfast special include the views to the hills to the east and west, from most parts of the City Centre, and the relationship with the River Lagan and Belfast Lough. The historic roots of the place are important, therefore visual and social references to the Port, with icons such as the giant cranes of Samson and Goliath, and the linen and tobacco buildings should all be recognised within the developing framework. Whilst it is important that the City should develop as a consolidated unit, rather than being fragmented as is currently the case, it will be important to respond to the distinctiveness of areas within it. The concept of City Quarters is advocated in this respect, building on initiatives that are
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emerging for areas such as Cathedral Quarter, Market Quarter and Linen Quarter. The strong and good template that the grid-iron streets provide is an asset to be capitalised upon. New York has an extreme structure in this respect, but one that facilitates the definition of city quarters and is an example worthy of note. 4.5 Quarters should respond to localised distinctions relating to uses, the scale of buildings and spaces or materials, colours or textures. It will be important for the Quarters to emerge as special places in their own right, but which have cohesion within the City as a whole. Elements that unify the City may include core materials, such as the distinctive Belfast kerb and predominant use of Caithness slab paving. This would provide an opportunity for complementary materials to be used in key areas. A family of street lighting columns and fixtures, seats, litter bins and other elements of furniture should be established for use, rather than the diverse collection that currently exists. This will not only aid visual cohesion, but will be of benefit in cost and operational terms in
relation to ongoing maintenance. Buildings should be developed to maximise their relationship with the street or space. Uses should be encouraged that retain or add activity, whilst high quality facades and signs should be promoted. Incentives including grants or rate reductions, as used elsewhere, should be considered in this respect. 4.6 Opportunities to introduce more residential units to the City Centre, particularly above retail or other active ground floor uses should be encouraged to bring added vitality to the area. Proposed character areas have been identified through appraisal of the physical characteristics that exist, the ways in which people use those areas, historical references, combined with the future vision of how areas and the City Centre as a whole may be developed.
A Legible Structure of Routes and Spaces 4.7 Successful towns and cities are legible places that people can readily understand, orientate themselves within and move around. Belfast, particularly with its
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existing grid framework of streets, has the potential to be such a place, but due to a combination of circumstances, including one-way systems and pockets of dereliction within central areas, this is undermined. This strategy provides a framework with a legible hierarchy within which development can take place. It identifies three tiers of spaces and routes that link them. Each is important, and without the others playing their part to the full, the City as a whole will not fulfil its potential. The tiers reflect the fact that the Civic Space and Spine should be at the heart of Belfasts existence, they should be supported by the City components, which function at a citywide level, whilst Neighbourhoods have more localised significance. The tiers of public realm should relate strongly with each other, giving coherence to the structure of the City, but should also contribute to the development of a positive relationship with the River Lagan. It is proposed that the spaces should contribute a range of functions to the City and operate at a variety of levels, whether as regional magnets or as special places for people who live or work in adjacent streets. The Draft Urban Environment Strategy identified:
Green Links 4.8 In recognising the importance of the visual links between the City, the River and the hills to either side, an overarching concept of creating physical as well as visual linkage is advocated. Opportunities exist to link existing open spaces, with new ones to create Green Links. These range from the open hillsides, to sub-urban parks, to inner city spaces and generous tree lined boulevards. It is proposed that these corridors, which penetrate the City Centre, should promote pedestrian and cycle access into the communities and countryside at the edges of the City. This will also provide part of a network of pedestrian and cycle routes that facilitate access to City Centre work and leisure for people living in outlying areas, as part of a sustainable response to addressing social needs. Materials 4.9 The development of the public realm of the City should combine form, function, materials and detailing to create character and distinctiveness. It is in this way that marketing and branding can be most effective, and the enthusiasm of those who live, work and visit can be captured. As opportunities for the development of the public realm arise, it is important that a brief can be provided that outlines the functions that the place should have, but also which guides the use of materials. A considered balance is required that will encourage the richness that comes with diversity, whilst maintaining an overall coherence. It is advocated that a palette of core materials be established that will provide the required cohesion. Given the likely proliferation of these materials, their choice should be carefully considered. It is proposed that choices be based on past performances and appropriateness. Particularly in relation to the street furniture, consideration should be given
nine Belfast City Centre Character Areas; high density accessibility nodes at Great
Victoria Street Station, Grosvenor Road, Central Station and Gamble Street;
key streets in Belfast City Centre; key gateways to Belfast City Centre; and key nodes along arterial routes.
The strategy also established strategic design guidance and strategic priorities for improving the quality of the visual environment.
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not only to robustness, but also to ease of maintenance. It is only in this way that the areas can be developed, and continue over time to have the requisite quality of appearance. Kerbs 4.10 In the above context, it is noted that there is a 200mm wide yellow/grey granite kerb type which predominates throughout the City and which provides a sense of cohesion and permanence, being associated with historic streets as well as new ones. It is proposed that reclaimed or new kerbs to match should be used as a core material. Pedestrian Spaces 4.11 Caithness slab paving or blue slabs were common throughout the City until relatively recently, when they were replaced with bituminous and concrete products. Recent Laganside and Belfast City Council schemes have used extensive areas of new Caithness paving. It is an extremely durable material, which has natural colour variation that lends itself to associating with a range of building materials, such as stone, brick or concrete. Accordingly it is advocated that this be used as the core streetscape material within the City Centre, tying Quarters together. It should however be noted that varying modules can and should be used to respond to the scale of a street or space, with narrower gauges being used for narrow lanes and alleys, whilst wider gauges can be effectively introduced in more generous spaces. Complementary Paving Materials 4.12 Using the canvas of the Caithness, it is proposed that a range of materials be used, in response to the locality of a project. Examples would include granite slabs, setts, cubes, timber or metal. Care should be taken not to introduce too many
different materials within any one area and that selection should respond to appropriateness. It is important that areas for pedestrians should have a good slip resistance and provide an even surface. Care should therefore be exercised if the use of small element units such as setts or cubes is being considered, as to whether those with mobility impairments can access the area. In this respect it is recommended that slabs or large element units be used for main desire lines. Use of concrete block paving should be avoided in all City Centre locations. It contravenes the principles of using large module paving for pedestrian areas and requires replacement after relatively short periods. If high quality stone paving cannot for whatever reason be used, it is advocated that an honest response be made by the use of asphalt or a simple concrete slab. Vehicular Spaces 4.13 Principal vehicular routes should continue to be surfaced with asphalt. Consistency should be established in respect of the use of coloured aggregates, which are presently used. Through renewal programmes, existing City Centre concrete carriageway wearing courses should be replaced with asphalt. This will aid coherence, whilst reducing ambient noise levels (concrete surfaces generate more noise than asphalt). In areas where a wallto-wall surface treatment is appropriate,
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such as the lanes of Cathedral Quarter, or the Civic Spine, Donegall Square or High Street, it is proposed that granite setts or cubes be used, in accordance with best practice techniques. Slabs can rarely be trafficked and should not be promoted for use in an area that is expected to sustain vehicle use. As with slabs, there are a wide range of module sizes and colours of granite that can be used to provide distinctiveness to an area. 4.14 When designing public realm projects, it is advocated that a wall-to-wall design be established that addresses not only materials, but also levels. In many areas, road levels have been built up over a period of years and have led to pavements falling from the kerb, back to a channel line. These are maintenance liabilities and can often be associated with puddles and uneven surfaces and should be avoided. This will require significant capital expenditure to re-profile the road, but should be considered as an essential part of creating a sustainable high quality public realm, rather than one of make do and mend. Street Trees and Vegetation 4.15 Cities need vegetation. The green of leaves and grass provides a valuable aesthetic foil to hard building materials. Grass is enjoyed by large numbers of people in the City Centre, who, as evident adjacent to the City Hall, use it extensively in good weather for sitting, eating and relaxing. The current scarcity of grass spaces within the City Centre should be addressed through the proposals. Street trees are important components. They provide the green benefits, but also add seasonality and scale to the street. For the latter to be the case, it is essential that existing mature trees be safeguarded, managed and maintained, whilst new ones should be of such scale that they contribute
positively from the outset. One of the benefits of large street trees is that they impact little at ground level, with only a trunk protruding from the surface, affording the potential to walk below a mature canopy that adds significantly to the visual characteristics of the street. Existing detailing of tree grilles adjacent to the City Hall are such that this potential is realised. Throughout many other areas a policy of using relatively small trees without grilles, creates insubstantial visual impact and creates zones, within busy footways, which are not available for use by pedestrians. Future proposals should respond by the use of mature trees, with appropriate grilles. 4.16 Planting details should be carefully considered, in the context of the prevalence of underground services. Trees should be planted and maintained in such a way that they can fulfil their potential stature, rather than being stunted by their growing conditions. Designers and funding agencies should agree from the outset the importance that is to be placed on trees in a specific area. If importance is high, this should be followed through by the allowance of significant funds for relocation of existing services to achieve viable pits. If a tree cannot be planted properly, it is suggested that it should not be planted at all.
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Lighting 4.17 Street lighting contributes significantly to the environment of the City, through the street furniture of the columns or fitments, but also through the colour/quality of light output. It is advocated that a bespoke suite of street lighting be established for the City. A systematic programme of renewal should be undertaken to replace the disparate styles with ones from the consolidated family, thereby contributing to the overall cohesion of the City Centre. The quality of light source should also be given strategic consideration, using white light for footways and prime retail or Civic spaces. Initiatives for amenity lighting should be integrated within project proposals as they are developed. Street Furniture 4.18 Complementary with the street lighting, it is proposed that a bespoke suite of furniture be established. This should include seats, bins, cycle stands, shelters, signs and all the other components that appear within the public realm. As with all elements, quality and sustainability should be prime considerations. With each project, careful consideration should be given to all elements of site furniture, to ensure that it is kept to a functional minimum, avoiding repetition and the retention of redundant features. Interpretation 4.19 Recent introductions of interpretation panels by Belfast City Council are of high quality and are useful components in the processes of orientation. Strategic consideration should be given to their integration with other elements of interpretation, such as directional signs and information panels that illuminate the history, culture and buildings, spaces and people of interest.
Public Art 4.20 There is an increasing prevalence of public art in Belfast, but as yet its introduction and appreciation have not been fully embraced. It is proposed that public art, in all its forms, from civic sculptures, to murals, to incidental pieces, temporary works, audio, visual or whatever else, should be considered fully, as an integrated part of the public realm. As each component of the Citys public realm is designed, opportunities should be identified to introduce artists to the process. It will be through the craftsmanship and personality of an artist, whether local or of international renown, that the character of the place will be brought to life. Pieces should cement the relationship between the citizens, visitors and the fabric of the urban form. Public Transport 4.21 An effective public transport infrastructure is essential for the well being of the City. The Belfast Metropolitan Transport Plan and the Draft Belfast Metropolitan Area Plan have proposed transportation initiatives which would be complementary to and, in places, which would fundamentally underpin the development of the public realm. The following section outlines key aspects that should be given continued and more detailed consideration.
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4.22 It is proposed that the existing Great Victoria Street Station be consolidated as an integrated public transport interchange, which has bus, train and parking provision. The potential for the Dublin train to arrive there rather than at Central Station should be considered. In addition it is proposed to develop a new station to the north at Gamble Street, which should be integrated with bus facilities, through the potential relocation of the current Laganside Bus Centre. It is proposed that Central Station be maintained as a valuable asset to the rail infrastructure, providing excellent access to Lanyon Place. 4.23 The existing and currently ordered rolling stock is not suited to short stop services. Consideration should be given to the future introduction of trains that could service an increased number of halts at increased frequency. At such a time consideration should be given to the potential to establish halts at the Gasworks and Odyssey. Public transport penetration into the heart of the City between the stations is important. Currently City Bus services operate to and from Donegall Square with the result that this prime Civic Space is dominated by parked and moving buses. Whilst the principle of providing access to
the centre of the City is endorsed, it is advocated that other viable alternatives be considered. These may include a rapid transit system linking the east and west via Wellington Place/Chichester Street and the establishment of a loop, which uses Queen Street and Castle Street/High Street. 4.24 Consideration should be given to the establishment of appropriate public transport links along the line of the Green Link, between Great Victoria Street Station and the Gasworks and also to connections with the proposed EWay and other priority corridors. Priority corridors to the west, along Grosvenor Road, the north along Corporation Street (accessing the proposed Gamble Street Station) and to the south along Botanic Avenue are advocated. Private and Commercial Vehicles 4.25 The current vehicular dominance within the core areas undermines the quality of environment, for shoppers, visitors and businesses. Most businesses within the core areas rely on footfall for their livelihood. Whilst effective service access, parking and public transport are required, there is little benefit to most businesses from passing cars and lorries. Concepts to reduce the incursion of through traffic into the core areas should be combined with the provision of large high profile car parks at the edges of the core. 4.26 One of the central objectives is to reduce severance within the core areas. Key areas in this respect are associated with Donegall Square and also links to the River across Victoria and Oxford Streets. Car parks should be developed in locations that aid access and which are immediately adjacent to the loop and preferably to the outside of it. Consideration should be given to the redevelopment of ones that compromise this concept, such as Hi Park, which encourages vehicle ingress to core areas.
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SECTION 5: PUBLIC REALM IMPROVEMENT PROPOSALS

The Civic Spine 5.1 Leading from Donegall Square, the principal civic space, it is proposed to establish a principal spine, which responds to the existing high footfall, particularly adjacent to Castle Court. This Spine should extend to the north along Royal Avenue/Donegall Place. A series of nodes would be established along the route to create high points and emphasise special characteristics. Such places would include Castle Place junction. The Draft BMAP proposes to extend the City Centres prime retail frontage from Donegall Place along Royal Avenue to the junction of North Street thus emphasising the importance of the civic spine. 5.2 It is proposed that the civic scale of the Spine be complemented by appropriate active building uses. Consideration should be given to the architectural treatment of building facades. There are many fine buildings that are compromised individually and in their relationship with the rest of the street, by inappropriate fascias and signage. The streetscape should be of the highest quality, promoting a prestige image that supports the proposed building uses. Generous tree lined footways are proposed, in conjunction with reduced vehicular prominence. Obstructions should be kept to a minimum to ensure that the street environments maximise their potential use by people. It is proposed that hubs of activity be focused at the nodes, where non-permanent kiosks, information points and an opportunity to pause along the route can be established. These locations provide an opportunity to reflect issues of heritage and culture. Street lighting and the proposed introduction of associated banners would coherently link the sections of the Spine and provide opportunities for seasonal or event related branding. Donegall Square 5.4 The importance of Donegall Square cannot be overemphasised. The Draft BMAP has designated Donegall Square as a Local Landscape Policy Area. Currently the building uses and dominance of buses and other vehicles around the City Hall, lead to it isolating the retail core to the north, from the Dublin Road/ Bedford Street area to the south, and from the commercial Linen Quarter. It is proposed that Donegall Square should be redeveloped to provide an icon setting for the Citys icon building. It should integrate the City sectors on each side, through its building uses and public realm. Rationalisation of public transport and private vehicle movements should be implemented to reduce severance. It is proposed that stationary buses be removed from Donegall Square north, east and west and most if not all circulation displaced to adjacent streets. 5.5 The City Hall is an impressive landmark building for the City. It is, however, inaccessible, with little public permeability, or use, and with perimeter railings that keep people at a distance. It is proposed that as part of the comprehensive regeneration of Donegall Square that consideration be given to the role of the City Hall. Proposals of international
5.3
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acclaim, potentially arising from a design competition for the Square should create usable space in front of the City Hall, suitable for large gatherings of people, but which provides a setting of exceptional quality for the Citys premier building. The design of the public realm should be of the highest quality, using high quality materials and detailing appropriate to this focal location. Care will be required to determine the existing elements that should be retained, and those that would compromise the potential of the Square. 5.6 Undoubtedly there will be great debate in relation to many of the issues of design associated with Donegall Square but for the benefit of the City as a whole, and consequently Northern Ireland, it is important that the debate is held, and that a scheme be implemented that is worthy of the accolade of principal civic space. Work on Donegall Square would provide high impact benefits to the City as a whole. It would address issues of severance and division, whilst creating a natural focus for the City and its civic activities. Introducing changes in building use would enhance the profile of the Square, facilitate linkages and would target a missing section of the retail market.
historic buildings, this civic space is located at the historic birthplace of the City, at the confluence of the Rivers Lagan and Farset. Traditionally the steps of the Custom House were used as a speakers corner, where large numbers of people gathered. Visual and physical links between the City Centre to the west and the port to the east are essential ingredients. Laganside Corporation has implemented public realm improvement in Custom House Square achieving a space of international standard which complements Donegall Square and provides Belfast with the usable space that it needs. Lanyon Place Lanyon Place has set benchmark standards in respect of quality of public realm materials, detailing and maintenance. A dynamic relationship between the Waterfront Hall, its adjacent buildings and the surrounding spaces, the River and City Centre to the west should be promoted. However, the management of the public realm could be further enhanced and it is recommended that consideration be given to development in conjunction with the Waterfront Hall and future buildings, to bring activity to the area, rather than merely providing a high quality setting for prestigious buildings.
5.9
City Spaces 5.7 A number of existing and potential public spaces have a responsibility to the City as a whole and relate to the City Routes. These should fulfil functions which are varied and complementary with each other, and which relate to the character of adjacent City Quarters, whilst being held in a strong relationship with Donegall Square at the heart. Custom House Square Custom House Square is the most important of these City Spaces. Relating to the magnificent Customs House, the Albert Clock and a number of other fine and
5.8
5.10 It is advocated that consideration be given to the relationship of Lanyon Place with the River and Central Station. Opportunities to create direct connections from the station into the public realm should be considered, to obviate the current difficulties of arriving by train at the wrong side of East Bridge Street. This may be facilitated by a comprehensive review and potential redevelopment of the Maysfield Leisure Centre and adjacent land and properties. Future opportunities to create permeability to the riverside should be considered in the vicinity of the Hilton
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Hotel and BT office. The implementation and maintenance standards that have been set should be continued as development of remaining sites is completed. Corporation Square 5.11 It is proposed to develop Corporation Square as the northern-most City space. The space would terminate the Waterfront Boulevard and provide a setting for the Harbour Commissioners office. As with the Custom House, it is advocated that a more public, active use be considered for this exceptionally fine building. Corporation Square will facilitate the integration of the Clarendon area with the City Centre. Through the development of a new bridge connection to Odyssey, it would also provide a strong relationship between the two sides of the River. Corporation Square should complement substantial built development that would consolidate, with built forms and uses, the integration of Clarendon with the City Centre to the south and west. A missing radial link is proposed between Cathedral Quarter and Corporation Square, which would connect with the proposed Gamble Street Rail Halt. Odyssey Plaza 5.12 Complementing Corporation Square to the west, Odyssey Plaza should provide an appropriate northern termination of the Odyssey Boulevard and landing point for the proposed bridge link. The existing setting for the Odyssey complex is of high quality, but would benefit from increased emphasis to the riverside aspect in response to the proposed development of the Boulevard and bridge. Queens Quay 5.13 A premier riverside space is proposed that will complement Lanyon Place and relate to the proposed Odyssey Boulevard in the same way that Lanyon Place relates to the Waterfront Boulevard. The space would
benefit from good sunlight aspects and activity generated by the continuation of the Riverside Walkway and the vibrancy that would be introduced with new buildings. Proposed buildings would include a hotel, restaurants, and niche sector shopping, as well as residential and commercial premises to consolidate the density and therefore activation. Masterplan proposals for the area have been developed by Laganside Corporation. Royal Belfast Academical Institution (RBAI) 5.14 The existing open space in front of Inst is of strategic importance, working with the adjacent buildings to terminate the westwards vista along Chichester Street/Wellington Place. The space should be retained and opportunities should be promoted to facilitate links to the west, whilst maintaining a secure perimeter to the school property. The Draft BMAP has proposed the designation of this area as a Local Landscape Policy Area.
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little vitality to the area and have led to concerns being expressed that the area is not experiencing sufficient change quickly enough. Experience of cultural quarters elsewhere indicates that establishment cannot be artificially hurried, but that the benefits are worth persevering for. It is, however, advocated that measures could and should be promoted in respect of the large surface car parks, and through the proposed development of the Talbot Street Arts Centre, which would provide tangible evidence of progress and critical mass to the concept. 5.17 St. Annes Cathedral is the focus for the area and has recently been the subject of significant enhancement work, including its setting. The Cathedrals perimeter walls and railings, along with parked cars which flank the building, isolate it within the space. The relationship of the Cathedral to the space in which it sits could be significantly enhanced by the removal of these elements and the extension of high quality surfaces to the line of the proposed and existing buildings which define the space. This will be particularly significant as sites to the north and east are developed. 5.18 The proposed Talbot Street Development will provide an important destination within the area and add critical mass to the cultural identity. To deliver the required
Bank Square 5.15 It is considered that Bank Square is not functioning as a public space. Work to the Square would require extensive architectural and development intervention to complement the public realm. DSD will bring forward proposals for the redevelopment of Bank Square as part of its masterplanning exercise underway in the area. Cathedral Quarter 5.16 This distinctive area of the City Centre was designated a Conservation Area by the Department of the Environment, due to its historic importance. The area is typified by brick-built warehouse style premises and relatively narrow streets and lanes. Extensive lengths of settled streets contribute to the historic appearance. The area has been branded as the cultural quarter for the City. Laganside initiatives are starting to give credibility to this aspiration, though high profile dereliction and expanses of car parks contributing
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benefits to the Quarter and City, this development should be of international acclaim and should establish a street frontage to the Dunbar Link, whilst engaging strongly with the Cathedral precinct. Specialist/niche sector retail would contribute positively to the arts and cultural identity of the area. Writers Square 5.19 To the southwest of the Cathedral is Writers Square. It has the potential to function as the Neighbourhood space for the Quarter, but currently lacks vitality. Whilst the redesign process has resulted in the creation of a high quality space, featuring high quality materials, it remains lacking in activated frontages, and in fact has zones that are intended to keep the public at a distance from adjacent premises. If the space is to succeed, this is a matter that requires urgent attention. The masterplanning exercise currently being undertaken by DSD will take account of these issues. Bridge Street/Four Corners 5.20 The Four Corners is the junction of Bridge Street with North Street, Donegall Street and Waring Street and is of historic significance, but is also an important link between Cathedral Quarter and the Retail
Core, including the proposed Victoria Square development to the south of High Street. It is advocated that this area be developed, along with appropriate building uses. In this context the existing Northern Whig building is an important anchor, with the proposed mixed-use development at the corner of Donegall Street with Waring Street also pivotal. At the centre of the area is the existing Northern Bank, which is now not operational. It is a fine building that could contribute more significantly to the vitality of the area, as has been proved by its use as a temporary theatre venue. 5.21 Laganside Corporation has embarked on a programme of streetscape improvement projects, including Gordon Street, Hill Street, Commercial Court and Cotton Court. These will facilitate the movement of people throughout the area, whilst contributing positively to its identity. Streetscape improvements in Waring Street have been implemented with Laganside working in partnership with DSD to ensure that a comprehensive scheme is delivered. It is important that such initiatives are continued by DSD through to Bridge Street in order that the area can be developed comprehensively. Links to the west along Talbot Street, with the potential connection to Corporation Square via the Gamble
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Street Railway Station and the Waring Street link to Custom House Square are other key components of maximising the potential of Cathedral Quarter. 5.22 Whilst Cathedral Quarter does not have a direct interface with residential communities, it should provide an important link to the west and north. Routes to Clifton Street, North Queen Street and via York Street to Henry Street should all be developed to promote access and integration. Linen Quarter 5.23 This Quarter has been recognised as being of historic significance, through its Conservation Area status. Large buildings, many of which were built in support of the linen industry command wide gridiron streets. To the east a small zone of housing imposes a dramatic change in scale, on land that was formerly the millpond. Linenhall Street runs north-south through the area, with the termination at the Ormeau Baths Gallery and Green Link to the south. It is proposed however, that the Quarter should have St Malachys Church as its focus. The Church is an important visual landmark for the entire area and is also a social focus for the residential community to the east and of the Markets community beyond. 5.24 The public realm of the area should provide a focal setting for St. Malachys, but also provide strong links which radiate from it, including those which cross Cromac Street to the Markets. Linenhall Street, Linenhall Square and the link along Linenhall Street West should complement these.
Blackstaff Square 5.25 It is proposed that Blackstaff Square should be developed as a neighbourhood space. The existing Blackstaff Square has become misused and is of concern to adjacent businesses. Proposals require to address the relationship of the buildings with the space, and to create an environment with an enhanced sense of security. Currently, most properties present their back doors and service elevations to the space and contribute little vitality to it. Most, however, are the type which could benefit from a positive relationship with a high quality public space. It is therefore advocated that the space be developed in parallel with the adjacent premises, and that the business community of the area be encouraged to participate fully, carrying out changes to their buildings to benefit the space and positively managing its uses. Design proposals should seek to minimise the impact of vehicles on the area, and where possible to displace them. As with Bank Square, it is noted that the successful delivery of the regeneration of this area is particularly challenging. If it is not possible to engage fully with each of the buildings that interface with the
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Square, it is advocated that consideration be given to alternative approaches, which introduce new development to activate the space and the consequent reduction in the size of the space itself. 5.26 It is proposed that the existing space be developed in conjunction with new spaces to the south, which would in turn provide links with adjacent areas. Management of these areas should capitalise on the leisure identity of the area, providing controlled opportunities for outdoor entertainment and dining. Library Quarter 5.27 This part of the City has considerable existing dereliction and urban decay, yet is immediately adjacent to Castle Court, which enjoys some of the highest retail footfall counts. The area has experienced social tensions associated with its location at the threshold of the City, close to residential communities. Land and building uses do little to counter the atmosphere of apprehension associated with the area. The area has a strong framework of streets and existing buildings. Some, whilst they are in a relatively poor state of repair, have significant potential. Development of the area to the north of Castle Court should provide an improved street frontage to
North Street, which will be of benefit to Library Quarter. The streetscapes of Library Quarter should be developed to complement the character of the area and promote its regeneration. Library Street and Little Donegall Street combined with the proposed open space and lanes running to either side are particularly important in this respect. North Street and Donegall Street should be developed to facilitate links to Cathedral Quarter and the communities to the west. Proposals for the development of the area will be brought forward by DSD as part of its masterplanning exercise in the area. City Routes 5.28 From the Civic Spine, it is proposed to establish a series of City Routes that will facilitate pedestrian movement throughout the City Centre. These links would integrate the Spine with the Riverside and with the City Quarters. High Street/Castle Street 5.29 The historic importance of the High Street as well as its strategic connections should be emphasised in its establishment as a primary street within the City Centre. It is proposed that through traffic be displaced, with bus and service access retained. This would release significant space for positive
33
use. It is proposed that a zone in the centre of High Street be established with kiosks, seating and play facilities, beneath the shelter of a mature canopy of trees. The kiosks and other elements should reflect something of the former presence of the Farset River. Use of water jets as proposed at Custom House Square may be appropriate. Regeneration of the flanking buildings should be promoted. There are sections of the street elevations that are particularly poor, both in terms of quality of building and appropriateness of use. 5.30 Development of the historic entries to the south and Bridge Street and the other streets to the north should be promoted to facilitate linkage between the retail core and Victoria Square and Cathedral Quarter respectively. DSD, Belfast City Council and Belfast City Centre Management Company are working on a coordinated public realm improvement project for the historic entries to commence in March 2005. 5.31 To the east, an opportunity exists to enhance the route across the River at the Lagan Weir, linking with the Waterfront and Odyssey Boulevards. A sequence of spaces would be linked, including Custom House Square, Donegall Quay, Queens Quay, Castle Place and a gateway space at College Avenue. This long, east-west link
should be established as a principal route of access to the City Centre for use by the communities of the east and west. This will play a substantive part in the reinforcement of city communities as outlined in the Belfast City Centre Regeneration Policy Statement, linking with complementary neighbourhood renewal initiatives in the adjacent areas. 5.32 The Belfast City Centre Regeneration Policy Statement places emphasis on the orderly delivery of regeneration initiatives, particularly with regard to the investor-led retail components. In this respect no new major retail development is anticipated in the southwest quadrant of the retail core, adjacent to Castle Street, in the foreseeable future and accordingly, it is proposed that enhancements to the public realm should be used to underpin that which presently exists. Chichester Street and May Street 5.33 These are two complementary civic streets, which link the Citys primary civic buildings of the City Hall and the Waterfront Hall. To the west, Inst provides punctuation. Both streets currently carry heavy traffic volumes and cause significant severance, particularly in respect of north-south movement between the retail core and the Dublin Road/Bedford Street areas and the Linen Quarter. It is advocated that consideration should be given to the rationalisation of vehicular movement and public transport throughout the core areas. 5.34 Security measures associated with the Courts should be addressed with the objective of improving visual permeability and the cohesion of the route. Building redevelopment should be pursued to create active ground floor frontages. The proposed development of Victoria Square will be of significant benefit in this respect, providing valuable and
34
appropriate ground floor uses, as well as a critical mass reason for people to go to the end of Chichester Street and then venture beyond to the River. It is proposed that a high quality streetscape be implemented and that the introduction of lighting columns with banner attachments be used. This could be used positively to brand the civic activities and events at the City Hall and Waterfront Hall. The Draft BMAP has proposed that the area adjacent to Victoria Street/ Oxford Street should be designated as an area of townscape character. Waterfront Boulevard 5.35 The link from Clarendon at the north to East Bridge Street at the south is at present disparate in character and lacks legibility around the Queen Elizabeth Bridge and Queens Bridge. It is proposed to rationalise the street form and to establish a Boulevard that links the City Spaces of Corporation Square, Custom House Square and Lanyon Place. The strong relationship with the River will be the key to the experience of the Boulevard. A gallery of banners is proposed which would feature community art initiatives, in association with corporate art, within a tightly controlled colour spectrum that would graduate through the colours of the rainbow from one end to
the other. These would be at relatively close centres creating a strong visual cohesion. It is proposed that no trees be introduced as part of the Boulevard, such that there is a distinction between it and the streets and spaces immediately to either side, which would, in contrast, feature extensive tree planting and soft landscape. To the east, this would be consolidated as part of the strongly vegetated River corridor. It is proposed that the built form to the west of the Boulevard should provide a strong edge to the route, whilst to the east, larger buildings with slightly less regular footprints and generous spaces between them, promoting views to the River should be consolidated. Increased building activation in the area is advocated, both in terms of new and existing properties. Laganside Corporation is currently undertaking phased implementation of the proposals for the Boulevard. Odyssey Boulevard 5.36 It is proposed that the existing Station Street flyover be removed and the street form from Odyssey to Bridge End be rationalised. This, whilst significantly shorter, should become a complementary partner to the Waterfront Boulevard. An exciting sense of approach to the Odyssey
35
should be established, with a strong built edge to the east and larger footprint buildings to the west, with generous spaces between them. As with the Waterfront Boulevard, a procession of banners is proposed, and existing and future building uses should be developed to maximise the vitality of the area. Odyssey Boulevard provides an interface with links to the east Belfast communities, particularly at Bridge End, which is an extension of the Newtownards Road. It is important that these connections are improved to facilitate integration of these communities with the City Centre. The Retail Core 5.37 It is proposed that the streets and lanes to either side of Donegall Place be developed, providing an improved quality of environment within the existing busy retail area. Key streetscape phases within this zone include Lombard Street, Rosemary Street, Berry Street, Ann Street, Castle Lane, Arthur Street, Montgomery Street, Church Lane, Fountain Street, Queen Street and the series of entries and arcades particularly linking with High Street. Each is important to the overall effectiveness of the area. Design and management proposals should be established which reduce obstructions to the prime function of the area, which is to support the retail sector. High quality, durable materials should be used which convey a sense of permanence, but which are also appropriate for the heavy use to which they are subjected. It is proposed that Arthur Square should be developed as the focus of the southeastern quadrant. The existing dated bandstand provides a poor quality image and in fact inhibits appropriate movement and use of the area. This area will become increasingly important as the gateway to Victoria Square.
5.38 Management issues of street cleansing, trade waste collection and service vehicle access are all ones that impact significantly on the core retail area. It is proposed that the operation of these services should be reviewed alongside the implementation of this strategy. The Victoria Square development will have a significant impact on this area, and should be beneficial in establishing a critical mass of high quality retail to the southeast, as a counterbalance to Castle Court. It will be important that the streetscapes throughout the area are developed to facilitate movement of people between these areas, ensuring that the benefits of increased footfall are experienced as widely as possible. Development of land to the north of Castle Court will also have a major impact, and should improve integration with the Library Quarter to the north and with the residential communities to the west. 5.39 Draft BMAP has outlined the Primary Retail Core based around the main Donegall Place/Royal Avenue retail spine. It extends westwards toward Millfield/College Avenue/Bridge Street/Church Lane/Victoria Street and also includes areas immediately to the east and west of the City Hall. It also extends the Primary Retail Frontage in Belfast City Centre. This encompasses Donegall Square North/Donegall Place, Royal Avenue, Castle Place Corn Market and William Street South. York Street 5.40 Large institutional building frontages and a wide carriageway dominate York Street, which combine to undermine its use and activity. The existing open space at the corner of York Street and Donegall Street compounds these issues, with extensive areas of dense vegetation and dead space. It is proposed that consideration be given to the regeneration of the area, with the
36
objective of renewing its City functions. Redevelopment of the University of Ulster campus and Cathedral Gardens should be encouraged and guided to ensure that they maximise the potential liveliness that student activities can bring to the area. Strong street frontages should be established in conjunction with enhanced links through the site and a combination of courtyards. North Street 5.41 North Street provides an important interface between the retail core to the south and Library Quarter to the north, but also between the City Centre and the residential communities to the west. It is currently in a poor physical state, but includes a number of buildings of architectural merit. It is proposed that the buildings and streetscape be developed as a key component of City Linkage. To the south this should integrate development of street frontage with retail at ground floor and with links to the adjacent Castle Court, whilst to the north it should become part of the regeneration of Library Quarter. Cathedral Way/Royal Avenue 5.42 At the interface between the Retail Core and Cathedral Quarter is Lower Garfield Street and adjacent blocks. DSD will bring forward development proposals for this area as part of its masterplanning exercise underway in the South East Quarter.
The Golden Mile 5.43 This area has developed an identity associated with leisure, with a considerable number of pubs, clubs and restaurants. Late evening activity in the area is significant and is something, which, whilst associated with some social problems, is generally considered to be an asset that should be consolidated upon. It has been noted that this area, particularly at night, functions largely in isolation of other areas, despite the emerging focuses elsewhere in the City, such as Cathedral Quarter. In this respect the links through Donegall Square, Donegall Place and High Street should be improved, not only in the quality of their public realm, but also through the introduction of buildings that activate the streets after the shops have closed. The physical environment of the Golden Mile area is relatively poor and dominated by vehicles. This is particularly evident throughout the daytime, when there are fewer people present, and is an aspect that should be addressed. 5.44 Shaftesbury Square punctuates the southern gateway to the City Centre. Careful consideration should be given, through dialogue with DRDs Roads Service, to determine the potential to reduce vehicle and pedestrian conflict in this area. Opportunities to reduce vehicle volumes along the City Route of Dublin Road should be considered, with the potential for this to function more prominently as the public transport corridor, linking with the proposed Super Route from the south. Whilst lighting will play an important part in all of the proposed public realm developments, its role in this area will be particularly prominent. Dublin Road 5.45 This lively area associated with leisure activities should be more closely linked with the rest of the City Centre. It is
37
proposed that this be done by developing a City Route between Shaftesbury Square and the Civic Spine, via Linenhall Street West. It is proposed that the streetscape of this link be developed, to complement the active building uses. Rationalisation of traffic should be considered, with the objective of reducing traffic volumes, whilst promoting this route for public transport. Great Victoria Street 5.46 The land to the west of Great Victoria Street has significant problems, associated with derelict land, inappropriate building and land uses and lack of integration with the City Centre or adjacent residential communities. It is advocated that Great Victoria Street, Fisherwick Place, College Avenue, Millfield and Carrick Hill (which are a continuation of the same road), should be developed, where possible, with street form and function, whilst continuing to function as a heavily trafficked route. Currently there are sections that have little activation and indeed many of the buildings, which should and could address the street, turn their backs on it. Given appropriate uses and links, as exist adjacent to the Europa Hotel, The Crown Bar and Robinsons Bar, it is evident that this can be a street for people to use and enjoy despite the volume of vehicles. 5.47 To the west, it is proposed that regeneration and development should be focused on Great Victoria Street Station. The potential to create a prominent station building with grand plaza that could provide the required focus for the area should be explored. This would facilitate the regeneration of adjacent blocks, which are currently behind the arriving passengers, and therefore do not experience good footfall. It is proposed that the station development could combine with the redevelopment of the
landmark Whitehall Tobacco Factory and the Green Link, to provide a significant catalyst to the regeneration of this area, which would complement the adjacent ongoing development of the Lincoln Centre. 5.48 This south western quarter contains pockets of residential communities and thresholds to more substantial community areas beyond the Westlink. As part of the process of enhancing the social environment, it is advocated that developments should be promoted which blur some of the edges. Opportunities to consolidate the residential areas and indeed facilitate their extension towards the City Centre, in the form of apartments or living over the shops, should combine with initiatives to encourage the reestablishment of the streets to the west. These should provide opportunities for shop and office developments alongside the main arterial routes. Connectivity To The City Centre Neighbourhoods 5.49 As part of the process of enhancing the public realm it is advocated that best practice urban design should be promoted, which provides strong links that facilitate integration of the neighbouring communities with the City Centre. A collaborative Arterial Routes Partnership led by Belfast City Council and consisting of Belfast Area Partnership Boards, Northern Ireland Housing Executive and Belfast Regeneration Office has been established to take forward projects to enhance the vitality of the main routes and provide a visual statement about the Citys character. DSD will work in partnership with the Arterial Routes Partnership to ensure the development of a cohesive approach to strengthen routes to the City Centre from the neighbourhoods.
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SECTION 6: MAINTENANCE AND MANAGEMENT - THE NEED FOR CHANGE

6.1 Appraisal work and consultations, carried out by The Paul Hogarth Company, concluded that the existing urban form, its development, management and maintenance are currently fragmented. This results in Belfast City Centre failing to fulfil its potential. It is clear that the success of the City Centre and its public realm relies on the successful combination of numerous facets. The following sections of this strategy outline mechanisms that can and should be implemented in order to respond positively to this challenge. 6.4 6.2 The need for a high quality public realm has been recognised by government through the Belfast City Centre Regeneration Policy Statement. It is not a cosmetic treatment that is required, rather, it is a public realm founded on an understanding of the City, how it works and can be developed. The public realm must sustainably enhance the economic and social vitality of the City Centre, and must be approached holistically, be needs driven and knowledge led. The previous sections of the strategy have addressed the form of the public realm and how it may most appropriately be developed. Without an effective delivery mechanism such concepts will have limited effect. Currently the public realm is implemented by a number of core bodies. Laganside Corporation in particular have undertaken some significant elements of work and have an ongoing programme. DSD has undertaken public realm work throughout the City. Recently projects have largely been relatively small-scale and low-key, or have focused on outlying communities. The Departments commitment to the Victoria Square development will contribute substantively to City Centre regeneration and there is a focus through the Belfast City Centre Regeneration Policy Statement to investment in public realm works that will underpin key principles. In particular, DSDs vesting powers are a valuable attribute that will be strategically used as part of an integrated approach to regeneration. Belfast City Council has demonstrated through the Gasworks Site, and other areas of activity, its contribution to delivering high quality public realm infrastructure. The contribution of the private sector should not be underestimated. Whilst the sectors emphasis will predominantly be on the built form of the City, there are times when the sector implements elements of public realm. This contribution is valuable, but of more significance is the requirement for developers to bring forward the right buildings in the right locations. The reality is that the implementation of the public realm is and should remain the responsibility of the public sector, as it provides an amenity for the City as a whole. To date implementation has been piecemeal, though Laganside Corporation has been working to a strategy within their sector of the City. Those who live, work and visit the City do not see administrative red lines on the ground, but they are aware that some areas have been the subject of more focused investment and have resulted in improved standards of public realm than others. This in turn has been reflected by significant investment in those areas by the private sector. It is advocated that a fundamental reform of the implementation structures be considered, that will result in the City being treated as a cohesive entity, rather
6.5
6.3
39
than parcels of land. It is proposed that significant benefits may accrue from the integration of maintenance, management and delivery functions and this proposal should be explored by government. Management Of The Public Realm 6.6 There is currently little proactive coordinated management of the public space in Belfast City Centre. A more proactive approach, holds the potential to offer economic and social benefits to the City by facilitating a range of activities including staged events. This potential has been clearly demonstrated by Belfast City Council and Laganside Corporation undertaking occasional, often very successful events, along with the efforts of private promoters. These tend to be large scale one off operations and are not supported by a raft of everyday occurrences of note. The public realm presents a wealth of opportunities that can be capitalised upon, whether for major performances, fairs, promotional events, street theatre, flower stalls, cappuccino kiosks or whatever else. It should respond to the demands of those who would wish to use it, whether that be office workers wanting to eat lunch in an open attractive environment, visitors seeking to understand the place better or skateboarders who are here today, but may be replaced by some other hobby in the future. Management of the spaces needs the entrepreneurial spirit of those who see opportunities. There are genuine opportunities for economic activity to be generated from the spaces themselves, with promoters paying for the privilege of using somewhere like Donegall Square or Custom House Square for a large show or the launch of a new product. Equally, if a place is busy with people for whatever reason, opportunities to sell food and drink, stalls and the like can, not only generate revenue but, also add to the 6.7
vitality of a place, provided that they are well managed and co-ordinated to ensure that they do not compromise the quality of the space and the core reason for people to be there. In the context of the above, it is advocated that government and the private sector should address the current arrangements for the maintenance and management of the Citys public realm which are currently fragmented and lack coordination of resources. This issue embraces wideranging and complex issues relating to public liability, employment practices and entrepreneurialism. Whilst the complexity of the matter is daunting, it is a challenge that the City must endeavour to meet. The vision of the Citys public realm becoming a vibrant one that supports the core functions of retail and commerce, whilst adding an extra dimension through its own contribution is one which most would welcome. No individual or organisation currently takes responsibility for making Belfast a twenty-four seven environment that is enjoyed by its citizens and visitors alike. The private sector has on occasions tried to be innovative in its use of the public realm, with shelters and heaters used to counter the prevailing climate and encourage people to use street-side tables and chairs for outdoor eating. This has at times fallen foul of legislation, which states that the carriageway and footway are not to be obstructed with such elements. Problems also exist in relation to laws regarding drinking and sale of alcohol outdoors. These legal statutes are intended to prevent abuse of the public realm. It is proposed that consideration should be given to refinement of the laws to enable positive uses to be permitted. Similarly, it is proposed that the Roads and Highways legislation be reviewed, in line with Great
6.8
40
Britain with the intention of facilitating the temporary closure of streets for carnivals, parties and other events that could contribute positively to the life of the City. This is currently an option that is not available through existing legislation. Statutes and legal frameworks should be established, which are consistent with principles of developing and sustaining high quality public realm and its uses. Maintenance of the Public Realm 6.9 Existing maintenance responsibilities for the Citys public realm are shared by a number of public and private sector bodies. Roads Service has statutory responsibility for ensuring that the adopted areas of road and footway are maintained in a safe condition. This includes repair of surfaces, lighting, gritting of roads (though there is no such obligation to the footways), weeding pavements and caring for all trees and vegetation within those zones. Belfast City Council has a responsibility to sweep the streets and footways. Control of the street trading operations also falls within their remit.
6.10 Many of the business premises have contracts with private operators for the removal of trade waste. These are currently uncontrolled with collections taking place at unrestricted times. This, combined with similar problems with service / delivery vehicles, frequently leads to the obstruction of prime retail streets within the shopping core. 6.11 One of the primary disturbances to the floorscape of the public realm is caused by the activities of utility services. It is important that wherever possible renewal work should be scheduled in advance of the proposed high quality finishes. Where utility renewal work is positively programmed, rather than reactive, opportunities may appropriately be taken to undertake more comprehensive public realm works and as such partnering established between the public and private sector to the betterment of the whole. In this way new or relocated services can be installed in preferable locations that will ultimately reduce costs to the public realm
41
work itself. Improved co-ordination of ongoing and often essential utility works after completion of the public realm should be promoted, potentially through the Northern Ireland Road Authority and Utilities Committee. Through this, consideration should be given to the establishment of a skill base of personnel, appropriately trained in the use of high quality materials and available for reinstatement as well as new works. 6.12 Each of the parties who contribute to the maintenance of the public realm operates largely independently of the others and usually within defined parameters. Whilst the diligence of those concerned is not in question, the overall effectiveness of the system is. Much, but not all of the public realm is adopted and is therefore the responsibility of Roads Service. By comparison Lanyon Place operates a private management company, which maintains the area to a particularly high standard. Blackstaff Square and Writers Square have had chequered backgrounds of responsibility. At the heart of the issue of maintenance of the public realm is the sense of ownership. It is currently viewed as a liability that only those who are obliged are prepared to engage with. With issues of vandalism and liabilities, the public realm has been considered by many as being a burden, both financially and logistically. This is an unfortunately biased view, which is almost inevitable given that those who look after the spaces do not have combined powers to create revenue streams from the public realm itself that can balance the books. In the short-term it is proposed that principles and standards of maintenance be established, within a co-ordinated plan to which all relevant parties can subscribe. In the longer term consideration should be given as to how that the maintenance and management
systems might be restructured to consolidate the two functions of maintenance and revenue generation in a way that is currently not possible. 6.13 DSD will work with Belfast City Council, DRD Roads Service and the private sector to fully address the issues that have been outlined above concerning management and maintenance issues to ensure that the potential of the public realm is fully realised and its attractiveness protected. The Planning Framework 6.14 The Draft Belfast Metropolitan Area Urban Environment Strategy promotes a welldesigned and vibrant metropolitan urban area which will play an important role in enhancing the quality of life, increasing civic pride and promoting a sense of place. It will also contribute to economic growth by attracting visitors and providing a suitable location for inward investment, particularly knowledge based and creative industries. The Draft BMA Urban Environment Strategy draws on similar urban design principles enshrined in current DSD policy documents including the Belfast City Centre Regeneration Policy Statement and the Belfast City Centre Public Realm Strategy.
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SECTION 7: PUBLIC REALM IMPROVEMENT PROJECT IMPLEMENTATION PLAN

7.2 In considering the phasing of improvement programmes, cognizance should be taken of known and future major regeneration proposals such as the Victoria Square Scheme. The following provides a project managed approach and funding profile that could be established to achieve significant impact within the public realm of the City. It is noted that a number of projects have been or are in the process of being implemented, whilst Laganside Corporation have earmarked others within its Corporate Plan. Costs in the table that follows are based on rates that are appropriate in February 2005. Costs do not provide for projected inflation, VAT or professional fees within these figures over the period of implementation of this Strategy. DSD proposes to take forward the implementation of the proposed improvement projects over a period of 5 to 10 years subject to the outcome of economic appraisal, the availability of funding and meeting planning legislative requirements.
7.1
As previously outlined, the strategy provides a long-term vision. For practical, as well as financial reasons, delivery will take a number of years. In this context, opportunities to secure budgets should be taken, whenever possible, with the intention of working in a co-coordinated way towards the overall vision. Priorities will change along with the details for individual areas, but unless the City and those committed to its enhancement and development take hold of a cohesive vision and embark on its delivery, status quo will prevail to the detriment of all.
7.3
43
FUNDING PROFILE TABLE

Location
Existing Condition Profile/Usage Impact
Indicative Costings
m
Cathedral Quarter Streetscapes Hill Street Waring Street Donegall Street North Street Four Corners Core Retail Area Streetscapes Lombard Street Rosemary Street Ann Street Bridge Street Castle Lane Castle Street Fountain Street High Street Entries Blackstaff square Custom House Square Bank Square Donegall Square High Street Donegall Square Corporation Square Waterfront Boulevard Odyssey Boulevard Royal Avenue/Castle Place St. Malachys Ormeau Avenue Queens Quay Lower Chichester Street Upper Chichester Street May Street Ormeau Baths Gallery Linenhall Street Linenhall Square Linenhall Quarter Square Library Quarter Streetscape H H H M H H M H H H H H H H H H H H M M H H M M M H H H H H H H H H H H M M H L H H H L H M H M M M M H M M M M L L H H H M H H H M M H M H H H M H H H M M H H H H M H H M M H H M H H M M H H H H H M H M
4.5*
7.4
2.2 4.25* 3.4 12.1 5.3 2.9 2.3 3.8* 3.3* 3.7 1 1.1 1.4* 1.2* 2.9 3.5 1.6 3.1 1.3 0.8 3.6
*Denotes potential contribution by Laganside Corporation Basis for Prioritisation: Existing Quality H where the exisiting environment is poor, M average, L good Usage/Profile H where there is an existing high footfall, M average and L low (note this does not reflect potential) Impact H where the City and wider vision will be positively benefited, M where the Quarter will be benefited and L where the benefit is more localised.
44
APPENDIX A
CONSULTEES & REPORTS Statutory Bodies and Relevant Organisations Belfast City Centre Regeneration Directorate (previously Belfast Regeneration Office) Laganside Corporation Belfast City Council Development Department Culture Arts and Leisure Events Arts and Heritage Officers Environmental Services Parks and Amenities Belfast City Centre Management Company DRD Roads Service Translink/Transport Holding Company DOE Planning Service Imagine Belfast Belfast Metropolitan Area Plan team Belfast Metropolitan Transport Plan team Belfast Visitor & Convention Bureau Northern Ireland Housing Executive Environment and Heritage Services Background Documents Conservation Area Documents (Cathedral Quarter, Linen Quarter and City Centre) Draft Townscape Strategy (Todd Architects) City Centre Health Check (Belfast City Centre Management) Laganside Linkage Strategy (Laganside Corporation) Draft BRO Strategy February 2002 (Belfast Regeneration Office) Belfast City Centre Regeneration Policy Framework July 2003 (Department for Social Development) Belfast City Centre Regeneration Policy Statement April 2004 (Department for Social Development) Draft Final Belfast City Masterplan September 2003 (Belfast City Council) Developers MDC Westfield Dunloe Ewart Deramore Properties Diljit Rana Consultants Belfast City Council, landscape architects (Writers Square) John Williams, landscape architect (Blackstaff Square) Light Matters (City Centre Lighting Strategy)
Additional copies of the Strategy Document are available on request from:
Belfast City Centre Regeneration Directorate Department for Social Development 2nd Floor McKelvey House 25 Wellington Place Belfast BT1 6GD
Tel: 02890 277653 Fax: 02890 277655
This document is also available on the Departments Website www.dsdni.gov.uk
This publication is also available in various formats. For more information please contact the Department for Social Development.
February 2005

People and Place Public Realm Strategy For BCC

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People & Place Reflections of a City Public Realm Strategy for Belfast City Centre

Rt. Hon. John Spellar MP Minister for Social Development

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SECTION 2: HISTORIC BACKGROUND

SECTION 4: IMPROVING THE PUBLIC REALM OVERARCHING CONCEPTS AND PRINCIPLES

SECTION 5: PUBLIC REALM IMPROVEMENT PROPOSALS

SECTION 6: MAINTENANCE AND MANAGEMENT - THE NEED FOR CHANGE

SECTION 7: PUBLIC REALM IMPROVEMENT PROJECT IMPLEMENTATION PLAN

FUNDING PROFILE TABLE

Additional copies of the Strategy Document are available on request from:

Tel: 02890 277653 Fax: 02890 277655

This document is also available on the Departments Website www.dsdni.gov.uk

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