Hackney Tall Buildings Strategy

Tall

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Buildings

Hackney Tall Buildings Strategy

Phase 2 Report

URBAN ANALYSIS AND CONSULTATION



Issue D - FINAL



February 2005







London Borough of Hackney









Strategy

Hackney Tall Buildings Strategy 1

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Table of Contents



1.0 Introduction Page 6

1.1 Overall Approach

1.2 Urban Analysis: Method

1.3 Urban Analysis: Layers

1.4 Layer Content: Building the Strategy

1.5 Values assigned to Urban Analysis layers

1.6 Opportunities and Constraints

1.7 The Tall Buildings Strategy Plan

1.8 Further Refinement



2.0 Urban Analysis Page 13

2.1 The Borough in Context



3.0 Views and Visual Experience Page 15

3.1 View Types and Methodology

3.2 Strategic Views

3.3 Important Townscape View Setting

3.4 Prominent Buildings and Focal points

3.5 Linear View Corridors

3.6 Significant Views to and from Open Space

3.7 Local Views

3.8 Conclusions: Visual Experience



4.0 Topography Page 20

4.1 The River Valley

4.2 A Gently Sloping Heartland

4.3 Conclusions: Topography



5.0 Transport Infrastructure and Capacity Page 23

5.1 Public Transport- Rail and Transit Oriented Development

5.2 Public Transport- Bus Services

5.3 Public Transport- Accessibility

5.4 Public Transport- Cycle Routes

5.5 Transport- Main roads

5.6 Conclusions: Transport Infrastructure and Capacity



6.0 Conservation areas Page 33

6.1 Defining Conservation areas

6.2 Planned Areas

6.3 Layered Areas

6.4 Groupings of Listed Buildings

6.5 Landmark Listed Buildings

6.6 Conclusions: Conservation Areas



7.0 Commercial Centres Page 36

7.1 Major Centres

7.2 District Centres

7.3 Local Centres

7.4 Conclusions: Major, District and Local Centres









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8.0 Tall Building Activity Page 39

8.1 Areas of Existing Tall Buildings

8.2 Opportunity Areas

8.2 Conclusions: Tall Building Activity



9.0 Social Infrastructure Page 42

10.0 Open Space Page 44

10.1 Tall Buildings in Areas Surrounding Open Spaces

10.2 Open Space Capacity

10.3 Regional Parks

10.4 Metropolitan Parks

10.5 District Parks

10.6 Neighbourhood Parks

10.7 Local Parks

10.8 Linear Parks

10.9 Open Spaces and Historic Settings



11.0 Telecommunication & Flight Path Constraints Page 47

11.1 Telecommunications

11.2 Flight Path Constraints



12.0 Regeneration Areas Page 49

13.0 Opportunities and Constraints Page 52



14.0 Conclusions and Next Steps Page 58





Appendix A Tall Buildings Telecommunications Planning Issues









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1.0

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An aerial view of Shoreditch

with tall buildings dotting

the skyline including

Shoreditch Church and

Hackney Tall Buildings Strategy several residential towers

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1.0 Introduction

This report represents the second main phase of work associated with the

development of a tall buildings strategy for the London Borough of Hackney

(LBH). This document identifies, through a rigorous process of urban analysis,

areas of the Borough that are able, unable or that are potentially able to

absorb the impacts of tall buildings. The key findings of this report will form

the basis of the final tall buildings strategy.



1.1 Overall Approach



The overall approach taken to the study is in line with CABE and English

Heritage’s ‘Guidance on Tall Buildings’ (2003), which supports the strategic

level identification of areas of the Borough that are either suitable or that are

unsuitable for tall buildings.



“Such an approach will ensure that tall buildings are properly planned as part of

an exercise in place-making informed by a clear long-term vision, rather than in

an ad hoc, reactive, piecemeal manner.” (CABE & English Heritage, 2003)



The ‘areas of search’ identified through the urban analysis process set out

below will enable a number of more detailed area specific studies to be

undertaken in the next phase of work.



1.2 Urban Analysis: Method



The urban analysis process utilised for this study uses a ‘layered’ or ‘sieve’

methodology, which has been used in a number of other similar studies across

the UK. This layered method;



Uses the broad themes identified in the project brief and through the

phase 1 baseline study as individual layers in the process (refer section 1.3

and Figure 1).



Plots areas of the Borough, in relation to each theme (i.e. transport

capacity), that are suitable, unsuitable, or potentially suitable for tall

buildings.



Combines all of the layers together as a way of clearly and robustly

identifying those areas of the Borough that have the highest potential for

tall development as well as accurately plotting those that should be seen

as areas of exclusion.



Utilises the areas of potential identified through this process as the basis

for a number of specific area studies which will be undertaken in the next

phase of work.









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Figure 1: A diagram describing the layered approach to the identification of suitable

sites and their ranking in order of influence





1.3 Urban Analysis: Layers



The urban analysis layers that have been identified through the first phase of

study, the project brief, and from precedent studies are set out below and

graphically described in Figure 1 above. The layers have not been prioritised or

given a quantitative value in the development of the opportunities and

constraints plan and therefore the Tall Buildings Strategy Plan. However the

layers have been generally ranked in order of relative importance and are as

follows;



1.3.1 Views and Visual Experience

The first layer of the urban analysis identifies the strategic view cones and

corridors, including those set out in the London Plan, by adjacent local

authorities, and that have been identified through early consultations with LBH

officers.



1.3.2 Topography and Landform

This layer of the analysis process identifies the various topographical

conditions within the Borough and illustrates those areas, that because of their

elevation and resultant visual prominence are either suitable or unsuitable for

tall buildings.



1.3.3 Transport Infrastructure and Capacity

This layer identifies the strategic level capacity of existing, as well as proposed,

transport infrastructure within the Borough. This assessment provides a clear

picture of the overall accessibility of the Borough and makes an important

contribution to understanding areas of the Borough that are able to absorb the

infrastructure impacts associated with an increase in densities through tall

buildings. The layers within the transport infrastructure and capacity layer

include:

Public transport- Rail services

Public transport- Bus services

Public transport- Cycle Routes

Public transport- Accessibility

Transport- Main roads





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1.3.4 Conservation areas

Hackney contains 22 conservation areas, all of which have particular

sensitivities in relation to tall buildings. This layer identifies each of the

conservation areas within the Borough and makes a strategic level assessment

of their cumulative ability to absorb the impacts of tall buildings..



1.3.5 Commercial Centres

Commercial centres offer obvious foci for intensification and form the subject

of the fifth layer of the analysis. The layer identifies the major town and

district centres which are outlined in the Hackney UDP and the London Plan.



1.3.6 Tall Building Activity

This layer of the analysis process sets out the location of existing tall buildings

including identifying emerging clusters within the Borough. In addition areas of

Hackney that are seen to be under significant market pressure for taller

development are plotted. Market pressure is also illustrated by the location of

recent or current planning applications for tall buildings within the Borough.

The areas of development pressure were provided by LBH officers as part of

the early consultations undertaken for this phase of the study. These elements

illustrate both historic and likely tall building activity.



1.3.7 Social Infrastructure Capacity

Intense forms of development such as tall buildings have significant impacts

on the provisions of social infrastructure such as health and educational

facilities. This layer of the urban analysis process identifies existing social

infrastructure that is either likely or unlikely to have the capacity to support

tall buildings within the Borough.



1.3.8 Open Space

Access to open space and open space provision is a key issue in determining

whether or not a site is suitable for the level of intensification associated with

tall buildings. In addition, Hackney contains a number of historic parks and

gardens, which are sensitive to the visual impacts of taller development. This

layer sets out the open space within the Borough that is seen to be able to act

as a resource to the occupiers of any new tall buildings.



1.3.9 Telecommunication and Flight Path Constraints

A number of planning constraints, in particular those associated with

telecommunications ‘shadowing’ and dedicated flight paths will have an

impact on the viability of tall buildings in certain parts of the Borough. This

layer plots areas of sensitivity only to the known flight path constraint issues.



1.3.10 Regeneration Areas

This layer of the analysis process identifies a number of regeneration areas

within the Borough. The regeneration areas are identified as Area Action Plans

that have been or are currently being prepared by LBH. Also included on this

layer are the ‘Opportunity Areas’ which have been identified in the London

Plan, which is the Mayor’s overarching spatial strategy for the city. These

regeneration areas seek to focus the inward economic investment in the

Borough to the areas most able to accommodate intensification and

potentially taller development.









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1.4 Opportunities and Constraints



The information on the layers described above is brought together to create an

opportunities and constraints assessment that clearly highlights areas for

further investigation. This plan is then refined through iterative analysis to

produce the tall buildings strategy plan for Hackney. The opportunities and

constraints plan has been assembled using the following method, content and

values.



1.5 Layer Content: Building the Strategy



Elements on each of the analysis layers that are seen to be able to support the

development of tall buildings will be given a 10% colour value so that when all

of the layers are Borough are overlaid together, the areas with highest

potential for tall buildings will be those with the most intense colour, those

with some potential will have a mid level of intensity, and those areas

unsuitable for tall buildings will have either no colour or a very low intensity.

As there are 10 urban analysis layers, the 10% maximum colour value per layer

is appropriate as a 100% ‘colouration’ is theoretically achievable for each area

within the Borough. This process allows for a rigorous assessment of tall

building opportunities across the whole Borough.



Each layer will be assessed as follows;



A fine mesh grid of 50 x 50 metres over-layed on mapping of the Borough

to provide a consistent framework within which to plot information.



Red squares (10% colour value) within that grid that identify matrices

that are seen to be able to successfully support the development of tall

buildings in relation to the subject of that particular layer. For example

areas of Hackney that are seen to be suitable for tall buildings in a public

transport capacity sense might not be suitable for tall buildings due to the

proximity of a conservation area.



Pink squares (5% colour value) within the grid are areas that are

potentially suitable in that they are neither overtly positive nor negative in

terms of their capacity to support tall buildings.



Blank squares (0% colour value) are those areas seen as unsuitable for tall

buildings in relation to subject of a particular layer.



1.6 Values assigned to Urban Analysis layers



The analysis method outlined above indicates an over-layering of each urban

analysis element to define areas which have the most capacity to

accommodate tall buildings. Each grid square within the layer will be assigned

a red, pink or blank square which make it suitable, somewhat suitable or not

suitable according to the characteristics of the particular location. For

example the presence of strategic view corridors is considered inappropriate

for tall buildings and is therefore assigned a blank square.



The following outlines the values which have been attributed to each layer in

the process of assembling the opportunities and constraints plan.



1.6.1 Views and Visual Experience (refer Figure UA1)

Red Absence of both strategic views corridor and important local

views or townscape settings.

Pink Presence of important local views or townscape settings.

Blank Presence of Strategic London views corridor









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1.6.2 Topography (refer Figure UA2)

Red Levels below 25 metres

Pink Levels between 25-35 metres

Blank Levels above 35 metres



1.6.3 Public Transport Infrastructure & Accessibility

(refer Figure UA6)

Red Highly Accessible Areas (Areas with access to existing stations

with London Underground, mainline AND bus services).

Pink Accessible Areas to public transport (areas within 800m of a rail

OR underground station OR within 400m of a bus route).

Blank Low Public Transport Accessibility (areas of low accessibility to

both rail and bus services).

N.B. Accessible areas are located within 800m of Rail or Underground stations

and/or within 400m of a bus route.



1.6.4 Conservation areas (refer Figure UA8)

Red Areas outside of conservation areas

Pink Area adjoins a conservation area

Blank Presence of a conservation area



1.6.5 Commercial Centres (refer Figure UA9)

Red Presence of a major or district commercial centre

Pink Area within accessible walking distance to commercial centre

Blank Absence of a commercial centre



1.6.6 Tall Building Activity (refer Figure UA10)

Red Presence of existing tall buildings

Pink Areas of development pressure for tall buildings

Blank Absence of existing tall buildings and development pressure



1.6.7 Social Infrastructure Capacity (refer Figure UA11)

Red Presence of at least two elements of social infrastructure

Pink Presence of one element of social infrastructure

Blank Absence of social infrastructure



1.6.8 Open Space (refer Figure UA12)

Red Area adjoining open space

Pink Area within accessible walking distance of open space

Blank Area not accessible to open space



1.6.9 Flight Path Constraints (refer Figure UA13)

Red Absence of flight path constraints

Blank Presence of flight path constraints



1.6.10 Regeneration Areas (refer Figure UA14)

Red Presence of an Area Action Plan or Opportunity Area

Blank Absence of an Area Action Plan or Opportunity Area





1.7 The Tall Buildings Strategy Plan



The tall buildings strategy plan outlined in the later section of this report, and

based on the process set out above, provides a spatial strategy for the Borough

in terms of its capacity for tall buildings and will form a key tool in assessing

the locational appropriateness of tall building proposals within Hackney.









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1.8 Early Consultations



Early consultations have been undertaken with representatives from the

London Borough of Hackney including development control, planning,

transportation and housing officers. These consultations have been extremely

helpful in determining the areas of development pressure within the Borough,

the locations of current and outline applications for tall buildings and the areas

of the Borough that are considered most sensitive to the impact of tall

development. The involvement of these officers has been essential to the

success of this section of the study as it will be these officers who use the final

tall building strategy as a planning and development control tool for the LB

Hackney.



1.8 Further Refinement



The tall buildings strategy plan will be refined through further consultations

with LBH officers.









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Recent tall

development in

South Shoreditch

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2.0









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2.0 Urban Analysis

The process of analysing the urban characteristics of Hackney will assist in

identifying key aspects that will be important in developing a strategy plan for

tall buildings. The objectives of this analysis process include the retention and

enhancement of key strategic views and the identification of elements of the

natural and built environment that are essential to the character of the

Borough. Consideration has also been given to the economic and

infrastructure conditions and the possible monitoring and regulation of the

skyline to preserve the character of the Borough.



This analysis is based upon the extensive work already undertaken by the

London Borough of Hackney and other statutory bodies, which have

documented the historical, cultural and natural assets of the Borough and the

surrounding Boroughs.



2.1 The Borough in Context



The development of Hackney was heavily influenced by the growth of London.

Until 1965, the current London Borough of Hackney was three separate

metropolitan Boroughs - Shoreditch, Stoke Newington and Hackney. Each had

distinct histories stretching back to the Middle Ages, although urbanisation,

industrial innovation, and ethnic diversity are common themes which link the

three areas. Hackney was first recorded in 1198, Shoreditch in 1148, and Stoke

Newington in 1274. For the next 400 years all three were farming

communities in the Middlesex countryside.



After about 1660, as south Shoreditch in particular became increasingly built

up, the aristocrats who had constructed large country houses in the area

moved away. Their big houses were turned into schools or private lunatic

asylums. Developments such as Charles Square and Hoxton Square were built

for prosperous people who wanted to keep up a connection with the City.

From being a rural area outside the City of London, Hackney has developed

into the vibrant, multi-cultural Borough it is today. Yet it still retains traces of

its history in its buildings: from the old country residences such as Sutton

House, almshouses such as those now occupied by the Geffrye Museum,

through to the warehouses of Shoreditch, a more recent reminder of Hackney’s

industrial past.



After the railway came to Hackney in 1850 it became possible for the less well

off to commute daily from Hackney into the City. This led to the construction

of the Victorian villas and terraces which make up a large part of Hackney

today. The Victorian period also saw the development of industry in the

Borough of which large areas still remain even after the large relocation of

industry in the 1960’s, 70’s and 80’s. By the late 19th century much of the

housing of industrial workers, particularly in Shoreditch, was recognised as

unsatisfactory. Programmes of slum clearance were implemented. The three

Metropolitan Borough Councils of Hackney, Shoreditch and Stoke Newington,

undertook a number of projects to re-house many people in better conditions.

This lead to the large scale construction of many of the Boroughs’ council

estates, many of which included high-rise towers.



During the 1950’s high rise flats became more common as land became even

scarcer. The trend for high-rise living continued in the 1960’s and the big

tower blocks that were built became known as ‘streets in the sky’. Their

popularity dropped dramatically though in 1968 when part of an estate tower

block, Ronan Point, collapsed. However many do still exist and can be seen all

over London and in particular Hackney, although the Boroughs’ policy of

removal of towers has seen many removed and replaced with other forms of

dense housing development.









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The urban pattern of Hackney is therefore diverse, ranging from homogenous

areas of Georgian or Victorian terraces to the industrial warehouses of South

Shoreditch and the Lee Valley. The Borough also sits within the Greater

London Metropolitan Area offering connections between the city and areas to

the north and east. This has resulted in a porous urban structure with few

urban or architectural gateways to the Borough. The intensification of the

Borough should be focused on areas with the most capacity in transport, retail,

open space and infrastructure terms. However, this approach requires

consideration of some of the more detailed conservation area and visual

impact issues associated with the historic areas of the Borough which, will be

explored in the following pages.









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3.0 Views and Visual Experience

There is an established relationship between strategic views within a city and

tall building development. Although this correlation has generally been seen

negatively, this need not always be the case. In some circumstances the

sensitive addition of tall buildings may serve to consolidate clusters of existing

high-rise development and unify the skyline. Certain landmark structures may

also have the effect of adding interest to the skyline and creating a

recognisable way finding device within a city’s urban form, much as the Swiss

Re Tower and Tower 42 guide people towards London’s financial district.



3.1 Theory of View Types



For the purposes of this study the types of views experienced which are of

strategic importance have been categorised into five types which combine

both the viewing place and the view to achieve a view experience. The

following are five theoretical view types relevant to Hackney:



3.1.1 Contained Urban View

The contained urban view is best illustrated in Hackney by the views obtained

at the train stations, primarily Dalston Kingsland and Hackney Central stations.

The overall experience is defined by a round view of a cohesive urban

experience. The quality of the public realm and architecture are dominant in

these views.



3.1.2 Unfolding View

The unfolding view type is generally experienced within a through space and is

characterised by a constantly evolving, changing view along major routes. This

type is evident along some of Hackney’s main vehicular routes including

Kingsland Road and by train along sections of the North London line route by

train. The linear view along the Regents Canal is also typical of this unfolding

view type.



3.1.3 Panorama

A panoramic view is usually experienced from an elevated position or viewing

area and gives a wide view from outside of the area looking in. The only

identified panoramic view of Hackney is possible from the elevated point of

Finsbury Park just outside the north west boundary of the Borough.



3.1.4 Contained Prospect

This view type is usually experienced from open space within the city and gives

a broad view with a clearly defined edge. This view type is best illustrated by

views within the London Fields area where development around the park

restricts longer views.



3.1.5 Broad Prospect

The broad prospect view is characterised by a wide view which has a changing

edge condition. This is usually experienced within a corridor setting. This view

type is best illustrated by the linear views along the River Lee path.





3.2 Views and Visual Experience in Hackney



The London Borough of Hackney’s Unitary Development Plan (1995) does not

specifically propose a visual framework policy for the Borough as a whole but

is addressed in some cases through protecting the setting of historic landmark

buildings and important views within conservation areas.



Retaining and enhancing key strategic views through the sensitive siting of

tall buildings is a key objective of this study







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This layer of the analysis process aims to reveal at a strategic level areas of the

Borough that are particularly visually sensitive to the intrusion of tall buildings.

Five types of strategic views have been identified and investigated in the

Borough. These views include:



Strategic Views



Important Townscape View Setting



Prominent Buildings and Focal Points



Linear View Corridors



Significant views to and from Open Space



Obviously significantly more views of importance exist within the Borough

than those identified here. Further strategic view points may exist as the ones

contained in this analysis directly relate to the built environment of Hackney

and tall developments’ impact upon it. The following is a description of the

views which have been mapped on Figure UA1.



3.2.1 Strategic Views

This type of visual experience is generally a ‘panorama’ or ‘prospect’ involving

varied elements such as pastoral scenery, urban development, ridges and the

sea. The fore, middle and backgrounds are usually viewed as part of a cohesive

whole. Incongruous elements within these views are readily identifiable.



The strategic view occurring in Hackney is:



The background setting of the protected view from King Henry’s Mound in

Richmond Park to St Paul’s Cathedral.



This view is contained in the London Views Framework and is intended to

protect the prominence of St Paul’s and therefore all tall development within

this setting must be carefully considered. The Mayor of London has recently

released a draft of the revised London View Protection Framework. The

background setting to the linear view is no longer included within the

protected framework. The view has been included here to indicate the

prominence of this location. This area should not necessarily be seen as an

area of exclusion for tall development although any tall development proposed

in this area must demonstrate that it does not detract from the background

setting of St Paul’s.



3.2.2 Important Townscape View Setting

This view is typically of a ‘contained urban view’ type. It involves the viewer

with a rounded view of a cohesive urban experience. Focal points serve to

strengthen the overall view experience.



This view type is experienced within Hackney at:

Dalston Kingsland Station

Hackney Central Station/ Mare Street



Station sites also offer the opportunity to enhance the public realm and

improve first impressions of a space upon arrival.









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3.2.3 Prominent Buildings and Focal points

This visual experience generally involves a ‘contained prospect’ view type of

the historically tall built elements with a city such as church spires and

industrial structures. In some cases development around some of Hackney’s

landmark structures have detracted from the overall visual experience.

Protection and enhancement of these key assets will result in an improved

setting for these elements. Examples of this view type in Hackney include:

St Augustine’s Church in Hackney

The Kingsland Road Mosque

Shoreditch Church

St Mark’s Church, Dalston

St Mary’s Church, Stoke Newington

The Castle on Green Lane

St Thomas, Clapton

St John of Jerusalem Church, South Hackney



3.2.4 Linear View Corridors

This visual experience is typically the ‘unfolding view’ type. The linear nature

of this experience changes along the route depending on the edge condition,

open or contained. This view type is experienced within Hackney in several

places:

Regents Canal

Lee River Path



The linear view along the Regents Canal is generally one contained on either

side by buildings many of a traditionally industrial character. The view along

the River Lee Path on the eastern boundary of the Borough often affords open

panoramas over the adjoining open space.



3.2.5 Significant Views to and from Open Space

This type of visual experience is generally a ‘panorama’ or ‘contained prospect’

involving glimpses of open space or conversely, built elements from areas of

open space within the Borough. Examples of these views occur generally on

the Borough’s boundary and include:

Views into Victoria Park

Views from Finsbury Park

Views into the Lee River Valley



Views along the north eastern boundary of the Borough out into the Lee Valley

Regional Park and Hackney Marshes are an important part of its’ urban

character. Views of this type are also available from the south east boundary

into Victoria Park. A very significant visual experience also exists just outside

of the north western boundary from Finsbury Park down over the Borough.

Some tall development exists along the Park edge but it is generally of poor

quality and could be improved.



3.2.6 Local Views

Significant local views also exist within the Borough but have not been

analysed due to the strategic nature of this study. Although a detailed analysis

of these local views has not been undertaken as part of this study that does

not diminish their importance to the local character. Views such as the

contained axial views along minor residential streets to the city, and glimpses

of church spires down local streets between existing development form a

strong and memorable part of the visual experience of the Borough. It is

recommended that a thorough analysis of the visual impact of any new tall

building proposals be conducted which would include these local views and

their impact on surrounding urban character.









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3.3 Conclusions: Visual Experience



An analysis of the visual experience of Hackney focusing on Strategic Views,

Important Townscape View Settings, Prominent Buildings and Focal Points,

Linear View Corridors and Significant views to and from open space reveals the

following conclusions.



Preserve the Setting of Landmark Listed Buildings and Conservation Areas

The quantity and quality of Hackney’s historic architecture is one of the

Borough’s greatest assets. The visual setting of these buildings is of great

importance and should be protected from the visual intrusion of tall buildings.

There is limited scope for the integration of tall buildings into conservation

areas that have developed over time and are currently less intact than rigidly

planned areas such as De Beauvoir Square. New tall development in these

conservation areas must fully consider the visual impact on their setting and

prospect.



Protect and Enhance the Visual Experience

Hackneys’ visual character is highly variable across the Borough from streets of

intact Victorian terraces to the more recent tower block estates. This

heterogeneity should be protected and enhanced where desirable. The

development of new tall buildings should undertake extensive analysis of the

visual impact of proposals on key strategic view points, approach experiences,

points of arrival as well as important local views. New development should

not block these views but may have the potential to add to the legibility of the

Borough’s skyline and urban form if the development is of the highest design

quality.



Improve or Remove Existing Poor Quality Tall Buildings

In some cases the poor architectural quality and siting of existing tall buildings

seriously detracts from the overall visual experience of the Borough. There are

significant opportunities to improve the visual impact of existing tall buildings

by refurbishment or by their removal and replacement with higher quality

buildings.



Utilise Areas of Existing Tall Buildings to Develop Clusters

Areas within Hackney that are already characterised by tall buildings provide

the opportunity to consolidate these zones into clusters of taller development,

providing a stronger skyline, mitigating their visual impact, and relieving

pressure on other, more visually sensitive parts of the Borough. The poor

quality of some of the tower blocks evidenced along Hackney’s skyline would

be strengthened by the formation of clusters.



A Views Framework for Hackney

It is recommended that a comprehensive study be undertaken to identify all of

the strategic view points, approaches and important visual experiences within

the Borough. This may also encompass important local views. This type of

policy would give added weight to the visual quality of the Borough and aid in

its’ protection and enhancement.









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4.0 Topography

An analysis of the landform on which the Borough is based, in conjunction

with an analysis of strategic views, can help to reveal which areas of the city

are visually and physically able to absorb tall development. Figure UA2 sets out

the major features of the landform, which are analysed and described through

the following points.



4.1 The River Valley



The topography of Hackney rises from the south and from the east to rise to

its highest point in the north west corner of the Borough. The Borough’s

lowest point is along the eastern and north eastern boundaries which generally

follows the course of the River Lee. The landform in the north east corner of

the Borough rises sharply from the river along what is known as the ‘Hackney

Cut’.



This area is perhaps the most visually sensitive in terms of topography and tall

development. A tall building sitting on the higher ground above the river

valley would generally be of an imposing character and could obscure views

from the open space of Walthamstow marshes and along the river back into

the Hackney. Sensitive architectural treatment of a tall buildings’ form may

negate some of the negative effects, but generally this area should be seen as

one presumed not to be appropriate for tall buildings.



The visual impact of tall buildings along the edge of the river valley must also

take into account the visual impact from surrounding Boroughs. Views from

the flatter and more visually exposed areas of the Borough along its eastern

boundary should be carefully analysed by any tall building proposal.



4.2 A Gently Sloping Heartland

The gently sloping topography of the majority of the Borough from the north

towards the south allows many long views along the main routes. Views of

the Docklands cluster of towers and the cluster forming around the Tower 42

and the Swiss Re tower are possible from many points in the north of the

Borough especially along Kingsland Road and from the elevated ground of the

north London rail route.



The gradually rising topography of the majority of the Borough offers both

opportunities and constraints to the siting of tall development. If longer

outward views are not possible from a particular location then the scale and

form of the immediate surroundings becomes paramount. Inserting tall

development within these flatter areas can provide a local landmark or way-

finding device if the surrounding scale of development can successfully

accommodate it. This also puts increased importance upon how the building

relates to the scale of surrounding development and the general streetscape

character. It may be possible to lessen the negative effects of a tall building by

setting a tower back from the street and reducing the overall imposing effect.



4.3 Higher Ground

The highest ground in the Borough occurs in the north west corner adjacent to

Finsbury Park. The highest point in the park occurs outside of the Borough but

is an established viewing point down over the Lee River Valley. Localised views

over Woodberry Down are also possible from this viewing point. Some tall

development currently exists along the edge of Finsbury Park. Issues relating

to the visual intrusion into open space and blocking of longer views are the

most significant in considering tall and very tall buildings within this area.









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4.4 Past Mistakes

A number of mid rise to tall estate towers exist scattered across Hackney

serving as a legacy of the wholesale housing redevelopment of the 1960’s and

70’s . The majority of these towers serve little purpose as way finding devices

or indicating the major commercial centres of the Borough. For example the

De Beauvoir Estate towers are visually dominant over the Regents Canal

environment as is the Littleton Court Estate over the East Reservoir in the

north east of the Borough.



4.5 Conclusions: Topography

Considered as a factor in isolation, the topography of Hackney presents a

number of opportunities for taller development.



Focus Taller Development within Valleys and Low-Lying Ground

The Lee River Valley corridor that follows the eastern boundary of the Borough

provides significant opportunities to mitigate the visual intrusion of taller

development, reinforce the edge of the Borough and aid the regeneration of

particular areas.



Conversely, taller development should be discouraged from ridgelines and

hillsides, which are visually prominent and would block longer views into open

space or prominent landmarks.



Identify Specific Opportunities within the Borough

The flatness and scale of the spaces that exist in the southern and middle

sections of the Borough offer opportunities to further highlight areas that are

important in terms of commercial or municipal activity. Subject to more

detailed assessments, opportunities for taller development exist within these

regions to strengthen the visual appearance of the Borough, to aid

regeneration and provide way finding opportunities that currently do not exist.

Tall development must maximize the benefits associated with it whilst

minimizing any negative visual of physical impact on its surrounding area.



Strengthen the Prospect of Solitary Towers

A number of visually prominent tall buildings, primarily residential towers,

already exist in Hackney. Many are of poor architectural quality which

provides the opportunity to either strengthen their prospect by creating a

cluster of tall development surrounding them, refurbish and enhance them, or

replace them with alternative forms of development in the longer term.









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5.0 Transport Infrastructure and Capacity

The aim of this layer of the analysis process is to reveal the areas of the

Borough that are able to support increased density in transport terms.



Accessibility and the capacity of movement networks play a major role in

determining appropriate locations for tall buildings within the Borough. The

development of tall buildings and the resultant increase in urban densities,

places significant additional pressure on the transport systems of the entire

city. This combined with government objectives to encourage sustainable

transport choices places additional pressure on tall development to be fully

integrated with a variety of modes of transport. With this in mind the

following analysis of the major transport systems both within the Borough and

in adjoining Boroughs provides a critical layer of analysis in identifying areas

for tall buildings within Hackney. The analysis of transport in the Borough

includes:

Public Transport- Rail Services (London Underground and Mainline Rail).

Refer Figure UA3

Public Transport- Bus Services. Refer Figure UA4

Public Transport- Cycle routes. Refer figure UA5

Public Transport- Accessibility to rail and bus services. Refer figure UA6

Transport- Main Roads. Refer figure UA7



5.1 Public Transport- Rail and Transit Oriented Development

Rail transit has the ability to deliver high-speed connections between the LB of

Hackney, surrounding Boroughs, Greater London, and other areas of the UK

and thus has a major role to play in encouraging sustainable travel options and

in supporting the development of denser and taller buildings.



The principles of transit oriented development (TOD’s), largely developed by

Peter Calthorpe, outline a number of basic principles aimed at improving the

connectivity and liveability of our cities. Key amongst these is the idea that

areas within walking distance of rail or high frequency bus transit should

contain a mix of moderate to high-density residential, commercial and

employment uses that create a place with an active public realm and a focal

point for transit trips.



Basing tall buildings around rail stations also provides users and residents with

increased transportation choices and access, especially for those without cars

as well as reducing traffic congestion, air pollution and energy consumption.

Focusing development in these areas also enables developer contributions to

be put toward improvements to the public realm rather than costly road

widening that might be required to increase the traffic capacity in areas not

serviced by public transport.



The Borough is primarily served by mainline rather than London Underground

rail services.



Figure UA3 shows the current gap in accessibility to London Underground

services, by considering an 800m1 radius from each of the stations.



Accessibility to London Underground services is currently limited to the area in

the northwest of the Borough around Finsbury Park / Manor House and in the

southwest around Old Street Station. The proposed East London Line Extension

with three new stations in the Borough in Dalston, Haggerston and Shoreditch

will provide a greater level of coverage for the south-west corner of the

Borough. The future East London Line stations have not been taken into

account in the current accessibility map.







1

The Institution of Highways & Transportation, Guidelines for Planning for Public Transport in

Developments, March 1999.



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There is a greater level of accessibility to rail when the mainline services are

also considered. Figure UA3 shows the gaps in accessibility to rail, when an

800m walk distance from the all of the stations in the Borough is considered.



The gaps are in the northwest around Clissold Park, in the far northeast, in the

east around Hackney Marsh, in the south around Victoria Park and in the

southwest. Accessibility in the southwest will improve if the proposed East

London Line extension is implemented.



There are several London Underground interchanges outside the Borough that

connect with rail services within the Borough. There are a few that are also

located within an acceptable walking distance to selected parts of the Borough

(these are highlighted in bold below and in Figure XX):



Highbury & Islington (Victoria Line);

Seven Sisters (Victoria Line);

Finsbury Park (Victoria Line and Piccadilly Line);

Stratford (Central Line);

Old Street (Northern Line);

Moorgate (Circle Line, Hammersmith & City Line, Metropolitan Line);

Liverpool Street (Circle Line, Hammersmith & City Line, Metropolitan

Line, Central Line).



Although the coverage of accessibility to rail services seems reasonable, the

service provisions on the three mainline services vary significantly in servicing

the area.



The North London Line that runs east-west through the Borough is a core

orbital rail link between Richmond in the southwest and North Woolwich in

the east. In addition to servicing passengers, this is a heavily used strategic

freight route. The use of the route as a freight route potentially limits the level

of additional service provision for passengers and has also already raised

vibration concerns to residents. 2 This line is also expected to service the

Eurostar, to the North Pole Deport, once it goes through to St Pancras in 2007.



Of the stations on this line located in the Borough, Dalston Kingsland, Hackney

Central and Homerton attract similar levels of patronage in the peak periods

(an average of around 3,500 entry/exit over the three hour peak period).

Hackney Wick attracts a significantly lower level ( 10- 20 Buses per hour

> 20 Buses per hour



The highest bus service frequencies serve the majority of the main roads in the

Borough. Lower frequency services provide an additional level of coverage via

less busy roads.



5.3 Public Transport- Cycle Routes

An analysis of the main cycle routes through the Borough as indicated on

Transport for London’s cycle map shows the general development of an

integrated cycle route network. The map does indicate some general areas in

the Borough where sign-posted or traffic-free routes are absent. The Borough

also has a relatively low number of traffic-free routes where cyclists are off-

road. The main existing traffic-free routes include along the River Lee and the

Regents Canal.









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5.4 Public Transport- Accessibility

This layer of the urban analysis combines the following layers:

Public Transport - Bus services

Public Transport - Rail services



The location and frequency of these services determine the areas of the

Borough that are Accessible, Highly Accessible or Not Accessible to either bus,

rail or both transport services. Cycle routes are not considered in accessibility

assessments as it is seen as an element of infrastructure that can be gradually

enhanced or improved, especially if a contribution was made from a tall

building developer. Access to main roads is also not included in this

accessibility assessment as best practice guidance on this issue clearly

emphasises the need for tall buildings to be integrated into the public

transport system to reduce congestion on roads and improve access. The most

frequent bus services do occur along the main roads of the Borough which is

reflected in the accessibility assessment.



This layer attributes accessible areas for both bus and rail services including:



The areas of low accessibility to bus services (i.e. No bus service within

400m of the route, with 10 or more buses per hour).

The areas of low accessibility to rail services (i.e. No underground or

mainline station within 800m or 10 minute walking distance)

The areas of low accessibility to both Rail and Bus services (i.e. No bus

service within 400m of the route, with 10 or more buses per hour AND no

underground or mainline station within 800m).

Areas accessible to either a bus or a rail service.

Areas of high public transport accessibility (i.e. Areas accessible to more

than one mode of transport –bus, mainline or underground station.)



The plan identifies three areas of high public transport accessibility within the

Borough which are also reflected in the Mayor’s Transport Strategy and shown

in Figure UA6:



In the north west near Finsbury Park / Manor House

Shoreditch In the southwest of the Borough

In the centre around Hackney Downs where the three mainline services

cross (although this area is not accessible by Underground, the access to

three rail lines gives it a high accessibility level)



The current gaps in bus accessibility are up near Stoke Newington, around

Dalston, Hackney Marsh, Lower Clapton and peripheral areas in the north-east,

and south/south-west. The current gaps in rail accessibility are also indicated

on Figure UA6. These areas of low accessibility combine to identify the areas

of overlap which indicate areas of low accessibility to both rail and bus

services. These areas of low accessibility are:



A section north of Haggerston Park along Queensbridge Road

A section adjoining the southern Borough boundary along Victoria Park

A large area including Clapton Park and westwards to Hackney Marsh

An area in the north east corner of the Borough

An area running to the north east from the top of Clissold Park









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5.5 Transport- Main roads

A number of major vehicular routes provide connections between the city,

outlying settlements and London. These routes are the most common means

of accessing and moving around the Borough and have, given their width, scale

and extent, some capacity to support increased density.



In particular those routes, which combine bus priority measures and encourage

cycling and walking, are most suitable for the development of tall buildings.



5.5.1 Vehicular Interchanges with the Capacity for Intensification

Major road junctions and intersections can provide highly efficient locations

for denser development such as business parks, which might not be suitable for

inner urban sites.



5.5.2 Parking Standards

Parking standards should be seen as a powerful tool in assessing development

applications in the Borough and as an effective means of encouraging

sustainable transport. This guidance aims to reduce reliance on private vehicles

in the Borough by reducing the required levels of parking associated with new

development in central areas and by encouraging public transport use.



This layer includes all of the Boroughs’ roads as classified in the Mayor’s

Transport strategy as:



Main Roads- those managed by Transport for London

Main Roads- ‘A’ roads managed by London Borough of Hackney

Secondary Roads- ‘B’ roads managed by London Borough of Hackney and:

Other roads- all other roads managed by London Borough of Hackney.



5.6 Conclusions: Transport Infrastructure and Capacity

A broad synopsis of issues relating to tall buildings and accessibility reveals the

following conclusions.



Focus Intensification around Mainline and Underground Rail Stations and

Major Bus Routes

In line with best practice, and in the interests of achieving an efficient urban

form, intensification should be focused in particular areas that are in the

proximity of rail stations and major bus routes.



Integrate Tall Buildings within Areas of High Accessibility

The development of more intense urban forms should respond to the

Borough’s emerging planning policies and The London Plan policies that

encourage sustainable transport choices. Tall buildings should be developed in

proximity to accessible and highly accessible areas within the Borough.









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6.0 Conservation areas

In support of the issues and conclusions dealt with in the wider review of

conservation areas contained within section 4.0 of the Phase One report this

layer of the analysis process aims to define, at a strategic level, the extent to

which tall buildings can be sited within or adjacent to Hackney’s conservation

areas.



Hackney contains 22 conservation areas, which are represented on Figure UA8,

all of which have particular sensitivities in relation to tall buildings. This layer

identifies each of the conservation areas and further defines the Conservation

Appraisal areas which have been identified by LB Hackney. In general,

conservation areas should be seen as areas presumed not to be appropriate for

tall development but not as areas of total exclusion dependant on the nature

of the particular conservation area. Some areas may therefore be seen as

areas of complete exclusion and some as areas with some limited potential for

sensitively sited and scaled taller development.



The Borough contains a rich diversity of conservation areas and settings

mostly associated with the Victorian and Georgian legacy of growth in the

area. Taken from the LBH local plan (1995) the following key conservation

areas will have an impact on the ability of tall buildings to be developed in

certain past of the Borough.



Hackney has 22 conservation areas. They vary greatly in age, size, character

and style. They include the historic core of Hackney, centred on Clapton

Square, and also historic urban open-spaces, such as Clapton Common and

Broadway Market. Conservation areas also protect large areas of Georgian and

Victorian housing developments, such as De Beauvoir Town, and areas of

industrial heritage, such as South Shoreditch.



The following conservation areas are located on the Figure UA8:



Clapton Square

Clapton Pond

De Beauvoir

Clapton Common

Clissold Park

Albion Square

Victoria Park

Hoxton Street

Stoke Newington

Queensbridge Road

Fremont and Warneford

Newington Reservoirs, Filter Beds and New River

Sun Street

Underwood Street

South Shoreditch

Shoreditch High Street

Broadway Market

Town Hall Square

Graham Road and Mapledene

Kingsland

Mare Street



6.1 Defining Conservation areas

In broad terms the conservation areas within Hackney can be defined as areas

that are examples of rigid and uniform growth such as De Beauvoir Square and

areas that have been the subject of layered change over a long period.





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6.2 Planned Areas

The highly planned conservation areas of the Borough, because of their

homogeneity and uniformity, are generally the least suitable parts of the city

for tall buildings. Conservation areas of this character will be presumed to be

areas of exclusion for tall development.



However, planned conservation zones that are made up of rigid urban patterns

but that have areas within them that, because of transport, topography, or tall

building precedents, are seen to have some limited potential for taller

buildings. In these areas, towers terminating vistas or flanking major roads or

open spaces would characterise tall building activity rather than clusters or

concentrations of taller development.



6.3 Layered Areas

A number of conservation areas have been the subject of incremental growth

and have an urban form which is heterogeneous and often visually complex

and is of a less uniform character than those areas described above. Some of

these areas are particularly sensitive because of their complex composition,

often-small scale, and sometimes industrial character.



Amongst the conservation areas that are characterised by a less formal style,

several areas have some limited capacity, usually on edges of the areas or

along major vehicular routes, for taller development. Typically tall building

activity in these areas would be on a site specific basis and should be designed

to be integrated with the fine grain of the surrounding townscape.



6.4 Groupings of Listed Buildings

In general, all listed buildings, particularly those that form intact historic

groupings, should be protected from the visual intrusion of tall buildings.



6.5 Landmark Listed Buildings and their Settings

A number of landmark listed buildings, such as churches and mosques, exist

within the Borough. These buildings and their settings are of particular

importance in maintaining the character of the areas surrounding them. The

setting of listed buildings is an essential part of the buildings character,

especially if a garden or grounds have been laid out to complement the

buildings character or function.



The backdrop or setting of these buildings should be protected against the

visual impact of tall buildings and should be identified in detail through further

area specific studies.



6.6 Conclusions: Conservation Areas

The following broad conclusions can be drawn from the analysis of the

conservation areas within Hackney.



Areas of formal historic townscape are less able to absorb tall development

The formally arranged estates and rigidly planned areas of the Borough are,

because of their overarching consistency, far less able to absorb the differences

in height associated with taller development unless it too is formally arranged

in places such as at the termination of vistas.



Areas of more layered historic development have some limited potential

for tall buildings

Conservation areas that are characterised by a pattern of progressive

development are usually less ordered and more visually complex. This

complexity allows for the integration of taller development forms, which can

help to accentuate and reinforce the diversity of forms in the area. In

exceptional circumstances tall buildings may be appropriate in these areas

provided they are of the highest design quality and provide additional benefits

to the surrounding area.









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7.0 Commercial Centres

The aim of this layer of the analysis is to accurately identify the Borough’s

commercial centres and use them to refine the broader areas of tall building

potential identified in previous layers.



The Mayor of London has set out a robust policy on London’s Town centre

network in the London Plan aimed at strengthening and enlivening existing

centres across the city. Hackney does not contain any International or

Metropolitan centres as defined by the Plan. Major, district and local centres

are the focus for much of the existing commercial and retail development in

the Borough. These centres, as highlighted in Figure UA9 and set out in the

London Plan and Hackney UDP, are foci for investment, in some cases

regeneration, and are already are relatively developed.



7.1 Major Centres

Dalston is the only major centre in the Borough focused on commercial and

retail activities. The area runs along Kingsland Road and is centred on Dalston

Kingsland Station. This area, in commercial terms, has the most capacity for

taller development. The area has good accessibility to both rail and bus

services with the presence of Dalston Kingsland Station. Considerable

development pressure already exists in this area for tall development. Part of

the southern section of this area is contained within a conservation area which

will need more detailed investigation.



This area, because of the points raised above, has the most capacity to be

developed upward as it is highly accessible and mostly outside the visual

envelope of conservation areas. It is also of sufficient intensity to warrant the

additional investment associated with mid rise to tall building proposals (refer

to definitions in Section 5 of the phase one report). Further study should focus

on the actual capacity of this area which must be assessed in respect of its

ability to absorb high quality tall buildings.



7.2 District Centres

District centres commonly service community needs for a variety of shopping,

leisure, and commercial services and are an important focus for surrounding

communities. District centres form the second tier in the hierarchy of the

Borough’s centres. There are two district centres within the Borough which are

located along Mare Street in Hackney and along Stoke Newington High Street

from Stoke Newington moving north to Stamford Hill.



7.3 Local Centres

Local centres are generally small conurbations of shops and offices and are

scattered across the Borough. These centres generally have limited capacity for

tall buildings given their generally low rise residential setting, but might form

the focus of a landmark mid rise building on a suitable site.









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7.4 Conclusions: Major, District and Local Centres



In studying the location and potential capacity for taller development within

existing centres the following broad conclusions have been made.



Ensure tall buildings make a positive contribution to the centre

Tall buildings have the ability if designed well to enliven an existing centre by

providing activity, surveillance and promoting the economic development of

an area. Tall buildings should complement the existing character, uses, and

urban structure of existing centres so that they enhance the vibrancy and

attractiveness of the area rather than compete with it.



Use existing centres for intensification through tall buildings

Subject to appropriateness in terms of conservation issues, transport capacity

and visual intrusion, tall buildings should be focused in existing centres rather

than on isolated sites, thus strengthening the image of the centre, levels of

investment, and avoiding unnecessary competition between established

centres and new tall development.









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8.0 Tall Building Activity

This layer in the analysis process outlines the areas of the Borough in which

tall buildings already exist as well as the areas in which pressure exists for the

development of tall buildings. This mapping will define the current and

emerging pattern of tall buildings within the Borough.



As discussed in the introductory sections of this study, tall buildings are the

manifestation of a generally buoyant property market, increasingly scarce

developable land, and a Central Government position on the Urban

Renaissance agenda which aims for an intensification of towns and cities

across the UK. These factors combine to inform a significant pressure to

maximise the development capacity of land in Hackney, particularly where the

Borough adjoins the City of London, and results in significant tall building

activity.



8.1 Areas of Existing Tall Buildings

A number of areas within the Borough of Hackney, are already broadly

characterised by development that is significantly taller than its surroundings,

either by a solitary or several distinct towers. These areas provide

opportunities to create more dramatic and sustainable clusters of tall buildings.



The largest concentration of existing tall buildings is in the southern part of the

Borough in Shoreditch and Hoxton. Areas surrounding Regents Canal,

Homerton and Hackney Central/ Mare Street area also contain tall buildings.

The majority of these buildings are residential towers, many of which are of

poor architectural character and suffer from inadequate maintenance regimes.

It could be argued that the poor quality of these buildings is the reason for the

generally negative manner in which tall buildings are perceived by the

community. Many are poorly integrated with the massing, alignment and

scale of the street and surrounding area



These locations of existing tall buildings are shown in Figure UA10.









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8.2 Other Areas of Development Pressure

Other areas of the Borough which are under development pressure for tall

buildings include the area surrounding the Regents Canal, adjacent to Finsbury

Park, Dalston/ Kingsland Road, Mare Street and parts of Hackney Wick. These

areas may come under pressure because they provide ready access to open

space and amenity value or are close to the areas of most commercial activity

within the Borough. In many cases these areas also coincide with conservation

areas which make a thorough assessment of visual impact necessary for any

tall building application. Applications in these areas will also need to

demonstrate sufficient access to the wider public transport network and their

proximity to other forms of infrastructure.



8.3 Conclusions: Tall Building Activity

In reviewing the level of tall buildings activity and sites for potential

development in the city the following conclusions can be made.



Utilise Areas of Existing Tall Buildings to Develop Clusters

Areas that are already characterised by tall buildings provide the opportunity

to consolidate these zones into clusters of taller development, providing a

stronger skyline, improved services, and relieving pressure on other, more

visually sensitive parts of the Borough, to accommodate tall buildings. In

particular the area surrounding Dalston Kingsland Station provides

opportunities to consolidate urban form.



Recognise the Value of Underutilised Sites for Increasing Urban Capacity

In undertaking this analysis a number of underutilised sites, or sites with the

potential for redevelopment have been identified. It will be important to

recognise the opportunities that groupings of such sites represent in terms of

tall buildings and increasing the density of particular areas.









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9.0 Social Infrastructure

Intense forms of development such as tall buildings have significant impacts

on the provisions of social infrastructure such as health and educational

facilities. This layer of the urban analysis process identifies existing social

infrastructure including:

Schools (nursery, primary and secondary)

Higher Education (colleges),

Libraries,

Health facilities and

Sites for community use (may include community centres and meeting

places as defined in the London Borough of Hackney UDP, 1995.)



A broad assessment of the capacity of these resources is important in

determining if an area is capable of supporting tall building development as

well as identifying areas of the Borough where additional social infrastructure

capacity will need to be delivered.



An overview of the current social infrastructure in Hackney is represented in

Figure UA11.



9.1 Schools



General investigations into the accessibility of primary and secondary schools

within Hackney highlights that there is overall good access to these resources.

Detailed investigations into the capacity of surrounding local schools should be

determined as part of the application for a tall building especially those with a

residential use. Contributions from the development may be sought for

expanding the capacity of local schools if required.



The provision of social infrastructure in areas proposed for intensification and

tall development is extremely important to the success of a development.

One of the mistakes of past estate developments, including towers, was their

isolation from basic community services and facilities and the attendant social

problems that this caused.



9.2 Conclusions: Social Infrastructure



In reviewing the provision and location of social infrastructure within Hackney

the following conclusions can be made.



Understand and Assess Local Capacity

All new development applications which include tall buildings should

adequately assess the quality and capacity of the surrounding social

infrastructure. This should include an assessment of the current gaps in

provision and lack of capacity in existing facilities.



Contributions to Social Infrastructure

New taller development within the Borough should contribute to improved

social infrastructure within the area. This contribution may be in the form of

on-site facilities or contributions to off-site infrastructure.









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10.0 Open Space

The open space framework of the Borough, illustrated in Figure UA12, is an

important element in defining the overall urban character of Hackney. This

layer of the analysis process identifies areas of open space which, although

areas of exclusion for development, provide potential foci for the

intensification of areas surrounding them.



10.1 Tall Buildings in Areas Surrounding Open Spaces

Open spaces have an important role to play in maintaining quality of life

standards for those who live and work in tall, or indeed densely populated,

buildings. These areas provide some small respite from the pressures of urban

living and are often the leisure and recreational foci for communities. They

also provide the opportunity for gatherings, festivals and relaxation. A greater

population density also contributes to the level of surveillance and therefore

the safety of an area of open space



10.2 Open Space Capacity

The open spaces of the Borough have a varying degree of capacity, however it

is generally accepted that all are well used. An open space strategy is currently

being developed for the Borough as part of a parallel key evidence study in

support of the emerging LDF. This strategy should highlight areas of capacity

or identify the need for creating further open space. It is not yet entirely clear

whether, as a network, there is capacity to absorb the open space

requirements of an intensified population. In general new schemes will require

creating open spaces integral to the development, or to contribute to the

enhancement of existing spaces.



10.3 Regional Parks

The Lee Valley Regional Park is a key open space resource for the Borough.

Running along the eastern boundary of the Borough it incorporates the Lee

River which is an important linear route for passive and active recreation. The

park also forms an important green visual resource as it sits at a lower

elevation and is visible from higher points within the Borough. The edges of

the regional park are therefore visually sensitive, but because of their scale and

capacity, may be appropriate places for the sensitive integration of taller

development.



10.4 Metropolitan Parks

Both the Hackney Marshes and the Lee Valley Regional Park function as a

metropolitan park within the Borough. There are also two metropolitan parks

accessible from the Borough; Finsbury Park (just outside the northern Borough

boundary) and Victoria Park (just outside the southern Borough boundary). All

of these parks also contain Metropolitan Open Land. The boundaries to these

large areas of open space may be appropriate for the location of tall buildings

subject to visual impact and conservation issues.



10.5 District Parks

District Parks are an important open space resource providing a wide range of

general facilities for recreation within landscaped surroundings. Their facilities

may include playing fields, children’s play areas, nature conservation areas and

support facilities. Some of these spaces have the capacity to be enhanced and

enlivened through intensification of the surrounding areas. The District Parks

in Hackney are:

Clissold Park

Hackney Downs

London Fields

North and South Millfields

Springfield Park

Well Street Common

Shoreditch Park

Haggerston Park

Abney Park Cemetery





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10.6 Neighbourhood Parks

Neighbourhood parks function as the open space resource for a neighbourhood

area within the Borough and include the facilities necessary for the

community’s recreation needs. These spaces also have some capacity to be

enhanced and enlivened through intensification. The neighbourhood parks

within Hackney are:

Butterfield Green

Mabley Green

Clapton Common

Stoke Newington Common

Shepherdess Walk

Stonebridge Gardens

Daubeney Fields.



10.7 Local Parks

There are approximately 33 local parks with Hackney and are usually small

open areas or squares laid out as gardens often with small facilities such as

children’s play areas. London Squares are also classified as local parks within

the Borough and are an important local resource for the community and have

special protection for their conservation status. Many of these local parks may

be at capacity and therefore unsuitable for intensification of the surrounding

area.



10.8 Linear Parks

The following linear parks are important amenity and nature conservation

spaces within the Borough. They provide for active and passive recreation

along their length and are also important visual resources for those who live

adjacent to them. These areas subject to accessibility and visual impact

concerns have a high potential for intensification of the surrounding areas.

The linear parks in Hackney are:

Regents Canal

Lee Navigation

River Lee

New River

Holmleigh Cutting



10.9 Open Spaces and Historic Settings

The Borough is in parts characterised by formal historic environments, such as

Clissold Park and Abney Park cemetery, that focus themselves on ordered open

spaces. These green spaces, because of their value as intact historic

environments, typically do not provide any opportunity to support the

development of tall buildings. The local plan also sets out these parks and

gardens which are included on English Heritage’s register of parks. These

visually and historically sensitive resources provide limited opportunity for

surrounding taller development that would affect the setting and character of

the area.



10.10 Conclusions: Open Space



Assess Ability of Local Open Space Network to Absorb Impacts of Tall

Buildings

Tall building applications should assess the capacity and quality of the local

open space network to determine whether additional capacity will be required

or existing spaces can be enhanced or refurbished.



Preserve and Enhance the Character of Historic Parks and Gardens

Contributions should be sought from tall building developments to improve

the quality of historic parks and gardens proximate to the new developments.



Maximise the Benefits of Intensification of the Fringes of Open Space

Tall building applications should explore the impacts, positive and negative, of

tall development adjoining open space and maximise the benefits this offers.





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11.0 Telecommunications & Flight Path Constraints

11.1 Telecommunications



There are a number of planning issues associated with telecommunications in

relation to tall buildings. These are summarised below and through a detailed

note included in Appendix A of this report.



A tall building, usually resulting in a high level of occupancy, means a greater

use of telecommunications services. This increase in demand for

telecommunications services calls for an increase in the supply of such

services. The developer will wish to give consideration to the mix of uses for a

tall building: maximising the efficient use of information and communications

technology in the building will be a factor. The local planning authority will

need to be aware of these considerations.



A tall building by its very nature can act as a supplier of services in the

telecommunications sector, by becoming for example a host for transmitting

or re-transmitting radio/TV and mobile telecommunications services. Use of

space in the building for telecommunication services should be considered by

the developer - in discussion with the telecommunications sector and the local

planning authority.



In the wireless/mobile age, the tallness of a building may sometimes be a

disadvantage in that it can hinder or distort radio/TV transmissions. Planning

authorities need to make sure that guidelines are available so that such

negative impacts are minimised. The local planning authority can, in this

context, consider with the developer the mitigation measures needed, so that

these can be included in any Section 106 agreement.



11.2 Flight Path Constraints



The information contained in Figure UA13 illustrates the areas that are

constrained by flight paths into the London City Airport. These areas represent

a consultation zone for any tall development over 90 metres in height. Any

new tall building application including a building over that height must consult

with the London City Airport authorities. This does not automatically rule out

buildings of this height, only that the developer must consult with the Airport.



11.3 Conculsions: Telecommunications & Flight Path Constraints

Assess Impacts on Telecommunications in Detailed Proposals

All tall buildings proposals should liaise with all relevant authorities to assess

the potential impact on telecommunications. Applications should also take

into account the potential benefits possible through the use of tall buildings to

boost telecommunications capacity.



Consultation with Airport Authorities for Very Tall Buildings Will Be

Required

Any proposed development approaching 90 metres in height will be required

to consult with the London City Airport authorities. Heathrow Airport

authorities should also be consulted to determine whether there are any

potential impacts.









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12.0 Regeneration Areas

As part of the implementation of the new planning system, the London

Borough of Hackney is undertaking the preparation of Area Action Plans

(AAP’s) for five areas of the Borough. These areas include:

Woodberry Down AAP

Dalston AAP

Hackney Central AAP

Lower Lee Valley Joint AAP and Opportunity Area Planning Framework

South Shoreditch/ City Fringe AAP



The boundaries of the AAP and Opportunity Areas are represented in Figure

UA14.



These areas represent significant planning control and attempt to achie area-

wide regeneration in a cohesive and coordinated manner. These areas have

the potential to attract investment and to overcome existing problems

associated with their urban structure whilst providing additional space for

employment, residences, open space, leisure and community uses. Focusing

regeneration effort in this manner will lead to a comprehensive redevelopment

strategy which will overcome the negative consequences of previous

piecemeal development.



12.1 Opportunity Areas

The Mayor’s London Plan has identified ‘Opportunity Areas’ and ‘Areas for

Intensification’ as part of its overarching spatial policies. The Borough contains

two opportunity areas:

Bishopsgate/ South Shoreditch Opportunity Area in the southern corner of

the Borough

Lower Lee Valley Opportunity Area in the east of the Borough.



These areas will be covered by the above AAPs and will seek intensification of

urban form and increase their economic performance. The Bishopsgate/ South

Shoreditch area is already under significant pressure for taller development as

redevelopment moves northwards and east from the City of London’s financial

district. Several development applications for tall buildings are currently under

consideration and it is likely that more will follow in the absence of strategic

guidance for taller development within the Borough. This area also contains

significant conservation areas within which the impact of tall buildings must

be carefully considered.



12.2 Conclusions: Regeneration Areas



Exploit the Positive Impacts of Tall Buildings for Regeneration

Areas which have been identified as being opportunity areas for intensification

could benefit from the many positive impacts of tall buildings which include

attracting investment and contributing to the positive image of an area. The

potential regeneration benefits from tall buildings should also be considered

for the major centre and district centres of the Borough which are already

experiencing development pressure. The potential negative impacts such as

visual intrusion and local climatic impact should also be investigated through

detailed study of a particular area.



Fully explore the potential of AAP areas for tall development

As part of the preparation of the Area Action Plans in Hackney, the potential

for siting tall development within the each area should be fully explored. Tall

buildings can assist in increasing local social infrastructure and open space

capacity. The comprehensive redevelopment of these areas also allows for the

integration of tall buildings into the overall massing and scale of new

development sites.







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The remaining tower block on

the Holly Street Estate.

Originally one of three towers,

this tower was refurbished and

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13.0 Opportunities and Constraints

This section of the report aims to refine and analyse the conclusions of the theoretical review (Phase 1

report) and the results of this urban analysis document. In addition to the physical, infrastructural and

environmental factors of the Borough listed below, the local plan policies such as employment, housing

and retail are extremely important and have helped to refine the opportunities and constraints and work

toward the tall building strategy plan.



Figure UA15 outlines the opportunities and constraints described below, and is a graphic representation

of the process described in sections 1.5 and 1.6.



13.1 Urban Form



The historical development of Hackney, which has been directly influenced by the economic

development and urban expansion of the City of London, has also been shaped by sloping topography in

the north and the Lee River valley in the east. These pressures have lead to its characteristic and

heterogeneous urban form. The Borough has developed a multi-centred form as a result of the early

villages which were established at the intersection of roads emanating from the City. This form has

translated into a strong development focus along the main routes of the Borough. The tallest, most

dense development however is not always located along these main routes but are scattered across the

Borough.



This relationship between major routes and commercial centres continues to impact on the visual

character of the Borough today and points toward tall development being focused in a few key

locations rather than scattered across the Borough as was previously undertaken. However, many of

these areas coincide with conservation areas that make the integration of significantly taller

development form difficult and in most cases inappropriate.



13.2 Visual Impact



Issues of visual impact are the main cause of objections to tall building proposals, particularly in areas

with a significant number of historic environments such as Hackney. As a result, it is important to

understand the potential wider visual impact that new tall buildings could have on the skyline of the

Borough.



13.2.1 Strategic Viewpoints

The protected strategic viewpoint and important local views provide both opportunities and constraints.

These viewpoints should not be obstructed by tall buildings, particularly in the foreground, as they

represent key vantage points that are important in navigation and the interpretation of the Borough.

However, the sphere of visual experience that extends from some viewpoints may be able to include

some tall buildings that enhance the definition or composition of the view. Each application should be

required to assess the extent to which the proposal enhances strategic views.



13.2.2 Local Views

Although not specifically dealt with at this strategic level, local views generally represent more intricate

compositions and as a result are far more sensitive to the intrusion of tall buildings. It is recommended

that during further stages of investigation detailed analyses of local views be undertaken to ensure that

ones of particular relevance or importance are protected.



13.3 Landform



Closely linked to issues of visual impact are those of landform. The topography of the Borough, as

identified in section 4, broadly consists of a valley in the east associated with the Lee River and a

landform that gently slopes down from the highest point in the north west corner of the Borough to the

south and east.



13.3.1 Lower Elevations

In general the lower-lying areas of the Borough provide the greatest opportunity to integrate tall

buildings into the form and fabric of the city whilst having the least impact on the overall visual

experience of the Borough.









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The highest elevations within the Borough, surrounding Finsbury Park, because of localised opportunities

associated with transport accessibility and regeneration benefits, do have opportunity for sensitive

integration of tall development. The park surrounds also offer opportunities for overlooking onto open

space and access to this space for residents and workers. Any development in this area must thoroughly

assess the visual impact of tall buildings so as not to block the wider panorama over the Lee Valley and

towards the City of London.



13.4 Transport Accessibility



The layout of the existing network of bus, rail and road infrastructure, and its existing and potential

capacity to cope with the urban intensification brought about by tall buildings, is a key consideration in

determining appropriate locations for tall buildings. Areas in which several modes of transport intersect

are considered to be highly accessible, or have the potential through investment to become highly

accessible, and thus form potential foci for tall buildings.



Rail stations, particularly Finsbury Park, Hackney Central/ Hackney Downs and Old Street as they have a

good existing service frequency, and because unlike bus services they are largely ‘fixed’ infrastructure

elements, form a focus for tall buildings.



13.4.1 Finsbury Park Station

Finsbury Park Station, just outside the north western edge of the Borough is an area of high public

transport accessibility. As the area also adjoins the large open space resource of Finsbury Park it forms a

logical focus for intensification through tall buildings. However it is also constrained by the potential

visual impact of tall development on views from the higher elevations of Finsbury Park across the

Borough.



13.4.2 Hackney Central/ Hackney Downs Stations

The area encompassing Hackney Central and Hackney Downs Station is of Borough-wide transport

significance and is also integrated with major bus routes. The presence of the two station allows access

to three mainline routes, north and south and therefore has high transport accessibility. Part of this

area contains a conservation area with a number of residential areas to the north and several existing

tall residential blocks the east. As a result the Hackney Central and Hackney Downs Station area

represents one of the opportunity areas for tall buildings within the Borough.



13.4.3 Old Street Station

The area surrounding Old Street Station, which is located just outside the Borough boundary, is an area

of high transport accessibility. The area encompasses a large part of Shoredicth in the south of the

Borough and also includes good access to Liverpool Street further to the east. Part of the area contains

a conservation area and the background setting of a strategic view to St Paul’s from Richmond Park. An

Area Action Plan is currently being considered for part of this area which has the ability to greatly assist

regeneration efforts.



13.5 Tall Building activity



Hackney is already characterised in many areas by existing tall buildings. These areas, when considered

in conjunction with other localised opportunities such as transport and topography, provides further

potential to consolidate taller development and potentially form clusters. The Shoreditch area currently

includes a number of existing tall buildings which could be strengthened and enhanced by the presence

of other tall buildings.





13.6 Local, District and Major Centres



Major, District and Local centres are not currently the focus for the majority of existing tall buildings in

the Borough although they are likely areas for future investment and intensification. The commercial

centres in Hackney are set out in section 7. Major commercial centres have the greatest potential for

tall buildings because of their generally highly accessible nature and the likelihood of increased

investment. In particular the Dalston major centre is seen to have the most potential to absorb tall

buildings. Whilst the following district centres have varying levels of potential for tall buildings:









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13.6.1 Hackney Central

Despite the visually sensitive nature of this centre, the area is the administrative and cultural heart of

the Borough and is therefore a likely focus for future investment. The presence of several conservation

areas within this centre poses a serious constraint on integrating tall buildings within this area.

However areas to the east and west of the main centre may have some capacity for taller development.



13.6.2 Stoke Newington

Stoke Newington as the second district centre within the Borough provides opportunities for the siting

of tall buildings. There are several existing tall residential buildings around Stoke Newington Station

which could possibly be built upon to develop a small cluster of mid-rise development.



13.7 Conservation



The areas of fine historic townscape within Hackney create a number of constraints when considering

tall buildings. In general, conservation areas are presumed to be excluded from tall development.



13.7.1 Areas with Limited Potential

Some parts of certain conservation areas do represent some limited opportunities for tall development.

As outlined in section 6, these areas predominantly relate to the least intact parts of conservation areas

that are characterised by visual complexity and ongoing change.





13.8 Open Space



Open spaces that have been identified as having potential to form the recreational and leisure focus for

intensified areas of the Borough include the following.



13.8.1 Hackney Downs

The size and location of Hackney Downs in close proximity to Hackney Downs Station and a number of

existing tall buildings in the area provides significant opportunities for tall buildings within the area.



13.8.2 Hackney Marsh

With close proximity to Hackney Wick and Stratford Stations, and the significant open space resources

of the Lee River Corridor and Hackney Marshes provides opportunity for further tall development in that

area to maximise the use and benefit of the open space.



13.8.3 Finsbury Park

The scale of Finsbury Park and the lower elevation of the Hackney edge of the park provides substantial

opportunities to act as the open space focus for new tall buildings, subject to detailed analysis of the

visual impact.



13.8.4 London Fields

The historic environment of the London Fields common land, due to its proximity to London Fields and

Hackney Central Stations as well as the district centre of Hackney Central, provides some limited

opportunity for development in the areas adjoining it to the south east and west. It also offers the

opportunity to provide for the open space requirements of tall buildings in that area.



13.8.5 Shoreditch Park and the Regents Canal

The large recreation grounds of Shoreditch Park and the linear recreation space of the Regents Canal

represents a large open space resource for this area. The area is also accessible to public transport and

therefore offers opportunities for tall building development. Contributions could also be obtained from

the development to enhance and upgrade the surrounding open spaces. Issues such as overshadowing

and wind tunnelling should also be carefully considered in these areas.









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13.9 Conclusions: Toward a Tall Buildings Strategy Plan



The theoretical review and urban analysis process have been gradually refined to reflect a series of

broad areas of exclusion and opportunity in relation to tall buildings. These are the subject of further

refinement before becoming the tall buildings strategy plan and are broadly defined as follows.



13.9.1 Finsbury Park East

The area to the south and east of Finsbury Park along Seven Sisters Road and extending towards the

East and West Reservoirs provides an ideal location for tall buildings due to its high transport

accessibility, its lower elevation than the park and the strong open space focus available to residents or

workers in tall buildings. Issues of visual impact and blocking views from the park must be considered

by tall building proposals. Taller development also offers the opportunity to strengthen and enhance

the urban edge of the park.



13.9.2 East Reservoir

Located to the east of the East Reservoir, this small area of opportunity for tall buildings provides the

possibility of enhancing the existing tower blocks of Lincoln Court and creating a cluster focused on the

reservoir. The value of the visual amenity of the Reservoir would make this an attractive location for

taller development. The area’s proximity to Stamford Hill Station also makes it a good location in term

of accessibility to public transport.



13.9.3 Abney Park East

This area of Stoke Newington flanking either side of Kingsland Road to the east of Abney Park cemetery

offers an area of limited opportunity in terms of taller development. Its proximity to Stoke Newington

Station and the presence of several existing tall buildings suggests the possibility of creating a high

quality node of tall buildings to create an intensified focus to this district centre. This supports the

Mayor of London’s policies of focusing new development within important commercial areas. The

presence of adjacent conservation areas limits the potential of this area and places additional emphasis

on the design quality and visual impact of any tall building proposal for the area.



13.9.4 Hackney Downs

This area to the north and west of Hackney Downs provides an opportunity for tall buildings. Proximity

to Rectory Road Station and the open space resource of the Downs contribute to its tall building

potential. The presence of under utilised industrial sites in the area also suggests the possibility of

enhancing the urban form through high quality taller development.



13.9.5 Lower Clapton

Located to the south east of Hackney Downs in Lower Clapton this relatively confined area offers

opportunity for taller development. The presence of existing tall buildings in the area and the short

distance to Hackney Central and Hackney Downs stations contribute to its potential. There is also the

possibility of this area performing a support role for the district centre of Hackney central and extending

its range northwards.



13.9.6 Dalston

The area centred around Dalston Kingsland Station offers an excellent opportunity to locate tall

buildings. The area is the only major centre within Hackney and has high transport accessibility which

makes it an ideal focus for taller development. Strengthening the commercial and retail functions of the

area would be possible through tall buildings and improving the quality of the urban environment would

add to the vitality of the area.



13.9.7 Hackney Central

As areas of limited opportunity these two areas, set back on either side of Mare Street, in Hackney

Central have high accessibility to public transport and good access to the administrative and

commercial functions of this district centre. Located in close proximity to both Hackney Central and

Hackney Downs station these areas offer the choice of different transport modes and could contribute

to the vitality of the area through taller development. However the presence of high quality

conservation areas and areas of important townscape character limit its potential for tall buildings.









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13.9.8 Mabley Green

This location to the north of Mabley green and bordering the Lee River provides an area of opportunity

for tall buildings. The proximity to an important open space resource and its low lying topography

contribute to its potential. The area is also accessible to Hackney Wick Station which has capacity to

grow as a transport hub for the area.



13.9.9 Hackney Wick

This area of opportunity centred around either side of the Lee River is an area of variable urban form

making the siting of taller development possible. Access to open space and the lower elevations of this

area would make it an ideal tall building location as would its access to Hackney Wick and Stratford

stations. Tall buildings could also offer further community and leisure activities within the area.



13.9.10 London Fields

These two areas of opportunity for tall buildings lie to the south east and south west of London Fields

common area. Proximity to London Fields Station and the important open space resource combine to

offer an opportunity for the sensitive siting of tall buildings. The sensitive nature of the conservation

areas close to these areas highlight the need to carefully consider the visual impact of any tall building

proposals.



13.9.11 Regents Canal

Centred on the Regents Canal in the south west of the Borough this area provides significant

opportunities for tall building development. The surrounding area already has a number of existing tall

buildings which could be strengthened by further development. The important open space resource of

the canal provides links with areas of the Borough to the west and offers a scale appropriate for taller

development. Recent tall development at the Gainsborough Studios within this area highlights the

quality which tall buildings in this area should achieve.



13.9.12 Shoreditch

The high accessibility of Shoreditch with its proximity to Old Street mainline and underground station

and numerous bus routes make this an opportunity area for the location of tall buildings. Many existing

tall buildings are located within this area and many underutilised sites provide the opportunity to

consolidate and improve the urban form of the wider area. Access to Shoreditch Park and the Regents

Canal provide the necessary access to open space. Conservation areas within this zone should be

presumed to be areas of exclusion for tall buildings.



13.9.13 South Shoreditch

This area, because of its proximity to Liverpool Street Station, its relatively low elevation and the

potential to expand upon the commercial and financial focus of the east side of the City of London,

provides some limited opportunity for tall buildings. A major consideration in this area is the high

number of conservation areas and the potentially negative visual impacts of tall buildings on these

areas. Conservation areas within this zone should be presumed to be areas of exclusion for tall

buildings.









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14.0 Tall Buildings Strategy Plan

This section of the report represents the culmination of the first two major parts of this study and

describes the areas of Hackney that are either suitable, potentially suitable or not suitable for tall

buildings.



Following the identification of areas of opportunity set out in the previous section, a process of iterative

refinement was undertaken to ensure that the areas identified are as focused as possible. The process of

gradual refinement which was undertaken as part of the strategy plan preparation included the

following stages.



Site Visits

During the process of refinement site visits were undertaken to confirm the general extent of strategy

area boundaries.



Review of aerial photographs

A review of the existing massing and character of each area has been undertaken through the use of

detailed aerial photographs. This stage of refinement has resulted in the exclusion of many intact

residential areas, elements of local interest, and areas of localised topographical constraints.



As part of the process of refinement, the boundaries of these areas were adjusted to ensure that areas

outside of the Borough boundary were not included and that a logical edge for them was established.

The boundaries illustrated on the strategy plan should not be seen as rigidly defined in a study of this

strategic nature. The wider visual impact of tall buildings within these areas will inevitably impact

beyond these boundaries and this should be considered in all proposals. Areas with potential for taller

development have been classified into areas of opportunity and areas of limited opportunity to reflect

the two distinct types of zone that have emerged from the analysis process and subsequent refinement.



The classification of areas for taller development into opportunity areas, limited opportunity areas and

zones of exclusion reflects the range of pressures on particular areas, such as conservation areas or areas

of intact residential development. These zones of opportunity and limited opportunity will require

further investigation, through detailed area assessments which will form the final part of the tall

buildings strategy. These will establish the boundaries of the tall building areas and the types of tall

buildings that will be most suitable for those areas.



Areas within these zones of opportunity have varying degrees of suitability for taller development. It is

envisaged that further clarification of the boundaries will illustrate how tall buildings will be integrated

with the existing urban fabric, whilst maximising their potential benefit and minimising their negative

effects.









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14.1 Boundaries of Strategy Plan Areas



Due to the strategic nature of this study, the boundaries as detailed on the Strategy Plan (Figure UA 16)

are not considered absolute but as strong guidance for the location of tall buildings. Applications for tall

buildings outside of these areas will generally not be considered unless special circumstances can be

demonstrated. In which case pre-application discussions should be entered into with the London

Borough of Hackney and the appropriateness will be assessed on the criteria used within this study.



14.2 Areas of Exclusion for Tall Buildings



In refining areas of the Borough that are suitable for tall buildings a number of areas were identified

early as being areas of exclusion, or areas that should not contain or would be adversely influenced by

neighbouring tall buildings. In broad terms the following sub headings describe the main areas of

exclusion.



14.2.1 Conservation Areas

Conservation areas within the Borough, because of their fine historic setting and numbers of listed

buildings, have been generally identified as areas of exclusion for tall buildings. However, as set out in

section 6, some of the less intact areas on the edge of some conservation areas do have some limited

potential for taller development.



14.2.2 Elevated Areas

The elevated areas along the River Lee provide a strong landscape character to Hackney and should be

protected from the intrusion of any large-scale development. Tall buildings on elevated ground can

exacerbate issues of overshadowing, overlooking and create climatically severe conditions at ground

level. The visual impact of areas surrounding Finsbury Park along the northern edge of the Borough

boundary must be carefully considered, however there is some potential as this area sits at a lower

elevation than the main viewing points in the park.



14.2.3 Low Rise and Isolated Areas

Areas of low-rise intact residential development and areas that are removed from the main commercial

centres of the Borough generally have less extensive public transport accessibility. These areas are also

generally more visually sensitive and tall buildings in this area would negatively affect the visual

character of the Borough. Although these areas should play their part in the urban intensification

agenda, this should be done through denser rather than tall development.



14.3 Areas Suitable for Taller Development



A number of areas have been identified at a strategic level that have a focus for possible taller

development and may be appropriate for more intense assemblies of taller development. These areas

have been identified through the urban analysis process of layering the information important for the

location of tall buildings and the visual and physical character of Hackney. These areas offer the

opportunity to develop more detailed frameworks to best determine the type, location and form of the

tall buildings within each area. The areas listed below will be used as the starting point for more

detailed exploration of the physical and infrastructural capacity of the area for tall building

development. These areas are described in the following pages and are not listed in order of priority or

importance.



14.3.1 Area 1: Finsbury Park East

This area of suitability for tall buildings is located in the north west corner of the Borough and is roughly

defined by the Borough boundary and by Blackstock Road in the west, Finsbury Park in the north,

Amhurst Road in the north east and Green lanes and the Reservoirs to the south. The area provides high

public transport accessibility with access to both Finsbury Park and Manor House underground and

mainline rail stations. The opportunity to create a strong urban edge to Finsbury Park should be

considered whilst recognising the negative visual impact this could have on views from the elevated

parts of the park down into Hackney and the Lee River valley. The several existing tall buildings along

the edge of the Park are of poor architectural quality, are visually prominent and would benefit from

being integrated into the taller urban edge of the park.



It is envisaged that due to its open space resources and the access to transport services that the type of

uses in any tall building within this area could be commercial or residential. This area is also the

location for the Woodberry Down Area Action Plan which has the potential to attract future investment







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into the area. Tall buildings could have a strong part to play in the regeneration of this area and could

function as a strong urban counterpoint to the park.



14.3.2 Area 2: East Reservoir

This relatively small area of opportunity for tall buildings located to the east of the East Reservoir

provides the possibility of enhancing the existing tower blocks of Lincoln Court and creating a cluster

focused on the reservoir. This area could be considered within the Finsbury Park East opportunity area

in terms of assessing the wider visual impact and transportation issues.



The value of the visual and open space amenity of the Reservoir would make this an attractive location

for taller development. Access to Stamford Hill Station and several bus routes also makes it a good

location in term of accessibility to public transport. The existing tall buildings of Lincoln Court are

visually prominent upon the skyline and could be enhanced by further high quality taller development.



The uses likely to be contained within tall buildings in this area would generally be of a residential

nature whilst public access to the tops of buildings could provide a significant resource for the

community. The visual impact on views from Finsbury park must also be considered in this area.



14.3.3 Area 3: Hackney Downs

This area surrounding the north west corner of Hackney Downs provides an opportunity for tall

buildings. The surrounding area to this zone is of a primarily residential character suggesting that the

uses of any tall buildings would generally be of a residential nature although opportunities for

community and social infrastructure should be explored. There are also some under utilised industrial

sites within this area along the railway line which could be enhanced by tall buildings to create a more

cohesive urban form.



The area’s proximity to Rectory Road Station and the open space resource of the Downs contribute to

its tall building potential. The impact on views from the Downs should be considered in the further

study of this area. The presence of several existing tall buildings in this area offers an opportunity to

consider a cluster of buildings to consolidate the urban form and relieve pressure on other areas of the

Borough.



14.3.4 Area 4: Lower Clapton

This relatively confined area located to the south east of Hackney Downs in Lower Clapton offers

opportunity for taller development. The short distance to Hackney Central station and location of

numerous bus routes contribute to its potential for tall buildings.



As this area is located to the north of the district centre there is the possibility of this area performing a

support role for Hackney Central and extending its range northwards. This would suggest a mix of

commercial, retail and residential uses in any future tall buildings. The visual impact on the surrounding

residential areas should be considered in further study of this area.



14.3.5 Area 5: Dalston

Dalston Kingsland Station in the central west area of the Borough offers an excellent opportunity to

integrate tall buildings. As the area is the only major centre within Hackney the potential exists to

intensify development in the area by providing additional commercial, retail and residential space for

the area through tall buildings. This would allow for a strengthening of the functions of this major

centre.



This area has high transport accessibility offering a choice of either rail or bus modes of transport and

will be a station location for the East London in the future which makes it an ideal location for

intensification. The urban environment in this area is of somewhat poor quality and could be improved

through contributions from tall building development.



Maintaining the existing functions of the area with its vibrant street market and associated retail uses

should be considered paramount. Further study of this area should assess the visual impact while

considering the optimum mix of commercial, retail, community and residential uses within any tall

buildings.



14.3.6 Areas 6&7: London Fields East and West

These two areas are located to the south east and south west of the London Fields common and are

seen as significant areas of opportunity for tall buildings. The area is in close proximity to London Fields







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Station and the numerous bus routes along Mare Street and is therefore accessible to several public

transport modes.



The largely residential character of this area highlights the need for the visual and physical impacts of

any tall buildings to be thoroughly investigated. London Fields functions as an important open space

and visual resource for the area and offers the opportunity to sensitively site tall buildings within the

area whilst relieving the current development pressure along Mare Street which is constrained by the

presence of conservation areas along its length.



The sensitive nature of the conservation areas close to these areas highlight the need to investigate the

visual impact in the more detailed examination of this area. These investigations should also focus on

the best mix of uses for tall buildings in the area.





14.3.7 Area 8: Regents Canal

This area flanks either side of the Regents Canal in the south west of the Borough and is generally

contained by Downham Road to the north, the Borough boundary to the west, Shoreditch Park to the

south and the De Beauvoir estate to the east. The area provides significant opportunities for tall

building development.



A considerable number of tall buildings exist in the surrounding area which could be strengthened by

further high quality development. The primarily residential character of the area suggests a generally

residential usage for tall buildings ion the area although a mixed use approach would be beneficial to

the vitality of this zone.



The importance of the open space resource of the canal should be exploited to establish a strong visual

character to the area. The canal also provides links with areas of the Borough to the west and offers the

width and scale appropriate for taller development. Further study of this area should consider how to

best support the current uses within the area and how tall buildings could enhance the canal

environment whilst mitigating their negative impacts upon it.



14.3.8 Area 9: Shoreditch

This area within the south western corner of the Borough is bounded by City Road and Old Street to the

west and south, the Regents Canal and Shoreditch Park to the north and the Hoxton Street conservation

area to the east. The area is one of high public transport accessibility with the proximity to Old Street

Mainline and underground station, Angel Underground Station and numerous bus routes make this an

ideal opportunity area for the location of tall buildings.



Numerous existing tall buildings are located within this area and many underutilised sites, often of an

industrial character, provide the opportunity to consolidate and improve the urban form of the wider

area. Shoreditch Park and the Regents Canal provide access to open space. Conservation areas within

this zone should be seen as areas presumed to be excluded.



This area of Shoreditch has a well rounded mix of residential and commercial uses which should be

supported and enhanced by any tall building proposal. Further investigation of this area should focus on

the optimum mix of uses of any tall building in the area and how they could enhance the urban form

and vitality of the area. Significant development pressure exists in this area and recently approved

applications for tall buildings just outside of this area in the Borough of Islington should be considered

to ensure that the wider visual and physical impacts are assessed.



14.3.9 Area 10: Mabley Green

This tall building opportunity are in the east of the Borough in Homerton is roughly bordered by the Lee

River to the east, Mabley Green to the south, Clapton Park to the north an Daubney Road to the west.

This location adjacent to Mabley green and bordering the Lee River provides an ideal location for tall

buildings. With excellent access to the surrounding open space resource, the areas low lying topography

contribute to its potential for the sensitive siting of tall buildings and the mitigation of their negative

visual impact



The area is accessible to Hackney Wick Station and several bus routes with the station having capacity

to grow as a transport hub for the area. Further investigation of this area should consider the visual

impact of tall buildings on views from the Hackney Marshes and outside of the Borough towards

Hackney. The primarily residential character of the area suggests a continued usage of this type with

the opportunity to enhance the availability of community and social infrastructure.





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14.3.10 Area 11: Hackney Wick

This area of opportunity for tall buildings flanks either side of the Lee River and is bounded by the

Borough boundary to the east and south, the A12 to the north and Kenworthy Road to the west. The

area is currently under development pressure for tall buildings. The general character of the area is

industrial and it is an area of variable urban form which would make the siting of taller development

possible.



The general character of the area suggests the usage of tall buildings could have a commercial focus

with some residential buildings. Access to open space and the lower elevations of this area make it an

ideal location to minimise any potentially negative visual impact of tall buildings.



Public transport accessibility in this area is good with access to Hackney Wick Station and further afield

to Stratford station which will soon become a station for the Eurostar train service with connection to

Paris and Brussels a possibility. The proximity of this station will likely increase the commercial pressure

on this area as a location with easy access to local, national and international destinations. Tall

buildings could also offer the possibility of further community and leisure activities within the area.





14.4 Areas of Limited Opportunity for Tall Buildings



The following areas are those that have also been illustrated to have an opportunity for taller

development through a convergence of analysis elements factors but also have constraints upon them

either through the presence of adjacent conservation areas or the overall urban character of the area.

These factors, as well as others, highlight the need for a more detailed analysis of the local conditions

than is possible in a strategic study of this nature. These areas are therefore classified as areas of

limited opportunity which increases the importance of carefully investigating the impacts that tall

buildings would have on the area.



The following areas are classified as areas of limited opportunity for tall buildings.



14.4.1 Area 12: Abney Park East

This area of limited opportunity flanks either side of Stoke Newington High Street and is bounded by

Dunsmure Road in the north, Abney Park Cemetery in the west, Evering Road in the south and Rectory

Road in the east.



This area with its proximity to Stoke Newington Station and the presence of several existing tall

buildings already located in this district centre suggests the possibility of creating a high quality area of

tall buildings to create an intensified focus to this district centre. This supports the Mayor of London’s

policies of focusing new development within important commercial areas.



The presence of adjacent conservation areas limits the potential of this area and places additional

emphasis on the design quality and visual impact of any tall building proposal for the area. Further

investigation should focus on assessing the visual impact of tall buildings on conservation areas and the

mix of uses which will best support the existing function of the area and how the vitality and quality of

the urban environment could be enhanced.









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14.4.2 Areas 13&14: Hackney Central & Hackney Mare Street

These two areas are centred around Mare Street and Hackney Central Station. They are considered

together here due to their close proximity and the combined visual impact that tall buildings would

have on the whole surrounding area. The Hackney Central areas is bounded by Dalston Lane to the

north, Navarino Road to the west, London fields to the south and the Town Hall Square conservation

area to the east. Hackney Mare Street area is bounded by the Town Hall Square conservation area to

the west, the north London rail line to the north, Chatham Place to the east and Brenthouse Road to the

south.



These areas of limited opportunity have good accessibility to public transport including Hackney Central

and Hackney Downs rail stations and the numerous bus routes along Mare Street. They also provide

good access to the administrative and commercial functions of this district centre. Tall buildings could

potentially support theses functions whilst enhancing the vitality of the area.



The presence of high quality conservation areas, important local views and areas of important

townscape character limit these areas’ potential for tall buildings. Further study of these areas should

be undertaken and should consider the wider visual impacts and the extent to which tall buildings could

contribute to the mix of uses within the district centre.



14.4.3 Area 15: South Shoreditch

This area of limited opportunity is contained by the Bough boundaries to the east, south and west and

the South Shoreditch conservation Area to the north. This area is well located in public transport terms

with its proximity to Liverpool Street Underground and mainline rail station. The areas relatively low

elevation and the potential to expand upon the commercial and financial focus of the east side of the

City of London make this an area of limited opportunity for tall buildings.



The main consideration in this area is the high number of conservation areas and the potentially

negative visual impacts of tall buildings. The largely industrial character of South Shoreditch is an

important reminder of the history of the Borough and provides flexible space for commercial and other

activities. Significant development pressure exists in this area which will make the quality of tall

building proposals extremely important. Further study should investigate the full extent of the visual

impact tall buildings may have in this area and should ensure that the mix of uses will reinforce the

vibrant character of the area.









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15.0 Conclusions and Next Steps: Phase 2

Through the urban analysis process as outlined in this report several areas of the Hackney have been

identified as being suitable or of limited suitability for tall buildings. These areas are those that are

generally visually recessive, have a limited impact on conservation settings, are well serviced by

transport, are in support of commercial centres, in proximity to existing tall buildings, and are in the

vicinity of open space resources. Following the identification of these broad areas a process of

refinement and rationalisation was undertaken to further clarify the areas and provide as much focus as

is possible at this strategic level.



The following phase of the study (Phase 3) will undertake detailed investigations into some or all of the

areas of opportunity that have been identified as part of this urban analysis process. To accompany this

a series of guidelines related to the design, function and appearance of tall buildings within Hackney will

be prepared. These outline best practice in terms of tall buildings and are supported by a series of notes

and questions that aim to assist applicants in producing schemes of a high quality.



15.1 Issues to be Addressed in Further Study of Opportunity Areas



The following areas should form the basis of (but are not limited to) further study in relation to the

areas identified in the strategy plan.



15.1.1 Boundary Definition

A more detailed analysis of the built form and urban structure will be required to further define the

boundaries of each of the strategy plan areas. Further definition should take into account the criteria

used within the analysis process of this study such as topography, strategic views and conservation

areas to create distinct areas for taller development. A process of rationalisation of the areas should be

undertaken to ensure that strategy boundaries reflect local block patterns and ensure unified

streetscapes.



15.1.2 Three Dimensional Framework and Vision

A detailed three-dimensional framework should be undertaken for each of the opportunity and limited

opportunity areas in order to fully appreciate the potential impact of future tall buildings. A long term

vision for the areas should illustrate their proposed role within the wider Borough context and explore

the opportunities for synergies between the areas. Such a study should identify the quantum of

appropriate tall buildings for the area, opportunities for other development types and the potential

public realm and infrastructure improvements.



15.1.3 Planning Policy

The ability of the strategy plan areas to realise the goals and aspirations of local, regional and national

policy should be investigated in detail. Particular attention should be given to Employment, Housing,

Retail and Sustainability strategies and policies. The ways in which development could support local

communities and businesses should be fully explored.



15.2 Further Study



A number of elements of further study have been identified during the preparation of this study. These

can be described as follows.



15.2.1 An Urban Design Vision

In order for this study, and the resultant tall buildings policy, to be most effective in providing a unified

and coherent approach to tall buildings within the Borough of Hackney, it must be in support of an

overarching vision for the Borough.



An urban design vision that brings together the Borough’s social, economic and environmental

aspirations would provide a valuable tool in focusing investment and intervention in a well considered

and coordinated manner.



15.2.2 View Policy

A view policy that outlines all of the strategic and local views of importance within the Borough, and

their capacity for change, is required to ensure a consistent approach to the visual assessment of tall

buildings within Hackney. This would be an important tool for planners and would also bring some level

of certainty to developers of tall buildings.







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APPENDIX A

TALL BUILDINGS



TELECOMMUNICATIONS PLANNING ISSUES







Summary



There are a number of planning issues associated with telecommunications in relation to tall

buildings.



A tall building, usually resulting in a high level of occupancy, means a greater use of

telecommunications services. This increase in demand for telecommunications services calls

for an increase in the supply of such services. The developer will wish to give consideration to

the mix of uses for a tall building: maximising the efficient use of information and

communications technology in the building will be a factor. The local planning authority will

need to be aware of these considerations.



A tall building by its very nature can act as a supplier of services in the telecommunications

sector, by becoming for example a host for transmitting or re-transmitting radio/TV and

mobile telecommunications services. Use of space in the building for telecommunication

services should be considered by the developer - in discussion with the telecommunications

sector and the local planning authority.



In the wireless/mobile age, the tallness of a building may sometimes be a disadvantage in that

it can hinder or distort radio/TV transmissions. Planning authorities need to make sure that

guidelines are available so that such negative impacts are minimised. The local planning

authority can, in this context, consider with the developer the mitigation measures needed, so

that these can be included in any Section 106 agreement.









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1. Introduction



The key issues related to telecommunications and the development planning of tall buildings

are:

Increased use of telecommunications services

Increased demand on the telecommunications sector

Increased supply of telecommunications services

Negative impact on existing radio telecommunications links and broadcast radio and

TV services





2. Increased use of telecommunications services



A tall building is likely to be occupied by a large number of users of telecommunications

services, thus increasing the use of communications services, both fixed as well as mobile. The

increased use of communications services as an enabler, whatever the actual business or

function of the users, particularly in the case of office buildings, will have a positive economic

impact. The developer will wish to give consideration to the mix of uses for a tall building:

maximising the efficient use of information and communications technology in the building

will be a factor. The local planning authority will need to be aware of these considerations.



3. Increased demand on the telecommunications sector



A tall building is likely to be occupied by a large number of users of telecommunications

services, thus increasing the demand for public telecommunications network services, both

fixed as well as mobile, to be supplied to the building. In addition, the large number of users

within the building is likely to require the operation and maintenance of a large number of

systems that depend on telecommunications networks and services for their effective use.

Thus, whilst being a boost to the telecommunications sector because of the increase in

demand for internal and external telecommunications services, tall buildings may also create

bottlenecks in the supply and maintenance of telecommunications services unless these

supplies are planned in time. Such planning has to include the involvement of the local

planning authority and key players in the telecommunications sector, i.e. communications

networks and services providers and OFCOM.





4. Increased supply of telecommunications services



Apart from any spaces in a tall building that may be dedicated exclusively to the provision of

public communications services, the increasing demand for mobile/wireless communications

has resulted in the need for more locations for ‘base stations’. Tall buildings, due to their very

height, are optimum locations for radio antennas. Such antennas can act either as sources of

broadcast radio signals or as receivers of broadcast signals for amplification and re-broadcast,

say in another geographical direction. Thus the tall building is able to become a facilitator of

telecommunications services by increasing the supply of telecommunications services.

Because of the potential positive impact on telecommunications services and the

telecommunications sector, the planning of tall buildings has to include the involvement of the

local planning authority and key players in the telecommunications sector, i.e. communications

networks and services providers and OFCOM. Use of space in the building for

telecommunication services should be considered by the developer - in discussion with the

telecommunications sector and the local planning authority.



5. Negative impact on existing radio telecommunications links and broadcast

radio and TV services



Broadcast radio and off-air (terrestrial and satellite) television services use radio frequency

signal transmission. Such signals travel in the same way as light, i.e. in straight lines. Just as

something obstructing a light source creates an optical shadow, objects in a radio transmitter’s

line-of-sight create radio signal shadows behind them. Within a signal shadow the received

strength of a signal will be heavily reduced resulting in poor signal reception. Thus, buildings

can in principle cause signal shadows and affect the reception of broadcast radio and television





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services. Tall buildings, by their height, tend to have a greater negative impact. In the case of

broadcast radio, as there is a natural phenomenon whereby the radio signals bend round

obstacles at these frequencies, there is no adverse impact due to shadowing from tall buildings.

In the case of broadcast television (both off-air terrestrial as well as satellite) such adverse

impacts due to shadowing are possible.



As in the case of light, radio frequency signals can be reflected off obstructions, so that a

receiver may receive two signals from the same source, a direct signal and one or more

reflected signals. As the reflected signals arrive later than the direct signals, the delayed signals

create a ‘ghost’ of the television image slightly to the right of the main image thus causing

interference to TV reception known as ‘ghosting’. With tall buildings, the potential for such

interference is greater due to their height.



These negative impacts can be mitigated by using higher gain receiving antennas or even

changing the direction of the antenna to another alternative transmitter source. In case such

amelioration of reception is not possible, alternative services can be obtained in the form of

say cable or satellite TV.



Telecommunications networks, whether private or public, are based on wired or wireless links.

A new building development is likely to sit in the path of an existing wireless network link.

Whilst it is often possible to move the link slightly upwards or sideways laterally thus avoiding

the new building that obstructs, in the case of tall buildings the problem is likely to be more

difficult to circumvent, requiring a movement of the link by erecting a new mast elsewhere.



These potential negative impacts are often capable of being circumvented. The local planning

authority needs to consider with the developer the mitigation measures needed, so that these

can be included in any Section 106 agreement.



6. Conclusion



Some negative impacts, all of them surmountable, can result from tall buildings. However, tall

buildings can have a significant beneficial impact on the telecommunications sector, and thus

other sectors of the economy. Planning authorities in discussion with developers need to

ensure that positive impacts are optimised and negative impacts are addressed.









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