2017
Planning Report for Redevelopment at the former Victoria Hotel site, St. Patrick's Street, Cork Town Planning Report Planning Report to accompany planning application lodged with Cork City Council on behalf of R.E.S.A.M. Properties Limited at the former Victoria Hotel site, St. Patrick Street, Cork.
Manahan Planners 38 Dawson Street, Dublin 2 9/20/2017
Introduction Manahan Planners have produced this report to accompany a planning application in connection with a development proposal at the former Victoria Hotel site, 35-36 St. Patricks St & 38-39 Cook Street, Cork. Built in 1810 the Victoria Hotel occupies a prominent location at the centre of Cork City. The proposed development seeks to bring back into use and prominence a building which has fallen idle. While the ground floor remains in use as for retail purposes, upper floors have been vacant in recent years. The proposal primarily entails the consolidation of the two existing retail units and the former hotel entrance into an open plan ground floor, with three further floors above, all intended for retail use. This will involve retaining the front block of the building and constructing a new building to its rear. An atrium is to be constructed at roof level above Level 3, with a void at Level 3 allowing light from the atrium to penetrate down to Level 2 also.
Figure 1: Aerial view of the subject site in Cork City context.
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Figure 2: Site Location Plan
Site Context The Victoria Hotel occupies a 4 storey building situated in Cork City centre, on St. Patrick's Street, the core of retail centre. It is located at the junction with Cook Street. The surrounding buildings are predominately in retail use. The ground floor of the subject building is occupied by two retail outlets, Monsoon and Accessorize. The hotel's primary access was from Cook Street with another entrance opening onto St. Patrick's Street. The Hotel previously occupied the first, second and third floors. While it is currently lying idle the Victoria Hotel has a long history associated with it.
The Building The hotel dates back to 1810 when it was called the Royal Victoria Hotel. It became a hotel of significant stature and prominence with many visiting British, French and Prussian dignitaries using it on their visits to Cork. It was the location for the second ever meeting of the Gaelic Athletic Association in 1884 and Michael Collins was said to have been a regular guest of the hotel also.
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It later contained the renowned Coco's nightclub and also the Gay Future's cocktail bar in 1980's.
Figure 3: Old photo of the St. Patrick's Street elevation of the Victoria Hotel (Source: Cork: Past, Present and Future - William Lawrence)
It had its ground floor space converted to retail in the 1980s, with main access to its upper floors of (its then) 33 bedrooms and function room/bar, and old salon, from Cook Street, with secondary access from St. Patrick’s Street. The building is not a Protected Structure, as per the Cork City Development Plan 20152021. However, it is included in the National Inventory of Architectural Heritage (NIAH), with registered numbers 20513090 (39 Cook Street) and 20513091 (35-36 St. Patrick's Street). Its appraisals contain the following extract: "The scale and form of this building make a notable and positive contribution to the streetscape. This prominently located hotel has played a significant role in the social and historic life of the city. Visitors include Charles Stewart Parnell, James Joyce, John Redmond, Michael Collins, Liam Cosgrave and Sir Winston Churchill. It was in this hotel that the newly founded Gaelic Athletic Association held its second meeting in 1884. Though now greatly altered to the ground floor, the upper levels of the building retain interesting features and materials, such as the timber sash windows, wrought-iron sill guards and slate roof. Inventory of Cork Victoria Hotel, St Patrick’s Street
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City Interiors, (1986) notes a coffered and vaulted neo-Greek ceiling and open well staircase c.1840." It is currently in a state of disrepair with significant work required from both a cosmetic and structural perspective to return it to active use. Further, there is a great disparity in the levels across the building. This has been exacerbated by the interventions carried out in recent decades to put in "false" floor levels on top of original ones. At first floor ceiling level (i.e., 2nd floor level) it was established that a new steel floor had been built on top of the existing timber floor. Opening up works were conducted and viewed by Council officers.
Figure 4: Photo of opening up works revealing a new steel floor that had been built on top of the existing timber floor
The arched decorative ceiling to the first floor ballroom is a unique characteristic of the building. It is believed that the only similar ceiling in the city exists in the old St Paul's Church of Ireland Church building on Paul Street that now accommodates the 53 Degrees North shop. The works carried out in 2003 to the ground floor elevations (as a result of Planning Application Reg. Ref. 0226098 to convert it to two retail units) considerably impacted
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upon the character of the ground floor and led to the removal of the attractive ground floor elevation as seen in Figure 3 above.
Planning History An application (Reg. Ref 0226098) was granted permission in 2002 for a "change from restaurant use to retail use at ground floor, to include facade alterations & fascia signage". An application (Reg. Ref. 0429187) for a change of use of night-club to restaurant on first floor was granted in 2005. The following planning applications pertaining to the subject site were granted permission for a range of interventions to the ground floor shopfront, fascia, signage and hotel entrance:
0024580 0429096 0429097 1536566
The Proposal The following description is contained within the statutory notices: Cork City Council - Permission is sought by R.E.S.A.M Properties Ltd for a development at the former Victoria Hotel site at 35-36 St. Patricks St & 38-39 Cook Street, Cork, presently retail at ground floor and vacant overhead. It is intended to retain and refurbish the front bays of the building, (floor area 465 sq,m) as part of a new high order retail outlet. The rear portions of the building facing Cook Street containing 1702 sq.m of floorspace will be demolished and replaced with a new build containing 1804 sq.m. A new additional top floor will be provided. The entire building will be used for a high order retail use and the new build to the rear will be integrated with the retained and refurbished portion to the front. The completed development will have a floor area of 2269 sq. m, in comparison to 2167 sq.m at present and will be 4 storeys in height. The existing ESB substation will be relocated within the site and the development will include all site development works. The proposed physical interventions are as follows:
The proposal consists of a high quality retail building, occupying a prominent corner in the centre of Cork city.
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It is proposed to retain the front block of the former Victoria Hotel at 35-36 St. Patrick's Street, including the first floor ballroom/Chamber of Commerce and its decorative plaster ceiling. The non-original mezzanine platform is to be removed from the ballroom to return it to its original volume. At ground floor level a new rhythm of windows and piers in harmony with the rhythm of retained upper floor is proposed to replace the existing shopfronts which are the result of recent unsympathetic piecemeal adjustments. It is proposed to replace existing attic level of the retained front block including its non-original dormer windows and large water tank enclosure with a new roofscape accommodating a top floor rooflit studio-type space. It is proposed to replace the buildings to the rear of the retained historic front block with a newly constructed three storey over ground floor building with first floor mezzanine and a discretely located rooftop mechanical room. This new building continues the scale and volume of the front block and presents a new elevation to Cook Street which acknowledges the transition between the domestic scale of Cook St and the civic scale of St. Patrick's Street. The floor levels of the retained front block will be carried through to the new building. A new double height entrance portal is proposed, recognising the importance of Cook St and generating permeability through the shop floor. Retractable awnings are proposed to the ground floor windows to enliven this stretch of the street and to capitalise on its pedestrianised status. Three openings will be made at each level of the front block to provide easy and free transition between the retained structure and the new construction behind while maintaining the spatial definition of the former. A large central roof light and an accompanying void at third floor level is proposed in the new building to promote intensity of use at the uppermost levels. A new substation and switchroom required by the ESB has been located to the rear of the ground floor of the new building to be accessed from Cook St. It has been arranged in plan to minimise is impact on the street and its doors have been integrated into the elevation design.
Planning Assessment Land Use The proposed development seeks to change the use of the vacant upper floors of the building that were previously in hotel use to be consolidated with the current retail use at ground floor level to provide a high quality Grade A retail unit to attract a flagship international retailer to Cork City.
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There is a well recognised shortage in Cork City centre of the large floorplates that modern retailer operators require. Much has been made of the emergence of suburban shopping centres in Metropolitan Cork over the past 25-35 years. Policy guidance that has been published by Cork City Council in recent years has identified how this outflow of retail premises should be reversed and to intensify and concentrate retail in Cork City centre and most specifically in and around St. Patrick's Street. Zoning The subject site is in an area zoned as ‘City Centre Retail Area’ in the Cork City Development Plan, the objective of which is to “to provide for the protection, upgrading and expansion of retailing, in particular higher order comparison retailing, as well as a range of other supporting uses in the City Centre retail area”. Section 13.12 of the Development Plan details how development should take place in these areas.
Figure 5: Extract from the Development Plan Zoning indicating subject site.
“The City Council is committed to the reinforcement of the City Centre’s role in the retail hierarchy by supporting exiting retailing and facilitating the development new floor-space to meet projected demand. Retailing is prioritised in this area but not to the exclusion of other land use types. Other uses such as residential, hotel, office and cultural and leisure facilities etc which compliment the retail function of the CCRA and promote vibrancy in the City Centre are also permitted, subject to the policies to promote City Centre retailing in Chapter 13.” In addition, Chapter 4 details the Retail Strategy for Cork City.
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Retail Strategy Objective 4.3 identifies the need to revitalise the supply of retail space in the City Centre in order to maintain and improve competitiveness. The Objective aims: “To protect and enhance the role of Cork City Centre as the primary retail centre in the south-west region by facilitating the continued regeneration and modernisation of existing and the development of new retail building stock.” The Development Plan details a general need for increased retail floorspace over the lifetime of the Plan. Additionally, the Development Plan seeks to reduce the amount of vacant floorspace in Cork City. Objective 4.16 aims: “to seek to reduce the level of vacant floorspace within Core Retail Areas by 50%, half of which should be occupied by retail use and the remainder by non-retail uses or retail services. Re-occupied retail units should be at a ratio of 2:1, comparison: convenience goods.” The upper floors of the subject premises are currently vacant. This proposal will help to achieve this objective. City Centre Movement Strategy 2012 The Movement Strategy contains aims to: “Improve the general vibrancy of Cork City Centre to deliver a much more attractive environment for shoppers, visitors and tourists and to help encourage sustained inward investment.” Metropolitan Cork Joint Retail Study This joint retail study for Metropolitan Cork was commissioned by Cork City Council and Cork County Council in 2012. It has been incorporated into the review of the Cork City Development Plan which was conducted in 2014. The Strategy sets out guidance and policies for retail development at a strategic level for the Metropolitan Area. As part of this it expresses concern at the impact the economic downturn had on the City Centre, stating: “There has been a loss of a number of indigenous local retailers and such a trend could continue to erode the character and diversity of the City Centre. These issues are matters that will need to be addressed in order to stem the further decline of the City Centre.” It continues: “There is a need to continue to enhance and reinforce the function of the retail core”
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It is clear in its support for Cork City Centre as the preferred location for retail development stating that: “The primacy and retail function of Cork City Centre, a Metropolitan Centre should be protected and promoted to ensure it retains its position in the national hierarchy.” More specifically it identifies the City Centre as the location which: “Should be the prime focus for future development and in particular the development of high order comparison retail floorspace”. The proposed development can make a telling contribution to the objectives contained in the Metropolitan Cork Joint Retail Study. Cork City Centre Strategy 2014 Colliers International were commissioned by Cork City Council to create a strategy for the renewal and regeneration of Cork City Centre. Its message is clear and direct. “There must be a rebalancing of economic activity into Cork City Centre. The Cork Region needs a healthier heart.” “Significant out of town development in the retail, office and visitor attraction sectors has impacted the City Centre.” Chapter 4.1.3 entitled Priority is to Attract More Footfall to the City Centre identifies that “Many businesses in the City Centre are fragile because of the combined effects of the recession and competition from out of town shopping/leisure, the internet and financial pressures and significantly reduce consumer spending”. It outlines the importance of the retail sector stating that it is “fundamental to the economic and social vitality of the City Centre”. Chapter 4.1.3 entitled Modernising the St. Patrick’s Street and Surrounding Retail Offer “‘Functional’ shopping for necessities and certain types of goods is increasingly being done on-line and in out-of-town retail parks. People are still likely to want to shop for other items, like clothing, in future, but will think of that shopping as being a part of their leisure time. The strategy must, therefore, be to make the City Centre retail area an excellent leisure experience.”
Character Areas Victoria Hotel, St Patrick’s Street
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The Strategy goes into detail about the City Centre’s different character areas, as displayed in the map below. Identifying St. Patrick’s Street as the clear “main/high street spine” that is primarily brand orientated retail and leisure, with Oliver Plunkett Street and Castle-Paul Street running roughly parallel and operating as the ideal location for independent shops and places to eat and drink. The idea being expressed that there is a balance and complementarity to this arrangement, with one feeding off the other and vice-versa. The Applicant is working to secure a high end international retail outlet for the subject unit. This can ensure that, for example, Oliver Plunkett Street (as winner of the Academy of Urbanism’s Great Street Award 2016 for Britain and Ireland) can continue to flourish as a go-to location for independent and local shops.
Figure 6: image contained in the City Centre Strategy of the different character areas within the city centre
Clusters The Strategy identifies a number of ‘groupings’ of similar businesses throughout the City Centre (as can be seen in the image below) reasoning that there are benefits “from the critical mass of being close to other businesses of similar ilk and serving similar customers”. It could be argued that the subject site’s location where the cluster of department stores and fashion brands meet is appropriate given the nature of its business model, straddling both sectors.
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Figure 7: image contained in the City Centre Strategy of business clusters in the City Centre
Change The Strategy places much emphasis on its view that “retail is going through a fundamental change”. It adds: “This needs to be understood by Cork City Council and its partners and be reflected in planning and City Centre development.” It argues that while, in the medium term, it is unlikely that the City Centre will require a large expansion of its retail floorspace, there is a distinct requirement for the modernisation of existing retail space. In order to ensure that: “St. Patrick’s Street and the immediate area in its vicinity is the location of choice in the south of Ireland for national and international flagship retailers.” In addition, it states: “The focus should be on modernising and enhancing the quality of the space in and adjacent to the street and refreshing the offer.” Furthering the point about the City Centre’s need to modernise, it states that successful cities are ones that “blend heritage with the contemporary, in an attractive urban environment”.
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This proposal supports the achievement of this objective with the provision of high end retail space in a building designed to marry the old and historic with the contemporary and modern. Shop Front Design Chapter 16 of the Development Plan provides further detail as to how Shop Fronts & Commercial Façades should be developed. It outlines that "original traditional shop fronts, pub fronts & façades shall be retained, preserved or restored" and that "contemporary shop/ pub fronts will be considered when: - materials and proportions are appropriate to the scale and fabric of the building and/or street. the design complements the design of the upper floors of the building."
Built Form Interventions The proposed physical interventions are outlined below with commentary from the Architectural Design Statement providing the rationale for such interventions. St. Patrick's Street In an attempt to reverse the negative impact of various piecemeal adjustments over the past 20 years, the ground floor of the St Patrick's Street elevation has been redesigned to reinstate "a rhythm of windows and piers in harmony with upper floor rhythm" using a high quality grey stone cladding which is carried around into the new Cook St elevation. Further - "the new structural rhythm and the proportion of solid to void at ground level gives the building a sense of a solid base reminiscent of the character of the original building." The existing attic roof is to be replaced with a new fourth storey which accommodates a top-floor "rooflit studio-type space". This new level is clad in grey stone to match the ground floor level and serves to strengthen this important street corner - "it also makes a transition between the stone clad formal department stores to the eastern frontage of St. Patrick Street and the more domestic scale of the rendered buildings to the west of St. Patrick Street beyond the Cook Street corner". The generous floor to ceiling heights at the ground and first floor levels, combined with "the grand scale of the first floor windows at ‘piano nobile’ level, make a uniquely elegant retail corner building which has both a civic and an urban quality". Cook Street The floor levels of the retained front block are carried through to the new building to the rear with the existing windows of the front block retained onto Cook Street. With respect to architectural expression "the overall composition of the Cook Street facade
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expresses the ground and first floors as one suite, and the top two floors as an upper rooflit suite". A generous doorway to the retail unit is created onto Cook Street, with reference to the double height side entrance to the former hotel building. The Design Statement outlines that "the Cook Street elevation recognises the transition between the domestic scale of Cook Street and the Civic scale of St. Patrick Street." Parking No car-parking will be provided as part of this application. The subject site is centrally located and very accessible by public transport. Conservation Perspective Southgate and Associates were appointed to provide an Architectural Heritage Impact Assessment and Archaeological Impact Assessment to assess the potential impacts of proposed development of the subject site on the historic fabric of the building and the surrounding urban landscape. The report states that the subject building has been subject to various alterations over its 200 year history resulting in the loss of much of its historic fabric. The building is not a Protected Structure nor does it lie within an Architectural Conservation Area, it is however recorded as “regionally Significant” by the NIAH. The report states that the above in combination with the significance of the plasterwork contained on the ‘piano nobile’ first floor and the 19th century proportions of its front elevation, it has been decided to treat the building in a similar manner to a Protected Structure. The report opines that the proposed design acknowledges the 19th century historic character, pattern and grain of this part of Cork City and has been designed so as to be sensitive to this character whilst allowing for a modern, sustainable end use. The report identifies that the significance of the building has been assessed by the Design Team, that the impacts and mitigation measures have been taken into consideration in the design of the proposed development in terms of scaling and massing and conservation of historic features and character of the streetscape. The report concludes that the proposed development will not have a negative impact in the heritage values present on the site. Structural Response Having considered the site location within the City centre and the access constraints provided by both Cook Street and St. Patrick's Street, and having reviewed all of the standard forms of construction, it was decided in this instance the use of a structural steel frame solution with precast concrete floor slabs would be the most suitable form of construction in terms of time and construction equipment space requirements. This Victoria Hotel, St Patrick’s Street
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form of construction allows for quick erection of the superstructure from mobile cranes which can be used at times agreed with the City Council. The foundations for the new structure will be bored concrete piles supporting reinforced concrete pile caps and ground beams with a suspended ground floor slab. Again, given the constraints of the site, it is intended that these piles will be installed using a mini piling rig. The steel columns will be founded on the reinforced concrete pile caps. The steel floor beams will be installed simultaneously, all using a mobile crane. Once the steel structure is lined and plumbed, the precast concrete floors can be installed, again using a mobile crane. The floor screed will be installed using a mobile concrete pump. Architectural Design Statement The Design Statement details how the proposal combines new building with the retention and integration of the front block onto St. Patrick Street. It outlines that: "This decision to retain the front block was made particularly in order to retain the very special quality and proportion of the first floor windows onto Patrick Street and the quality of the interior room served by these windows. In addition, it is retained because it marks the line where the Burning of Cork (1920) stopped and beyond which the street was subsequently rebuilt, together with the fact that this first floor room housed many important historic events which were important in the life of the City. The proposal is to demolish the remainder of the existing building which fronts onto Cook Street due to its poor physical and spatial quality both inside and outside. This approach was taken after detailed examination of viability, buildability, and design impact."
Conclusion In conclusion, we submit that the subject proposal is consistent with the proper planning and sustainable development of the area, and is consistent with the provisions of the city development plan including its conservation objectives. Accordingly we request that the planning authority grant permission for the development as proposed.
Manahan Planners December 2017
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