St Helier Urban Character Appraisal by Willie Miller

U R B A N

C H A R A C T E R

A P P R A I S A L

ST HELIER States of Jersey Planning and Environment

OCTOBER 00 FINAL REPORT

WMUD

States of Jersey Planning and Environment South Hill St Helier Jersey JE2 4US

St Helier Urban Character Appraisal Final Report

October 2005 Willie Miller Urban Design Drew Mackie Associates Glasgow Conservation Trust West yellow book Malcolm Fraser Architects

study team: Janet Benton Malcolm Fraser Katharina H端bl Niall Jacobson John Lord Drew Mackie Stefanie Melnikoff Willie Miller Carol Scrimgeour Gordon Urquhart

St Helier Urban Character Appraisal Final Report

contents Part One: Baseline introduction

Part Two: Shaping St Helier 1

strategic directions

methodology

design guidance

211

strategic context

conservation policy

247

205

evolution of character

public realm strategy

251

people and perceptions

recommendations

259

urban qualities

character appraisal

101

character area decriptions

133

conservation

179

ST HELIER URBAN CHARACTER APPRAISAL

introduction This report, prepared by a consultant team led by Willie Miller Urban Design with Drew Mackie Associates, yellow book, Glasgow Conservation Trust West and Malcolm Fraser Architects, sets out the findings of an Urban Character Appraisal of the town of St Helier. The study was commissioned by the Planning and Environment Department of the States of Jersey and originated in the Island Plan which was approved in July 2002. In particular, Policy BE1 states that: “The Planning and Environment Committee will initiate an appraisal of the urban character and townscape of the town of St. Helier as an aid to the process of preserving and enhancing its character and in guiding policy formulation and the assessment of planning applications”. The appraisal of the urban character of the town coupled with design guidance for each character area forms the core of the study. The guidance is set in a strategic policy context which identifies Central St Helier

potential change in each area and makes proposals for conservation and physical intervention. The design guidance could enable the States of Jersey to take a new approach to assessing and processing planning applications. Context St Helier originated as a medieval settlement which was extensively developed in the 19th and 20th centuries. Today, St Helier continues to change in order to meet the needs of a growing population. The Island Plan 2002 provides the main context for the Urban Character Appraisal - some parts of St. Helier are likely to be the subject of significant change during the next ten years. These have been designated Action Areas, and could be the subject of individual development frameworks. Nine of these are located in St. Helier. The Island Plan has identified the following aims for the study: • • • • • •

to increase the understanding of the urban form of the town. to understand the inter-relationships and interfaces between the town and the other built up areas. to further define those areas most in need of renewal and target resources accordingly. to further define those areas most in need of protection and for possible designation as Conservation Areas. to assist in the preparation of development frameworks for Action Areas. to assist with future urban policy formulation and assist in the assessment of development applications.

These aims are set in the context of an agreed vision for St. Helier based on the views of a comprehensive range of local groups who were asked to consider: • • •

what quality of urban life should be aspired to in the future? what sort of physical, social and economic characteristics should prevail in the town? what should particularly identify the town?

The responses to these questions helped to evolve a vision for 2011 in which St Helier would be: • • • • •

a vibrant focus for Island life a place of strong historic identity and sense of place, but also an environment of design innovation a service centre of great vitality and viability – day and night a town of civilised streets and spaces for enjoyment as well as function a town with a strong feeling of safety and security OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

• • •

a town of quality, character and visual interest in terms of its buildings and public domain. an environment accessible by all modes, with a town centre that is pedestrian friendly, particularly for the mobility impaired a place for all people and all ages

Study Area Initially it was proposed that the study area would incorporate that part of St Helier included in the Town Proposals Map of the 2002 Island Plan. As the study has progressed, the consultant team have generally kept to this definition although it has been extended to include the town’s more important road entrances. Purpose of the Study It was agreed that the study should: •

• •

identify key factors which contribute to character, and use these to provide an appropriately sophisticated and objective assessment of the character of the town and the various character areas within it identify where the character is strong and requires conservation, and where the character is weak and eroded and requires restoration or more radical measures provide a policy base for management, protection and enhancement in different character areas

The brief also asked for the provision of development frameworks for those areas likely to undergo significant change in the coming 510 years (eg the designated Action Areas). Objectives of Study It was also agreed that the study should: • • •

• •

provide supplementary planning policy and guidance for different parts of town, which build on the strategic policy framework provided by the Island Plan 2002 provide a framework for assessing the impact of future land use proposals to help inform development control decisions help identify the capacity of different areas to absorb new development, and help ensure that any new development is appropriate for the area in question having regard to its distinctive character assess sensitivities/ vulnerabilities of different character areas to the forces of change. provide a framework for developing appropriate urban design/ public space strategy for conservation/ enhancement of town character

• •

provide a benchmark against which changes in various character areas can be monitored present the findings of the study in a professional and clear manner appropriate to the end user groups, and of a standard to be adopted as supplementary planning Guidance where appropriate

View south east towards Havre des Pas from Fort Regent

ST HELIER URBAN CHARACTER APPRAISAL

Scope of the Study It was agreed that the scope of the study should include the following: 1.

A literature review of important and relevant documents including historic studies, previous townscape and other proposals, the Jersey Island Plan itself – including web based information sources – and a Character Appraisal of the Countryside of Jersey carried out in 1998 by Land Use Consultants. 2. The identification, definition and description of key character areas within an agreed boundary of St. Helier, based primarily on historical and morphological data, but also related to movement systems and social/cultural infrastructure. 3. Definition of key townscape characteristics and the relationship between public and private space, including the green environment within the town. 4. Identification of land-use patterns and their effect on character, both in terms of building form and the social characteristics of the public realm. 5. Obtaining and analysing public perceptions of the selected character areas, and identifying how this might impact upon future proposals. 6. Identification of the constraints and main elements of potential change within each character area. 7. Determination of the relative levels of protection and enhancement required within each character area, including areas of archaeological significance. 8. Establishing the relative capacity of the various character areas to accept new development without undue detrimental impact on their character.

Section 4 investigates the evolution of the character of St Helier Section 5 deals with the perceptions of a range of people and interest groups within and outwith St Helier Section 6 sets out some rules, definitions and typologies which have created today’s St Helier Section 7 describes how the character areas of St Helier were defined Section 8 describes each character area in detail Section 9 explores issues relating to conservation of the historic environment Part Two: Section 10 sets out a strategic direction for the character areas Section 11 sets out the design guidance for each character area Section 12 describes a conservation policy for St Helier Section 13 deals with a public realm strategy for the town Section 14 sets out the study recommendations Elizabeth Castle from the New Waterfront Marina

The output from these tasks is a series of planning guidance and urban design frameworks for the character areas together with area based supplementary policies covering physical interventions, public realm strategy and conservation policy. Structure of the Baseline Report The report is in two parts. Part One: Section 1 this is the introduction to the study Section 2 describes the methodology used Section 3 examines strategic issues which form the context for the work OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

ST HELIER URBAN CHARACTER APPRAISAL

methodology Introduction In our proposal for this commission, we noted a growing interest in producing methodologies which attempt to categorise urban character in (more or less) objective terms. We considered this to be a dead end approach, unlikely to provide either meaningful or useable information but at the same time, we thought it was important to bring some sense of order to bear on the process of defining urban character. At the same time, a simple physical assessment of the town would have been too one-dimensional and would have left many issues unresolved. In order to produce the character assessment for St Helier, our starting point was to blend together a wide range of objective criteria with subjective views, as well as expert knowledge. This desire to create an integrated and holistic output was echoed in the range of expertise in our team.

The diagram below outlines our ideas on how these analysis strands would be brought together. Perception and Consultation Our intention was to run a broad series of interactive programmes during the study period using a consultation kit devised for the study. From the brief it was evident that a good deal of consultation had already been carried out in St. Helier. There was no point in repeating this so we decided to audit previous streams of consultation and work with other organisations carrying out consultation at present. Where groups had not been consulted, we tried to bring them into the process if possible. The purpose of this

Key Study Diagram

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work was several fold:  to inform local people about character and conservation issues  to incorporate local knowledge in the study  to secure local support for the policies and projects that emerge from the study The consultation methodology was designed to explore the perceptions of a range of local people and interest groups in relation to: • •

places that are significant places that are included in or define key areas or neighbourhoods

Methodology diagram

• •

how different places are used and how popular they are what is especially distinctive and valued in the town

The intended range of consultees was primarily: • • • • • •

young people college students readers of the Jersey Evening Post retailers and market tenants the Association of Jersey Architects the client group

ST HELIER URBAN CHARACTER APPRAISAL

The consultations were to take the form of: • • • •

formal workshops of interest groups organised by the consultant team (retailers, architects - and others if required) workshops held by others (eg schools, colleges, other local interest groups) work on the street with young people a feature publication in the Jersey Evening Post

As it turned out, for a variety of reasons, we were not able to work with young people on the street nor run the feature publication in the Jersey Evening Post.. Nevertheless we do think that these would have contributed valuable information. Retailers: We ran a workshop with The Retailers Association and the Market Tenants group. This was facilitated by a kit of cards and maps but the emphasis was on how the centre of St Helier works for retail and what role the character of the area plays in the success of businesses. Questions were framed as follows: • • • •

how and whether the character of the town (fine grain, small scale etc) was an asset or hindrance from their point of view whether the nature of the town encouraged shoppers to linger in the retail core which places best typified the character of St Helier and worked best from a retailers point of view one part of the town they might change and in what way

Association of Jersey Architects: We also ran a workshop with the AJA. The same basic approach applied for this session but in this case there was a greater concentration on matters of guidance, development control, conservation and related topics. The cards were available as prompts, but the architects were asked to work predominantly with plans, recording aspects such as: • • • •

the different neighbourhoods and character areas of the town key townscape qualities of different parts – using words and/or sketches places and spaces of value – social, historical, architectural what features/places are most distinctive to St Helier and which are more 'generic'

involved in planning and administering change in the town. As with the sessions described above, the workshop group initially: • •

identified the different character areas of the town and particular places/focal points suggested what sort of place St Helier should be – what sort of character…..

The group then identified: • • •

the general condition of townscape and priorities for conservation threats to the town and opportunities for change a list of issues which affect their work

Other Interest Groups and Individuals: During the course of the study, other interest groups who expressed an interest in contributing to the work were consulted. The study team also contacted a number of individuals, other groups and organisations in St Helier (from the list issued by the client) to obtain a wider range of perceptions on the issues relating to the study. These included locally based artists, travel agents, property consultants and individuals who have visited St Helier in the past or who may intend visiting the town in the future. Strategic Context, Conservation and Urban Design Appraisals In parallel with the consultation and perception aspects of the studies, the team addressed the wider strategic context of the town through document research and interviews with key people in St Helier and the States of Jersey. St Helier does not exist in a vacuum and many influences on the economy of the town and its future inevitably affect the character of its various areas. The team also carried out extensive research on the history and development of the town and an in depth urban design appraisal of the physical aspects of the town. These various streams of work were brought together into a Baseline Report which was widely circulated. Following this and after a period of consultation and feedback, we produced this Final Report which describes in some detail the steps which should be taken to maintain and enhance the character of the town.

Client Group: Development Control + Conservation staff: A workshop was held with the client group. This consisted of two interrelated parts intended firstly to bring detailed local knowledge of St Helier to the study and secondly to explore the range of issues OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

ST HELIER URBAN CHARACTER APPRAISAL

strategic context 1 Introduction This chapter reviews the performance and prospects of the Jersey economy, and explores the implications for the spatial development of St Helier. The chapter is based on official statistics and reports published by the States of Jersey, a number of secondary sources, and a series of consultations with civil servants, other officials and business organisations. This chapter does not pretend to be a comprehensive review of the Jersey economy, which would be beyond the scope of our remit. However, it aims to provide the essential context for the Urban Character Appraisal and the subsequent development of policy formulation, urban design strategies and action area plans which will aid the process of preserving and enhancing St Helier. In particular it explores the concept of place competitiveness and the role of the town in promoting economic growth and diversification, especially in the financial services and tourism industries.

2 The Jersey Economy Population1 The population of Jersey increased by 3,100 (+4%) between 1991 and 2001, from 84,086 to 87,186. The bulk of this increase (81%) is attributable to natural growth, with the remainder (19%) due to net migration. Migration patterns fluctuated through the 1990s (Fig 2.1): â&#x20AC;˘ there was net out-migration in 1991-92 and again in 1999-2001 â&#x20AC;˘ there was net in-migration between 1993 and 1998 Figure 2.1: Net migration flows, Jersey 1991-2002

The chapter is in 6 sections: Section 2 contains a summary of key data on the Jersey economy Section 3 contains a review of the St Helier property market Section 4 reviews the emerging policy agenda Section 5 is an assessment of the place competitiveness of St Helier Section 6 reviews implications for the future development of St Helier New waterfront residential development from Pier Road

Fig 2.2 shows the age structure of the Jersey population in 2001, compared with GB. The age structure of Jersey is broadly similar to GB, but the island has a higher proportion of working age residents2. Figure 2.2: Age structure, Jersey and UK 2001

OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

Fig 2.3 shows the geographical distribution of population between the Parish of St Helier and the rest of the island, in 1991 and 2001. It shows that:

Figure 2.4: Economic activity rates, Jersey and GB 2002

•

St Helier retained a 33% share of the population between 1991 and 2001

Status

Jersey

•

the wider urban area (including the parishes of St Saviour and St Clement) accounts for about 56% of the population of the island

Economically active (%working age population)

46,586

82%

79%

Economically active (%working age men)

25,413

87%

84%

Economically active (%working age women)

21,173

76%

73%

% of those in employment as employees

40,370

87%

84%

% of those in employment who are self-employed

5,205

12%

11%

Figure 2.3: Geographical distribution of population, Jersey 1991 and 2001 1991 Population

% 1991 Population

2001 Population

% 2001 Population

St Helier

28,123

33%

28,310

33%

St Clement

7,393

8,196

Jersey UK% %

Economically active:

ILO Unemployment Rate

1,011

Sub Total

46,586

100% 100%

St Saviour

12,747

15%

12,491

14%

St Brelade

9,331

11%

10,134

12%

Economically inactive

10,427

18%

Grouville

4,297

4,702

Total working age population

57,103

100% 100%

St Lawrence

4,561

4,702

St Peter

4,231

4,293

St Martin

3,258

3,628

Employment

St John

2,440

2,618

St Ouen

3,612

3,803

St Mary

1,449

1,591

Employment in Jersey is subject to marked seasonal variations, especially for jobs in hotels, restaurants, bars and agriculture. Figure 2.5 tracks the annual mean average level of employment on the island from 1998 to 2002 4:

Trinity

2,640

2,718

Total

84,082

100%

87,186

100%

Economic Activity Rate

22%

Figure 2.5: Annual mean average employment, Jersey 1998-2002 1998

1999

2000

2001

2002

June

48,150

47,450

47,580

47,550

47,400

December

43,320

42,290

43,770

43,980

44,100

 the proportion of the population that is of working age is higher (65%) than in GB (61%)

Mean Average

45735

44870

45675

45765

45750

 82% of the working age population is economically active, higher than in the GB (79%): activity rates for both men and women are above the GB level

The mean average level of employment remained steady at around 45,750 from 1998 to 2002. However, the number of registered unemployed rose sharply (albeit from a very low base) in 2003, from 230 to 640.

Figure 2.4 compares economic activity rates in Jersey and GB3. Jersey has a working age population of 57,013:

 87% of the economically active population are employees (GB 84%),12% are self-employed (GB 11%)  2% of the economically active population are seeking work, less than half the GB rate (5%) 10 |

Total Employment

ST HELIER URBAN CHARACTER APPRAISAL

Employment by Industry Figure 2.6 shows the share of employment by industry in Jersey in June 2002:

Industry

Employees

Agriculture and fishing

2,180

4.60%

Manufacturing

2,300

4.90%

Construction/quarrying

4,930

10.40%

Electricity, gas, water

580

1.20%

Wholesale and retail

8,050

17.00%

Hotels, restaurants, bars

6,560

13.80%

Transport, storage, communications

2,760

5.80%

440

0.90%

Financial and legal activities

12,300

25.90%

Miscellaneous business activities

2,820

5.90%

Education, health, other services

4,480

9.50%

TOTAL EMPLOYMENT

47,400

100%

Computer and related activities

The top three industries by employment are:  financial and legal services (26%)  wholesale/retail (17%)  hotels, restaurants and bars (14%)

the public sector, but a decline in traditional industries, especially hotels, restaurants and bars (-15%) and agriculture (-9%). Since these figures were compiled there has also been a significant shakeout in the financial services sector. Figure 2.7: Change in employment by industry, Jersey 1999-2002 (June)

Industry

Change 1999-2002

Agriculture and fishing

-9.20%

Manufacturing

-3.40%

Construction/quarrying

-8.60%

Electricity, gas, water

-4.90%

Wholesale and retail

-2.70%

Hotels, restaurants, bars

-14.70%

Computer and related activities

57.10%

Financial and legal activities

6.00%

Miscellaneous business activities

6.80%

Education, health, other services

6.70%

TOTAL EMPLOYMENT

0.10%

It is notable that all three industries depend heavily on employment in St Helier:  financial, legal and associated activities are concentrated almost exclusively in the capital  St Helier is the only significant retail centre, and the wholesale trade is also concentrated in the town, especially the port area  tourism related employment is distributed more widely across the island, but there is still a concentration of accommodation and (especially) restaurants and bars in the urban centre. Agriculture, often described as the island’s “third industry” after finance and tourism, has been in long-term decline and now accounts for less than 5% of jobs. In the three years to June 2002, total employment in Jersey was almost unchanged, but there were some significant shifts by industry. Figure 2.7 shows that there was strong growth in finance, business and other services and OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

Industry Contribution to GDP

Employment by Occupation

Figure 2.8 shows the estimated contribution of each industry group to Jersey’s GDP in 20025. It reflects the huge contribution of financial services, which account for 55.9% of GDP, ten times as much as hotels, restaurants and catering. GDP per employee in the sector is twice the island average.

Figure 2.10 shows the breakdown of employment in Jersey by occupation, compared with Great Britain.6 It shows that, compared with GB:  Jersey has a relatively high proportion of employees in managerial and administrative occupations and skilled trades  …and a relatively low proportion of professionals and people working in service, process and elementary occupations.

Figure 2.8: Contribution to GDP by industry, Jersey 2002

Industry

Agriculture and fishing

1.30%

Manufacturing

1.60%

Construction/quarrying

6.60%

Electricity, gas, water

1.50%

Wholesale and retail

9.70%

Hotels, restaurants, catering

5.60%

Transport, storage, communications

4.30%

Figure 2.10: Employment by occupation, Jersey and GB, 2002 Occupation

% of

Jersey

GB employment

employment Managers/senior officials

16%

13%

Professional occupations

12%

Assoc professional/technical

14%

13%

Admin/secretarial

19%

14%

Computer and related activities

0.5

Skilled trades

15%

10%

Financial and legal activities

55.9

Personal services

Miscellaneous business activities

2.9

Sales/customer services

Education, health, other services

10.5

Process, plant, machinery operatives

TOTAL EMPLOYMENT

100%

Figure 2.9 gives a more detailed breakdown of the contribution to GDP of the financial services cluster. It shows that the cluster is dominated by banks and building societies (72% of the total), followed by investment trusts/fund management (17%) and legal/ accountancy services (10%). Figure 2.9: Share of financial services output by activity, Jersey 2002 Industry

Banks and building societies

71.80%

Insurance

0.90%

Investment trusts/fund managers

16.60%

Legal services

5.20%

Accountancy services

4.80%

CLUSTER TOTAL

100%

12 |

Elementary occupations

13%

TOTAL

100%

Market Stall

ST HELIER URBAN CHARACTER APPRAISAL

Conclusion This review has shown that Jersey has a highly specialised economy, with an exceptionally high dependency on the financial services cluster, which accounts for more than a quarter of direct employment (as well as substantial indirect employment) and more than half of the island’s GDP. By contrast, the other industries traditionally associated with the island, tourism and agriculture, have experienced long-term decline. Overall, employment has been static for some years, although recent job losses in the financial services sector and, latterly, the public sector may be reflected in the statistics for 2003-04. Although no employment data are available for St Helier, it is clear that the town plays a pre-eminent role in the island economy. In particular:  it is the home of the financial services cluster, and almost all the principal firms operate from town centre locations  the town centre is the principal point of entry for visitors to the island and a key asset for the tourism industry, with attractive shopping and an improving leisure and recreation offer.

above: Maritime Museum

below: King Street

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The St Helier Property Market

This market review considers the following property sectors in St Helier:  residential  office  retail Residential St Helier’s residential market is based upon an unusual household structure. Of 35,562 households in Jersey, only 51% are owneroccupied. In St Helier, the figure falls to 34% owner-occupied. Two thirds of homes in St Helier are private or social rented stock, tied housing or lodgings. A substantial itinerant working population and residency restrictions lead to high levels of renting. The Jersey Island Plan sets out estimates of residential demand for the period 2002-2006. These suggest a requirement of 3,180 homes for the qualified sector and 1,610 for the unqualified sector. The Plan assumes that the latter can be accommodated through various market adjustments and sets out to provide for 90% of the qualified requirement (2,860 units). Allocated sites7 might deliver 1,990 units, leaving a shortfall of 870 units to be accommodated in eleven new sites. Meeting this housing requirement will mean moving from an historic (1987-99) development rate of 353 units per annum to a new rate of 572 per annum, a substantial rise of 62%. An historic shortage of housing supply combined with high average incomes has resulted in high house prices. The Jersey Island Plan estimates that 74% of households will require an “affordable” home rather than being able to pay full market value. New flatted developments8 within the town are selling at £2,750 - £3,750 per sq m, equivalent to major UK centres such as Manchester or Edinburgh. Dedicated parking incurs an additional cost to the purchaser. High purchase prices are driven in part by the investment opportunity to rent quality apartments to itinerant (and residentially unqualified) professionals. Such prices suggest that flatted development will continue to out-price commercial development for prime gap sites in St Helier for the foreseeable future. One source of new and windfall residential development is the traditional hotels sector. Due to declining visitor numbers, the number of hotel beds fell by 7,500 (27%) between 1980 and 19999. A further 1,600 beds were lost during 2000 and nine St Helier hotels announced closures during 2001. 14 |

The largest new residential location is St Helier Waterfront10. Four housing areas – Harbour, Marine Village, Seafront and Esplanade – will provide a total of 700 units, mainly for locally qualified residents but also for first-time buyers and for rent. The first phase comprises the £30 million development of 153 first-time buyer and rental flats at Albert Pier/ Victoria Place. New waterfront residential development

ST HELIER URBAN CHARACTER APPRAISAL

Offices The Jersey Island Plan notes demand for larger, modern and more flexible offices in St Helier, particularly from financial services companies. There is also demand from smaller companies in the secondary office market. The rate of office development 1987-99 was 5,600 sq m. per annum and the new Plan assumes a similar rate. On this basis, planning permissions and offices under construction provide for a ten-year supply of new premises.

financial services centres such as Bristol and Edinburgh. In the major financial centre of London, office rents have actually fallen. New office developments

Since 1987, around half of office development in St Helier has taken place inside the ring road but outside of the area zoned for office development. Coincidentally, UK planning legislation permitting Class 4 office development out of town also emerged in 1987, since when there has been substantial demand from office-based companies for off-centre locations. The new Plan allows for some new office development outwith the town centre, specifically at Waterfront north and other identified sites. Occupational analysis11 suggests that perhaps 40% of Jersey’s employment is in office-based sectors. It is possible from this to estimate12 that the island’s total office stock may be around 300,000 sq m. For comparison, local agents suggest that the island’s office stock may be around 370,000 sq m. The large majority of this space is in St Helier, making the town’s office sector comparable in size to large UK towns. Demand for office accommodation in St Helier is reportedly around 10,000 sq m per annum13. The typical new building is around 2,000 – 4,000 sq m, so in a typical year 2-3 new-build transactions plus some second hand activity would be expected. Recent market activity has been limited. In 2002 HSBC took a pre-let of the 5,000 sq m Century Buildings to consolidate its operations14. In 2001, Close Properties took offices at 55 Esplanade at £280 per sq m. Earlier deals on the Esplanade include number 45 (to KPMG) and 47 (to OBD) in 1998 at rentals of £260 per sq m. More recently, new office buildings at Casa Melita (3,000 sq m) and Charter Place (3,300 sq m) have struggled to find occupiers. In total around 20,000 sq m. of office accommodation was on the market in St Helier in late 2003. This is a significant supply in historic terms, but still represents a vacancy rate of only around 7%, which, if the sector were at the bottom of a trough, would not be regarded as a structural problem for the local market. Rental values for prime, new-build offices in St Helier have been static since 2001 at around £270-280 per sq m. Both the rental levels and the lack of growth are comparable with UK regional OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

Retail The Island Plan promotes St Helier town centre as Jersey’s principal retail location and as a suitable location for evening economy activities. There is a substantial stock of retail premises and national multiple retailers along King Street. Unlike many UK centres, St Helier retains traditional department stores and a diverse and attractive mix of local retailers and specialist outlets (particularly jewellers and some cafes) within the core town centre. In contrast to the office sector, retail property values in St Helier have continued to rise. This reflects trends in the UK as consumer expenditure has grown steadily in recent years. Clinton Card’s letting on King Street in 2002 set a new record rental of £145 per sq ft for a Zone A location15 16. Rent reviews for Woolworth and JD Sports also settled at around £140 per sq ft.

4 The Policy Agenda Strategic Aims The Strategic Aims Report presented to the States of Jersey by the Policy and Resources Committee in December 2003 includes the Strategic Aim to create a strong and competitive economy. The report notes the specialised nature of the Jersey economy, and the key messages include the following:  action and investment are required to grow and develop the financial services industry “in the face of severe international competition”  agriculture and tourism “play…a large part in preserving the island’s heritage and character”; there needs to be “a coherent tourism strategy”, while agriculture must respond to global competition  the island must broaden and deepen its economic base, and

Vacancies in prime retail locations were effectively zero in 2003, and the most recent units to become available were taken by Mango and Crabtree & Evelyn. Three vacant shop units along King Street are all reportedly under offer to retailers. According to local agents, the historic requirement for retailers to have local origins or partners may be subject to a more liberal interpretation, leading to greater demand for units from new market entrants. Although development potential within the core town centre is extremely limited, St Helier’s commercial sector has extended considerably with the development of the new waterfront leisure complex providing cinema, food & drink and heath & fitness outlets. Proposals for the intervening island site would add further evening activity in the form of 22,600 sq m of bars and restaurants. The commercial prospects for such proposals are clearly dependent upon the continuing strength of the consumer economy (based substantially upon financial services) and a healthy tourism sector.

 success will depend on achieving “world-class business conditions, a strong international reputation, excellent local and international communications and reliable transport links”. Four key measures are proposed:  economic growth with sustainable inflation  a skilled and qualified workforce  enterprise, innovation and diversity, especially in high valueadded sectors  an open economy that encourages competition and minimises the costs of doing business A number of indicators of success are listed, of which a number are of particular relevance to this study:  growth in the financial services sector  an increase in visitor numbers and expenditure  introduction of new industries Imagine Jersey The Imagine Jersey process generated four illustrative scenarios for the island. Consultations have confirmed the perceived risks of decline in the financial services sector, and a consensus has emerged in favour of creating the conditions for future growth based primarily on Scenario 3 (Controlled Growth), but incorporating some aspects of Scenario 4 (Fast Growth):

16 |

ST HELIER URBAN CHARACTER APPRAISAL

 controlled growth assumes “a promotional and welcoming stance towards economic growth”, but continuing controls on immigration; it would involve a greater emphasis on urban living to relieve pressure on rural landscapes and biodiversity  fast growth would require the removal of immigration controls, resulting in rapid population growth; a new urban lifestyle could attract new types of people, especially the young. Both these scenarios are predicated on achieving continued growth in the financial services. The scenarios identify key conditions for growth, including:  recognition of the need for change in traditional industries (Controlled Growth)  attraction of at least one new industry to the island (Controlled Growth)  major infrastructure investment to support new population/ businesses (Fast Growth).

sectors, including emerging new industries  enabling the development and expansion of existing businesses  protecting and enhancing the centre of St Helier as the focus of commercial, retail and evening activities The Plan rehearses spatial options for the location of development. It confirms St Helier’s role as the island’s major business and service centre, while recognising that the town cannot accommodate all development needs. In St Helier, development will be achieved within the built-up area, and by extension of the built-up area. The strategy for St Helier (and other settlements) is based on the protection and enhancement of the built environment so that it becomes a desirable place in which to live, work and play. This will be achieved by:

Jersey Island Plan The Island Plan sets out a vision of Jersey as a distinctive place where everyone is able to enjoy a high quality of life in a way that respects the environment and culture of the Island and keeps it special for future generations. The Plan cites the States’ general economic objectives, which can be summarised as follows:

      

regeneration and enhancement of the built environment re-use of land and buildings in the built-up area promotion of high quality buildings and public domain celebration of built, cultural and archaeological heritage sustainable design, construction and energy use protection of local character and distinctiveness reducing traffic impacts

 encouraging balanced and diversified economic development  encouraging a level of business activity that will secure a high standard of living  achieving business activity of a type and scale that enhances the natural and built environment Specific objectives relate to financial services, tourism, agriculture/ fisheries, and manufacturing/services. Themes relevant to this study include:  resources for the strengthening and diversification of financial services  improving tourist accommodation and services  promoting the island’s environment, heritage, arts and festivals  limiting commercial development on greenfield sites The Island Plan includes an economic and community strategy. Relevant elements of this strategy include:  meeting the future requirements of the office and industrial

The Island Plan acknowledges that office developments will continue to focus on St Helier, as there is little provision elsewhere in Jersey. The Plan aims to contain office development within a defined town centre area, and to stop the spread into residential quarters. In addition, office development may be permitted as part of a mix of uses in the Waterfront and three other action areas. The Plan describes St Helier’s historic core, where the most important civic, religious, retail and commercial buildings are concentrated. This is the “gem” of St Helier, but the activities of people living and working in the area have an impact on the built fabric: Balancing the need to accommodate change with the need to conserve and enhance the inherent quality of the town’s fabric is an important challenge…the new Island Plan shifts the emphasis from the replacement of historic buildings in the town centre to their retention and re-use. OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

By contrast with the conservation imperatives of the historic core, the Waterfront Development Area will be the focus for “the most significant urban expansion in present day St Helier and during the life of the new Island Plan”: Ultimately the area will comprise a mix of residential, commercial, civic and leisure buildings and public amenity spaces. Tourism Strategy A Tourism Strategy for Jersey (2000) states that: The future of tourism in Jersey lies in adding value – adding value for the visitor and adding value to Jersey. We have to build on Jersey’s special strengths and character, address its weaknesses and work within the economic and environmental constraints of living on a small island. The strategy highlights the continuing importance of tourism for the Jersey economy, despite a marked decline in visits and (especially) bednights in the 1990s. It emphasises the importance of a flourishing industry as a counterweight to the dominant position of the financial services industry. It quotes market research that visitors and non-visitors had a positive image of Jersey, which was seen as “an upmarket destination”, but that the island was also perceived to be “geared more to the needs of the older visitor, safe and perhaps a bit dull or old fashioned”. However, while the quality of coast and countryside is good, the urban environment is in need of improvement. In particular: St Helier, which should be a vibrant centre of activity and a magnet for visitors, compares poorly with St Peter Port, Guernsey and historic waterfront towns elsewhere. It is dominated by traffic. Fort Regent is badly in need of refurbishment and the area around the harbour, which should be a focus for visitors, also needs attention. From a long list of strategic priorities, five are of particular relevance to the present study:  improving the look and feel of St Helier and other key settlements  making more of food and shopping  promoting sports, arts and events led tourism  identifying development opportunities and broadening the accommodation base  developing the business and conference market. 18 |

The strategy is critical of the St Helier offer. St Helier is a gateway to the island, many visitors stay in the town and almost all will visit at some time during the stay. It has a key role to play, especially outside the peak holiday season, but while much of St Helier is “pleasant…parts of the town are weak and compare unfavourably with similar waterfront towns…which have become major visitor destinations in their own right”. Conclusion This has been a brief review of some – but by no means all – relevant aspects of the policy agenda. The review has highlighted a number of recurring themes which need to be addressed by the present study, including:  recognition of the dominant role of the financial services sector - despite some concerns about over-dependency and competitive threats, there is a general recognition that the sector is vital to the continuing prosperity of the island, and that it needs to be able to develop, innovate and evolve  the continuing decline of the island’s tourism industry, and a perception that it has failed to respond to the needs of a changing market, has serious implications – not least the knock-on effects on retail, restaurants and associated industries  there is a continuing search for a new industry to contribute to wealth creation, but the policy process has failed to identify credible candidates; it is more likely that future growth will be driven by innovation and diversification in existing industries  Jersey is a small, crowded island and there is real concern about its ability to achieve continued growth without compromising its distinctive attributes and quality of life; one of the implications of this policy tension is a new emphasis on urban living in St Helier itself A number of policy strands converge on St Helier, which is lagging behind coastal towns and failing to contribute to the island’s strategic aims. The town:  will continue to be the island’s only significant office centre, but changes will be needed to stop the drift of office space into the suburbs; this will mean accommodating modern space in the historic core and in key designated locations such as the waterfront  needs to upgrade its urban infrastructure, including provision of the planned transport interchange, modern conference facilities and business hotels

ST HELIER URBAN CHARACTER APPRAISAL

 must develop a more attractive and competitive urban lifestyle, reflected in, for example: improved housing choice; a more sophisticated food, drink and shopping offer; street life and events; and a richer cultural programme  must give priority to re-connecting with the waterfront through the regeneration of the Weighbridge, Island site and the Waterfront Development Area 5 St Helier: competitive place? St Helier is the administrative capital of Jersey, and the island’s only significant urban settlement. A combination of Jersey’s singular housing regulations and the historic parish boundaries means that, in all probability, the employed population of St Helier exceeds the resident population: this is a unique situation for a town of this size.

St Helier is distinctive in a number of other ways. The inherent conditions of island life means that St Helier captures domestic retail and entertainment spend with negligible leakage; when an annual inflow of almost 1 million visitors is added to the equation, it is easy to explain the exceptional range and quality of consumer services in the town relative to its modest size. In market terms, this means that St Helier has many of the characteristics of large towns/ small cities in the UK, and office rentals are on a par with the major regional centres. These unique conditions are confirmed by St Helier’s role as the seat of island government and administration, its entrepot function for the Channel Islands and its role as a centre for culture, sport and learning. Taken together, these factors help to explain why – despite a number of shortcomings – St Helier has the urban presence, vitality and choice of a much larger city.

St Helier: west end from Fort Regent

OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

Major Challenges

Financial Services

However, the consensus of opinion among policy makers and our consultees is that St Helier is a disappointing and under-performing place which has failed to keep up with the changing expectations of residents, visitors and business. We think this assessment is too harsh in some respects – some significant improvements have been achieved in recent years - but we agree that the town still faces major challenges if it is to realise its undoubted potential.

St Helier has coped generally successfully with the rapid expansion of the financial service industries in the past 25-30 years. During that period, the larger banks and building societies have migrated from the traditional business district in the heart of the town, consolidating their requirements in new buildings, often on the town centre fringes.

We have identified four key challenges, broadly reflecting the policy agenda outlined in the previous section:  creating the conditions for continuing growth in the financial services sector  maximising the quality and appeal of the visitor experience  encouraging and enabling the development of an authentic urban lifestyle  transforming the waterfront into a vibrant and diverse urban quarter These are not stand-alone issues. The four challenges are intimately connected and require coherent, joined-up solutions. St Helier north west panorama from Fort Regent

Jersey has an authentic financial services cluster and – in many cases – smaller units vacated by the banks have been occupied by investment trusts, fund managers, legal firms and accountants. A hierarchy of office accommodation has emerged and while this process has tended to push out the boundaries of St Helier’s central business district, development has been contained within a relatively small core area. However, events in the past 1-2 years have resulted in some closures and downsizing and there is a sense that, at least for the time being, employment in the sector has reached a high water mark. The challenge for policy makers is to help the industry to move through this transitional phase and into a new period of diversification and growth. That task is beyond the scope and competence of this report, other than to reflect the industry’s perception that routine, back office functions will be replaced by higher-order, specialised functions. Against that background there is some concern that, while St Helier has been able to accommodate the growing and changing space requirements of the sector, it has been less successful in developing some of the business infrastructure likely to be required for the next phase of development. In particular:  St Helier does not have any modern business hotels  there is no dedicated conference facility  there is no dedicated business school

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ST HELIER URBAN CHARACTER APPRAISAL

Visitor Experience We share the general perception that St Helier provides a mixed experience for visitors. The best of St Helier includes:  a compact, walkable central area  attractive pedestrianised streets  distinctive, high quality department stores and an extensive range of high street multiple stores  the Victorian markets  some attractive public spaces, including Royal Square  a wide range of restaurants  Jersey Museum However, the town also has a number of disappointing features:  the quality and walkability of the town centre diminishes beyond the retail core  traffic dominated environment, especially on the southern fringe  lack of street life and vitality out of hours  lack of distinctive speciality shopping  lack of high quality restaurants  dull and limited cultural offer  disappointing and dated range of hotels  evening drinking culture

above: St Helier north east from Fort Regent below: Ariadne - the Steam Clock

St Helier needs to move on. Despite some improvements it compares poorly with other accessible short-break destinations, and confirms the impression (in the Tourism Strategy) of a “dull and old-fashioned” urban experience.

Urban Lifestyles Despite the concentration of employment in the capital, St Helier has failed to attract a corresponding share of the resident population. The town has a large population of itinerant workers, and about two-thirds of the housing stock is rented. Historically, there has been little evidence of an appetite for urban living, but there is little doubt that the growth of the owneroccupied sector would be beneficial at a number of levels. It would help to relieve development pressure on the island, create a better-balanced and more sustainable community, strengthen the retail and personal services sector and promote a more active and stimulating cultural scene. OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

There are important demographic factors to take into account here:  the fact that half the island’s 18 year olds leave Jersey each year for higher education in the UK means that St Helier has no real student life, and there is a “missing generation” of the best and brightest young people  young residents are replaced in part by non-resident workers in key industries such as finance and tourism; this helps to create a party/ drinking culture which is a source of some concern  tight immigration control, largely through the housing system, means that Jersey is not an open society; there is a lack of diversity and new enterprises face significant restrictions These observations are not criticisms. These factors reflect the special conditions and circumstances of the island, and they are not within the scope of this study. However, they need to be taken into account when future strategies for St Helier are being framed because, for example, they militate against bohemian lifestyle or the development of the creative industries both of which thrive on diversity, mobility and a large student population.

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St Helier at night above: west end restaurant below: Weighbridge area

ST HELIER URBAN CHARACTER APPRAISAL

The Waterfront The complete disconnect between the town centre and the sea is one of the most dispiriting aspects of the St Helier experience. The incremental reclamation of the foreshore, over at least 200 years, to create a modern port and (latterly) other development sites has diminished any sense of the townâ&#x20AC;&#x2122;s maritime history and function. Much of this process has been essential and it is, any event, irreversible. However, the problems it has caused have been compounded by the severance caused by major roads, and inappropriate and (for the most part) inept and low quality development. The harbour, the marinas and the Jardin de la Mer should be focal points for residents and visitors alike, but they are stranded on the wrong side of a busy road and a hostile pedestrian environment. The leisure complex is a classic out-of-town, car-orientated development that contributes little to the vitality of the urban area. With the exception of the new apartments at Albert Pier â&#x20AC;&#x201C; which add some much-needed life and activity - the first phase of waterfront development has been a sad disappointment. Above all, it looks desperately dated and there is no sense that St Helier has learned the lessons from best practice waterfront developments in the UK and the rest of Europe.

St Helier waterfront: disconnection issues

OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

Conclusion St Helier has some valuable qualities and attributes, but our analysis confirms the broad thrust of the consultations and the policy review. St Helier has a dynamic and competitive economy, but the urban experience does not reflect the energy and skills of the financial services cluster. As a number of people have suggested to us, the condition of St Helier seems to reflect a lack of confidence and direction. We encountered a lot of anecdotal evidence of frustrations about, for example, parking, vehicle access, street cafes and events, which are typical of what happens when there is a breakdown of trust and confidence among politicians, officials, businesses and citizens. There is, however, no reason for pessimism. St Helier needs to do better, but it has a lot going for it including a dynamic, wealthcreating industry, an attractive urban core, an excellent shopping offer and an outstanding (though sadly wasted) waterfront location. In some ways, St Helier appears to be lagging behind the best of modern Jersey. The overarching challenge is to realise the potential of the town to become a driving force for change, and to provide solutions for the perceived tensions between economic growth and quality of life. In tackling these challenges, two key principles should be paramount: â&#x20AC;˘

first, St Helier needs to learn lessons from other, comparable places; one of the most depressing features of the (so far) botched development of the waterfront is that it is a throwback to models that have long since been discredited and superseded by new approaches to place-making

â&#x20AC;˘

second, the future development and regeneration of St Helier must be driven by an effective partnership between the States, the parish, businesses, investors, property-owners and the community; unless this is achieved, the sub-optimal fixes and compromises that so many complain of are destined to be repeated.

Havre-des-Pas from Fort Regent 24 |

ST HELIER URBAN CHARACTER APPRAISAL

6 Implications for the Development of St Helier Based on this analysis of the driving forces shaping the Jersey economy and society, we have provisionally identified four key goals for the future development of St Helier: 1.

to establish St Helier as an internationally competitive location for offshore financial services

2. to establish St Helier as a popular and attractive short-break destination for discerning visitors, and as a positive feature of the island product 3.

to increase the proportion of the island’s permanent residents living in St Helier, and

4. to make the waterfront a vibrant and attractive urban quarter, fully integrated into the life of the community and the visitor experience.

Footnotes 1 Based on Background Statistics for the Debate on Population Policy, States of Jersey, Policy and Resources Department 2 Based on Background Statistics for the Debate on Population Policy, States of Jersey Policy & Resources Committee and http://www.statistics.gov.uk/census2001/profiles/uk.asp 3 Based on 2001 Census Bulletin 5: Educational and Professional Qualifications and Economic Activity, States of Jersey Policy & Resources Committee, and www.nomisweb.co.uk/ labour force survey 2002. 4 Derived from Report on the June 2002 Manpower Survey & Report on the June Manpower Survey Report 2003 5 Data supplied by States of Jersey Statistical Department. 6 Based on data in States of Jersey Policy and Resources Department, Census Bulletin 6: Employment by Occupation and Industry and (for GB) the Labour Force Survey. 7 First time buyer sites, gap sites in St Helier and at St Helier Waterfront, and windfall sites 8 For example Dandara’s new-build Spectrum and West Park schemes. 9 Sarre & Co. 10 www.jerseywaterfront.je 11 Table 6.6 of the 2001 Census – corporate managers, business & public service, administrative, secretarial and related occupations total around 18,000 jobs. See also Section 2 12 A typical UK average figure would be 1 employee per 16 sq m. 13 CWHB 14 Estates Gazette Interactive Research Centre 15 30ft. Zone A, comparable to Scotland but not England. This rental level is above Guernsey and Scottish centres such as Inverness, Dundee and Stirling, but below Glasgow, Edinburgh and Aberdeen. 16

For each of these goals we have framed a series of specific objectives. We revisit these goals and objectives in the Strategic Directions and Recommendations chapters to see how they might fit with other emerging policy and proposal strands for St Helier. Ref 1 1.1 1.2 1.3 1.4 2 2.1 2.2 2.3 2.4 3 3.1 3.2 3.3 3.4 4 4.1 4.1 4.3 4.4

Estates Gazette Interactive Research Centre

Goal/objective Financial service sector Maintaining pipeline of supply for an changing industry Delivering 1-2 quality business hotels Developing a world-class conference centre Testing the market opportunity for an international business school Visitor destination Raising the quality and choice of accommodation in the town centre Developing a year-round programme of events and festivals Making the entire town centre a pedestrian-friendly environment Creating a more cosmopolitan urban experience Urban living Facilitating an increase in owner-occupied flats/houses in the town centre Improving community, cultural and leisure facilities in the town centre Promoting and celebrating the diversity of the community Improving the quality of streets and public spaces St Helier Waterfront Regeneration of St Helier/English Harbour as a town centre extension Redevelopment of the island site as an urban quarter, combining office, housing and transport infrastructure Overcoming severance caused by La Route de la Liberation Improving the experience of arrival for ferry passengers. OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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ST HELIER URBAN CHARACTER APPRAISAL

evolution of character 1 Early Development of St Helier 1.1 Topography and Geology The site now occupied by the town of St Helier was originally a lowlying basin, consisting mostly of marshy land, but also sand dunes in the southwest, surrounded by the shallow St Aubin’s Bay on the south, and a series of low hills on the other three sides. This ring of steep-sided hills to the west, north and east was pierced in the southeast by a gap between Mont Millais and Mont de la Ville (the Town Hill) which would eventually provide access to the seaside suburb of Havre-des-Pas.

St Helier basin in ancient times

Geologically, the hills to the west, north and east of the town are a combination of mudstone, siltstone and sandstone. The bedrock beneath The Parade area is of a similar constitution, whereas the rest of the basin upon which St Helier was built is laden with alluvial deposits. Mont de la Ville and the gentle slope between King Street and the harbour are both made of granophyre, an igneous rock similar (though finer grained) to granite. South Hill and La Collette, on the other hand, consist of gabbro and diorite, also igneous rocks. The rocky outcrops near the shoreline, including the sites of Elizabeth Castle and the Hermitage, are a mixture of granophyre, gabbro and diorite. Valleys (Les Vaux) between the northern hills produced several streams, or brooks, which traversed the marshy basin on their way to St Aubin’s Bay. These streams often intersected and fed into each other. The major stream, only finally culverted in the 19th century, was called Le Grand Douet. Also prominent on early maps was La Faux Bié which ran parallel to Le Grand Douet along its lower reaches through the old town. These streams would not only provide power for the Town Mills near Mont-au-Prêtre, but also the Moulin à Foulon near the Town Church. Beyond the shoreline lay a shallow and rocky tidal foreshore in the lee of the Mont de la Ville. Peat beds and ancient tree trunks have been found in St Aubin’s Bay, indicating that the shoreline extended well beyond that known in modern times. The original town never possessed a natural harbour, unlike St Aubin across the bay. The only natural features to attract early settlers to this part of Jersey were the isolated eminence of Mont de la Ville and the nearby rocky islets in the bay which could be reached at low tide. 1.2 Earliest Settlements Very little evidence of prehistorical settlements has been found in the marshy basin which became St Helier. The primary archaeological site in the area was the Iron Age dolmen excavated - and, strangely, exported to Governor Conway’s house in Henleyon-Thames - in the 1780s. It was one of fifty dolmens once known to exist on Jersey. Helerius The early history of this part of Jersey centres on the many legends surrounding the Belgian monk Helerius, or St Helier, who was meant to have settled on the rocky islet in the bay by 540 AD. From the Hermitage, as this site is known, the ascetic Helerius contributed to the Christian conversion of Jersey’s small population (a mere thirty, according to legend). After Helerius was killed in c.555 AD by seagoing raiders in the defence of the island, the Hermitage took on great spiritual significance. Eventually, a chapel OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

and oratory was founded on the site of Heleriusâ&#x20AC;&#x2122; cave, and a monastery was later established on the islet where Elizabeth Castle now stands. The abbey of St Helier is believed to have been the earliest buildings of any substance on Jersey.

above: Dolmen on Mont de la Ville, relocated to England c.1788 below: The Hermitage and the Oratory, c.1789

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At this time, Jersey was inhabited by Bretons, though its position in the Channel no doubt led to visits by seafarers from across northern Europe. Many legends tell of encounters with Saxons, Vikings and even raiders from Orkney. Through the establishment of the Christian Church on Jersey, governmental structures were established by the end of the 10th century when it is believed that the islandâ&#x20AC;&#x2122;s parochial boundaries were first determined. Norman invasions, however, disrupted this civic progress - even the ancient Monastery of St Helier was destroyed, not to be rebuilt until the 12th century.

ST HELIER URBAN CHARACTER APPRAISAL

1.3

Establishment of the Medieval Town

The Town Church Although there is no documentation for a formal mainland settlement of St Helier prior to the town’s appearance in the Assize Roll of 1229, the Town Church (formally known as the Parish Church of St Helier) is known to contain elements of an 11th-century structure. No other surviving buildings in the town can be dated to the medieval period, but the development of the Town Church over the subsequent centuries, especially between 1425 and 1450 when the structure doubled in size and had its crossing tower added. Throughout the medieval period, the Town Church stood virtually on the shore of St Aubin’s Bay.

Madeleine which stood northwest of the site of Town Church, near today’s Bond Street. Settlements Interestingly, there has been some archaeological evidence of 12thcentury habitation not in Hill Street but around Old Street, outwith the confines of the established medieval town. Another significant development of a settlement around St Helier is the establishment of the Town Mills at the base of Mont Nerou, to the north of the marshy plain, for the use of the Abbot of the Monastery of St Helier. During the course of the 14th, 15th and 16th centuries, the town of St Helier began to take shape. Due to the lack of a proper harbour, trade with foreign lands was limited, though Jerseymen themselves seemed to have sustained the growing population through fishing. Even without direct access to the sea, the presence of the abbey and the Town Church led to the hamlet of St Helier becoming the dominant centre in Jersey. Regular markets were held in the town from at least the 15th century, and the Royal Court sat in St Helier from the earliest times. By the mid-16th century, St Helier was formally recognised as a town by the Privy Council in England.

The Town Church c.1860s

Despite the exposure to the tides of the bay, the Town Church stood sheltered from the east winds by the mass of Mont de la Ville. Not surprisingly, it is believed that the earliest residences in early medieval St Helier also stood in the shadow of the Town Hill, probably along the line of today’s Hill Street opposite the church. These buildings would have been simple fishermen’s huts, no doubt constructed of local granite from the adjacent hill and covered in thatch. One ancient structure which survived long enough to be recorded in a sketch dated 1776 was La Chapelle des Pas on the eastern slope of the Mont De la Ville, near the southern end of today’s Green Street. The chapel was apparently of Norman construction (c. 10th century), with round-arched window openings, and was one of two small buildings which predated the construction of the Town Church. The other was La Chapelle de la

Sea Wall St Helier also witnessed important physical changes during the later medieval period. The earliest improvements to the waterfront took shape in the late 15th century, when a sea wall (usually referred to as the “Town Wall”) was constructed some sixteen feet south of the Town Church’s perimeter wall, extending approximately from Charing Cross in the west to near what is now Ordnance Yard in the east. This wall provided only limited protection, for during high spring tides waves would ride over the structure and reach the churchyard walls. At the east end of the seawall stood a mill, powered by a branch of La Grand Douet, known as Moulon à Foulon. Streets The detailed layout of the late medieval town is not recorded in any known contemporary maps of St Helier itself, though a 1563 map of Jersey includes a bird’s-eye view of the town showing parallel groups of buildings huddled behind the Town Church. It is difficult to judge whether these sets of buildings face each other across the market square (now Royal Square), or the King Street axis. It is known that markets were held near the church for many centuries, though the chronology of development around the market square is obscure. It is believed that the square was encircled by buildings by 1550. Also by this time it is thought that the line of King Street/ Queen Street was established, extending roughly east-west from OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

confluence of La Grand Douet and the bay (Charing Cross) to Snow Hill. This long spine of a street was then known as La Rue de Derrière. Still, much of the land south of Broad Street (which was only built up on its north side at this time) was half marsh and half sand dunes. Reformation The second half of the 16th century saw great changes that would permanently affect the island. Protestantism was established in Jersey in 1547 (though major new churches would not be constructed in St Helier till the 19th century), initiating a further break from native Norman-French culture. More important, perhaps, was the “large influx” of French Huguenot refugees in the 1580s. This initial large wave of immigration would set the pattern for St Helier’s subsequent boom periods of the late 18th and mid-19th centuries. So great was the impact of the Huguenots that the Royal Court was compelled to act to regulate the rental of houses and the price of food. By 1603, the town’s newly enlarged population even required an extra market day.

St Helier c.1563

Elizabeth Castle By the last decade of the 16th century, work would begin on the second most important structure in the area - Elizabeth Castle. Not until the mid-18th century, however, would the complex be complete. One of the structures from the first phase of construction was Governor’s House, first occupied by Sir Walter Raleigh in the early 17th century. Later in the century it housed King Charles II, both when he was Prince of Wales and most notably for six months during the Civil War. Elizabeth Castle and the Abbey Church of St Helier viewed from the Hermitage c 1650

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ST HELIER URBAN CHARACTER APPRAISAL

1.4

Consolidation of the Old Town (17th c.)

Streets According to one historian, at the start of the 17th century St Helier “consisted of what we term the Royal Square, Hill-street, Regentroad, Church-street, King-street, and Queen-street, and practically little else. The road leading to the eastern parishes entered the town at what we now term Snow Hill, while that giving access to those on the west across sandy plains entered at the lower end of the town at what we now know as Charing Cross. ... The town was absolutely unpaved, while but few of the houses were supplied with wells, the inhabitants having to draw water from one or two of the public wells which existed.” The core of the town extended from Charing Cross at the west, along the King/Queen Street axis, to Snow Hill in the east. La Grand Rue, or Broad Street, led into the market square via Library Place (parallel to which was Vine Street). Hill/Mulcaster Street led from Snow Hill down alongside the Town Church to the shoreline beneath Mont de la Ville. There were limited approaches into the town from the parishes. From Snow Hill, Colomberie led to the eastern parishes of Grouville

et al whilst La Motte Street continued on as the road to St Saviour’s parish. The old country road to the Town Mills and the northern parishes entered the town along the line of today’s Val Plaisant, Devonshire Place and Old Street, while the line of today’s Parade Place headed westward out of the town across the sand dunes called Les Mielles to become St John’s Road. This sandy area, now the area south and west of The Parade (Sand Street, Gloucester Street, Kensington Place, Patriotic Place etc), was deemed relatively worthless to the population of 17th century St Helier, often changing hands “for a consideration of a few pence.” The lands to the north and southeast of the old town, on the other hand, were more valued, either being cultivated as market gardens or planted up as orchards. Market Square The central focus of the town in the 17th century was the market square, or Marché, northeast of the Town Church. A market cross stood at the upper end of the square (supposedly on the site of the statue of King George II), around which vegetables and fish were sold. Butchers had their stalls (les Halles) at the lower end of the square, below the entrance to Rue de Vignes (so called because its sunny orientation allowed residents to train vines to cover their houses). The corn market was held under the granite arches of

The Market Square in the 18th century

OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

a substantial building erected in 1668 at the bottom end of the square, now encased within the United Club. It is not known exactly when a court house first stood in the market square, but an existing building was deemed decrepit by 1647 and torn down. A call went out to local inhabitants to “gratuitously bring up all the necessary building materials” which included granite from the Town Hill and Mont Mado on the north side of the island. From further afield came other materials, namely timber from Normandy and paving stones from Swanage. This new Court House, or Cohue, stood on the south side of the square until 1760 (the latter being replaced again by the current building in the 1860s). Even by the early 17th century, it was apparent that the market square was a place of great civic importance. Prior to this time, it was still used as a common thoroughfare: “Horses and carts traversed it in order to reach the southern part of the town part of the town or to gain access to the beach and the Cattle Market [held in Broad Street]. This was found to be very inconvenient and to be prejudicial to the merchants and the public generally, who flocked there on Market days. By an Act of the Cour de Catel dated 12 October 1615 it was ordered that in the future horses and carts should not cross the Market Place but make use of the road in the rear of the Court House [Hill Street] to obtain access to the roads leading to the North and South of the Town.”

St Helier 1691

Public Realm Other improvements to the town in the 17th century included the walling in the Town Church cemetery, the erection of a prison across the western entrance of the town at Charing Cross, and the paving of many important streets. It was an order of the Royal Court in 1610 that first led to improvement of the poor state of the streets. Proprietors were compelled “to pave the space before his house to a width of 12 feet. This led to the thoroughfares being paved, but this was done without any idea of uniformity, and the streets soon presented a most conglomerate appearance, and in many instances beach pebbles were used. As a matter of fact, the first paving of the Market Place was with these rough pebbles.” New Buildings The construction of buildings in the town at this time was equally haphazard. It is claimed that in the 17th century, for example, King Street “was very irregularly built. Those who owned land abutting on to this thoroughfare erected a house with - to themselves - the most convenient aspect, without any idea of symmetry or order, with the result that the street was absolutely without any alignment.” This lack of a consistent building line on the north side of King Street shows up in maps well into the next century, as does a series of new buildings being erected inside and outside out of the town. In Old Street, for example, west of the new prison at Charing Cross, there are parallel rows of houses, and at the other end of town, a lane running north off Queen Street (later to be known at Hilgrove Street) began to be built upon at this time. This lane was connected to Queen Street by a series of narrow passages, one of which seems to have evolved into Halkett Street. These passages appear on town maps well into the 19th century, but most were lost during later Victorian times when most buildings in the area were being reconstructed. One passageway apparently survived at least into the 1920s. Streams Another feature of life in St Helier in the 17th century was the presence of the streams and brooks running around and through the town. According to early maps, branches of both La Grand Douet and La Faux Bié intersected streets such as Charing Cross, King and Broad Streets on their way to the sea, requiring pedestrians to use occasional stone foot bridges. Flooding of these streams was a regular problem in St Helier well into the 19th century, when development of the area led to the culverting of the waterways. Export Trade Development within the confines of the old town increased in pace at the end of the 17th century. New buildings were constructed on

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ST HELIER URBAN CHARACTER APPRAISAL

the south side of Broad Street, some of which extended southward toward the town’s dilapidated sea wall. These new commercial premises were indicative of a desire of the town’s merchants to make better use of the waterfront. During the 17th century, Jersey’s fishermen expanded their operations to establish profitable takings from Newfoundland’s cod fisheries, and Jersey’s knitting, particularly stockings and shirts, emerged as the island’s primary export product. At one point, it was recorded that over 6,00 pairs of stockings were produced for export per week. In order to advance Jersey’s overseas trade, for much of the 17th century there was talk of building a proper harbour for St Helier. In 1678, for example, there was a proposal to sell the Mont de la Ville in order to raise funds for a new harbour, with Havre-des-Pas being earmarked as the most appropriate site. Like so many St Helier harbour schemes, nothing was to come of this particular plan. 1.5

Emergence of the Modern Town (18th c.)

Harbour After a century of debate, in 1700 the first moves were finally made to create a safe harbour for St Helier’s merchant ships and fishing boats (not to mention the privateers and smugglers for which the island was also renowned). A new pier had just been completed at St Aubin, and the merchants of St Helier acted swiftly to compete with this facility across the bay. Money was raised but work on the site below South Hill was painfully slow. By 1725, it was decided

to extend the as yet unfinished pier, but within three years work ceased due a lack of funds. The new facility was more of a curving jetty than a properly enclosed harbour, and although it was still incomplete by mid-century, it had already been in use for many years. In fact, in 1751 George II contributed the sum of £300 to subsidise the completion of the harbour, and St Helier marked his generosity with the installation of a statue of the king in the market square. In order to access the harbour, a new road had to be cut into the side of Mont de la Ville. Leaving the town near the Town Church, the new “pier road” ran parallel to the hill, “rising a goodly height, and then, at a distance of a quarter of a mile, again descending to the quay.” It was hardly the most convenient situation for accessing ships in the harbour, but the alternative was to take carts across the beach at low tide to unload or deliver goods. Such a state of affairs was permitted to continue throughout much of the 18th century until further improvements were proposed in the 1780s (by which time the original jetty was in need of repair). Despite engaging the services of the great engineer John Smeaton in 1788, the States’ Harbours’ Committee drew up their own plans and two years later the foundation stone was laid for the so-called “North Pier.” It would be a quarter of a century before work was complete. Cattle Market Another major change to the infrastructure of the small town of St Helier was the transfer of the cattle market in 1700 from Broad

St Helier’s Old Harbour below South Hill, c.1770

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Street to a site “on the beach, some 60 to 100 yards to the southwest of the churchyard wall … and for its protection, a wall was construction at some little distance below.” [Probably about the site of the Royal Yacht Hotel.] Here the cattle market stayed for more than a century before relocating to open lands in Cattle Street and later, in 1841, to Minden Place. Growth of Town There is little documentation on population growth in St Helier in the early 18th century. According to one historian, there were some 400 houses in the town in the 1730s. Examination of maps from 1700, 1737 and 1756 show both a steady increase in the densification of existing built-up areas in the old town as well as new streets being opened up on the periphery of the ancient core. The most significant new streets to be built up in the first half of the 18th century were those that we now know as Parade Place, Dumaresq, Hue, York, Castle, Seale and Sand Streets (all located west of Charing Cross). Earlier streets which saw new building at this time included the south side of Broad Street (extending south to the waterfront), and, east of Snow Hill, La Motte Street and Colomberie. Scattered houses were also appearing on Regent Road.

above right : St Helier 1700 right: St Helier 1737 below: St Helier 1756

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St Helier: Stages of historical development 1691 - 1810

St Helier 1691 - 1700

St Helier 1750s

St Helier 1780s

St Helier 1810

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St Helier: Stages of historical development 1840 - 2003

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St Helier 1830-1840

St Helier 1870s

St Helier 1910

St Helier 2003

ST HELIER URBAN CHARACTER APPRAISAL

One notable new building in the centre of the town which was constructed at this time (and which still stands), is now known as No 5, Library Place, situated between Royal Square and Broad Street. Begun in 1736, this brick and granite building was constructed to house the collection of books by the eminent Jersey antiquarian Philippe Falle and is claimed to have been the first public library in the British Isles.

the nucleus of the town’s hospital - was constructed well away from the town in the sandy waste area now bounded by Gloucester Street and Kensington Place. This building was destroyed by a gunpowder blast in 1783 whilst in use as a barracks, and was rebuilt shortly thereafter. Around the same time, just to the north of the hospital site, the town had created a cemetery for the use of “strangers” or incomers to the town. Part of this cemetery site would, in the following century, form part of the The Parade.

Other major civic improvements were, for the most part, outside of the town proper. In the 1760s, for example, a new poorhouse - later State of the Town Falle’s opinion of St Helier at this point in history indicates a town emerging from its medieval beginnings and into the modern era: “The Town in its present enlarged state, contains about 400 houses, laid out into several wide and well-paved streets. ... The Town is inhabited chiefly by merchants, shop-keepers ... and retailers of liquors; the landed gentlemen generally living upon their estates in the country. In short here is scarce anything wanting for necessity or convenience. Besides the stream running through the place [and literally under some houses] there is farther supply of good water from wells and pumps.” Nearly two centuries later, the historian Nicolle disputed Falle’s claim, stating that St Helier was “neither clean nor well-paved,” and that records from the time actually refer to “the filthy state of the streets and pubic places” and the fact that “pigs ran loose about the Market Place and in the Cemetery.” Further documentation describes the second half of the 18th century, when St Helier “had all the appearance of a little country town. The houses, all solidly built, had, in many cases, the appearance of small forts, and though tiles for roofing were becoming general for private houses, yet a very large proportion were still thatched, and many of them covered with climbing vines. This was particularly so on the north sides of Broad-street, King-street, Queen-street, and Vine-street; but all that is left of this practice is the vine-covered fronts of houses in Vine-street. The houses were almost all detached and many of the citizens had their own gardens.” Many of these ornamental gardens laid out in geometric patterns, possible with hedges and apple trees - can be seen in the 1737 and 1756 maps behind houses in areas such as Hue Street, the north side of King Street, in Regent Road and around Colomberie. Also evident in these maps are formal gardens surrounding detached houses located on tracks (Green and Roseville Streets) leading southeast towards Havre-des-Pas.

Falle Library, No. 5, Library Place OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

Architecture Although it appears that ornamental gardens were becoming fashionable by the 18th century, by most accounts the architecture of the town remained rather basic. “A large proportion of the houses, which did not exceed five hundred in number, were of but one storey, and whenever they were of two or more the upper floors were reached by a narrow, winding staircase placed at one angle of the house. Many of these, constructed of stone, existed as late as 1840, and one was to be seen as late as 1870 at one of the houses which stood at the upper end of the Royal Square and which were demolished in that decade so as to construct the present States Chamber.” It is generally accepted that by the start of the 18th century, the appearance and construction of St Helier’s buildings began to change. “Anciently,” wrote one historian, “all the houses

above: thatched cottages in Market Square circa 18th century below: Don Road, Georgetown

were substantial stone edifices with small windows; consequently gloomy; and the greater number of them were thatched.” Some improvements in the early 18th century were predicated on public safety. For example, the new by-laws of 1715 proscribed thatching in St Helier due to its inflammability; soon, slate from Normandy and Wales were imported, and red pantiles were brought from the Netherlands. Other changes, however, were more attributable to changes in taste and a desire for comfort. Prior to 1700, St Helier’s architecture would not have been dissimilar to that of the Jersey countryside. Cottages were built of roughly-hewn local granite, with casement windows (in the French style) irregularly placed across the facades, arched door openings and ornamented with carved stones (including marriage stones containing initials and a date). The fact that lime for mortar was not available on the island meant that granite walls of older Jersey houses of a modest nature were not very robust. In the early 1700s, the virtually medieval architecture of old St Helier began to evolve. “With dramatic suddenness,” according to Joan Stevens, Jersey “adopted the Georgian love of symmetry. Away went all the carved embellishments and attractive inequalities, to be replaced by a geometrical facade, with a straight topped unchamfered doorway, and plain identical window apertures.” Panelled front doors with delicate fanlights were placed in the centre of the elevation, and the rooflines flattened out as slate and pantiles did not require such a steep pitch as a thatched roof. The additional attic space permitted by this new roof construction increased the available internal accommodation and thus dormer windows became more common. Very few buildings of this era survive in St Helier, with notable examples being found in Dumaresq and Hue Streets. Late 18th-century Changes Within a decade of the famous 1781 Battle of Jersey, in which the gallant Major Peirson led the defence of the island against a French expeditionary force, St Helier would be subjected to another invasion from its nearest continental neighbours. For following the 1789 Revolution, many thousands of French refugees arrived in Jersey, many aristocratic and most seeking to settle in St Helier. According to a contemporary account, “a great influx of fresh inhabitants, as well strangers as persons from the country, naturally occasioned an increased demand for houses, and, consequently, a considerable augmentation of their value. New streets became necessary: some have been built, and others planned.” The same writer estimated that over the next twenty years, “the number of houses in the town, and its vicinity, have been nearly doubled: an addition, which is by many supposed to be much beyond the increase of resident inhabitants.”

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ST HELIER URBAN CHARACTER APPRAISAL

To accommodate these new inhabitants, the tree-lined lanes leading out of the town (eg New Street/Val Plaisant, Bath Street and St Saviour’s Road) began to be built up with new houses and whole new streets were constructed. In the far west, Gloucester Street and George Street (now Kensington Place) were soon lined with new houses, whilst new streets such as Cannon Street, Vauxhall Street, Halkett Place, Beresford Street, Peter Street and Ann Street appear on maps as being partly built-up. (Appearing on one map from this time was a row of houses on a new but as yet unnamed street which would eventually be called Winchester Street.) This increase in the town’s population at the end of the 18th century added other pressures in addition to a need for new houses. Ships coming to St Helier, it was stated, “could find no shelter but a broken-down jetty by the inn called La Folie” and carts could only reach ships across the sand at low tide. The

States constructed Conway Street in the 1780s to facilitate access from the town to the sea, and towards the end of the century a new sea wall was under construction to protect the new commercial premises being constructed south of Broad and Sand Streets. At this time, on filled land near the waterfront, new streets for mercantile purposes (e.g. Wharf Street) were first laid out.

St Helier circa 1795

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1.6

Establishment of Modern St Helier (19th c.)

Civic Works A major change to the civic infrastructure of St Helier occurred around 1800, when the weekly market was removed from Royal Square to new, purpose-built premises in Halkett Place. The relocation not only offered the market traders and customers much more room than in the overcrowded square, but the new site also shifted the cultural focus of the town away from the medieval core for the first time. In many ways, the opening of the new Halkett Place market ushered in a new era for St Helier, when the outlying

areas beyond La Grand Douet became firmly established as part of the town proper. The new focus of development north of King Street at this time in no way diminishes the importance of the waterfront. In fact, soon after the establishment of the new market place, St Helier also witnessed major works to its waterfront, and most importantly, perhaps, to Mont de la Ville. By the first decade of the 19th century the construction of Fort Regent had begun, and, directly below this, Commercial Quay and Building were in the process of being built. Halkett Place circa 1840

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ST HELIER URBAN CHARACTER APPRAISAL

St Helier Harbour and Fort Regent circa early 19th century

Fort Regent The threat of invasion during the Napoleonic wars led to a major fortification of the island. Martello towers were built around the coastline, and in 1805 the States reached agreement with the British to sell Mont de la Ville for the site of a major fort. The crown of the Town Hill in St Helier offered a commanding view over St Aubin’s Bay and beyond. Crucially, the construction of the ramparts and buildings of the fort led to another major influx of people and capital, developments that would change the scale and rate of the town’s growth over the next century. Work on the coffin-shaped fort began in 1806 and continued for the course of the war. To accomplish this immense task, an “influx of strangers” flocked to Jersey. They came from many places: some Irish, and many English. (In fact communication with England had already been growing since the start of a weekly packet service from Weymouth in 1794.) Much labour was required to construct and service the fort, and this immigration of workers (and soldiers)

prompted a general boom in the town’s economy - on and off - for many nearly a decade. Masons worked for years to build the ramparts and buildings within the fort. Great quantities of granite was quarried and transported, mostly from Mont Mado on the north of the island. New houses in St Helier were much in demand, and the States used proceeds of the sale of the Town Hill to fund improvements to pavements of St Helier. Major new streets - such as Burrard Street and Don Street - were cut around this time. There were occasional lulls during hostilities, and, after 1815, “peace having caused a relaxation in the public works, many of the persons employed by government were discharged.” Despite an immediate downturn after the end of the war, works continued for a time on the fort. Before long, the economy of St Helier was soon invigorated by another wave of immigrants - this time consisting of former British soldiers (and families) retiring to relatively warmer and less expensive Jersey on half-pay pensions. OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

Waterfront Improvements At the same time the precipitous heights of Mont de la Ville were being clad in hewn granite, the hill’s base in St Aubin’s Bay was also being radically altered. The construction of Commercial Quay had been underway since the 1790s, and the adjacent series of Commercial Buildings began around 1811. It has been written that the Army was unhappy with the plan for the new stores below the old Pier Road, and apparently forced the buildings to be constructed with flat roofs so as to not obscure its view and line of fire of the harbour approaches. Commercial Quay and Buildings, and the new North Pier - accessed by a series of newly constructed streets south of the Town Church were soon to form St Helier’s new harbour area. There were newly made lands north of the new shoreline, and an artificial plaza was built at the confluence of Wharf and Mulcaster Streets, Caledonia Place and Ordnance Yard. In this new public “square,” near the head of the North Pier, was the Weighbridge, for more than a century the focus of Jersey mercantile activity. Soon after these harbour improvements were in hand, further infrastructure was to be built. In the late 1820s, construction began on the town’s new artificial sea wall, to be called “Esplanade.” Commercial Buildings and Fort Regent

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St Helier and the Mont de la Ville from the west : circa 1789

When it was finished in 1832, the new Esplanade created several acres of commercial land conveniently located adjacent to the new harbour. For the first time in its history, St Helier had a completely man-made waterfront. New Streets and Buildings With another boom in St Helier’s local economy and the subsequent demand for new buildings for houses, storage and working space, many new streets were opened. The improvements to Jersey’s road network during the wars (though the efforts of General Don) also improved access to the town from the countryside. The population of St Helier increased from some

ST HELIER URBAN CHARACTER APPRAISAL

10,000 in 1821 to about 24,000 only twenty years later. Much of this increase can be attributed to the introduction of steamship connections with the south coast of England. Of course, with these incomers (both prospective settlers and the early waves of English tourists) came new money and new tastes in architecture. Increasingly, but sporadically, St Helier’s hinterland was speculatively laid out with new streets. In the fifteen years since Waterloo, the following streets were constructed and (partially) built upon with new houses: • • • •

Beresford and Le Geyt Street (1822) Waterloo Street and Halkett Place (1825) Wesley and Bath Streets, Belmont and Great Union Roads (by 1827) Union Street (1828) Right: Hemery Row - built c 1808 Below: New streets around Halkett Place Market c 1834

In addition to these improvements, the paving of the town’s streets were improving at this time, the many branches of the local streams were being properly covered, and by 1831 gas streetlights were introduced. Public waterworks would soon follow. Architecturally, St Helier made great strides during the first quarter of the 19th century. Perhaps the greatest innovation at this being the development of grand set-piece terraces of contiguous houses. From the seminal Georgian forms of Hemery Row in La Motte Street (c1808) to the Regency grace of Royal Crescent in Don Road, formal terraces of fine, large houses became the most desirable home for the town’s wealthier classes. There could be as many as fourteen houses in these schemes (The Terrace in Grosvenor Street, 1829) or as few as three (Gloster Terrace in Rouge Bouillon, 1840s). Windsor Crescent (1835) in Val Plaisant and Victoria Crescent (1854) off Upper Clarendon Road, were actually a series of semidetached houses joined by linking entrance porticoes at the sides. Increasingly, like the latter, and its neighbour, Almorah Crescent, the grander terraces were built further and further out of the town. New developments in housing, however, were not the sole preserve of the wealthier inhabitants of St Helier. Throughout “the new town,” streets were being built over with all manner of houses, from one-storey (plus attic) cottages for Irish immigrants in Clare and Cannon Streets, to modestly-sized terraces in Elizabeth Place (west side of The Parade) or Bath Street/David Place. Rows of working class houses also appeared in streets opened many years previously, such as Ann and St James Streets off La Motte, and Vauxhall Street in the north near Val Plaisant. OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

By courtesy of the Société Jersiaise Photographic Archive, Jersey

Not all new houses in the first half of the 19th century were built in formal compositions over large areas of land. It appears that development of housing in St Helier’s new residential streets was most often undertaken in small parcels consisting of narrow plots. Detached houses built on single plots were just as common as groups of two, three, (four or more) plots being developed at one time. Well before the middle of the century, more than half of the level basin of St Helier was either built over or enclosed and cultivated as gardens or orchards. The only remaining pasture land at this time was well north of the new town area, and already large terraces were being built on the slopes of the surrounding hills. Infrastructure Improvements The middle decades of the 19th century saw many important developments in the town’s facilities and amenities. In 1846 the Queen opened the new Victoria Pier (south of the 1700s jetty), and seven years later the Albert Pier was opened parallel to the North Pier of the 1790s. In the 1870s, at the head of this new harbour, the terminus for the new Jersey railway was constructed (a few years later came the Jersey Eastern Railway terminating at Snow Hill). Around the same time, the breakwater to Elizabeth Castle was constructed. By this time, St Helier could boast three fine parks: The Parade, (public) the Howard Davies Park (called “Plaisance” in Le Gros’ 1834 map) (private) and the People’s Park (public) at the far west of the town. Towards the end of the 19th century, when the last remaining pastures in the northwest and northeast, these parks would become the only public open areas in the basin of St Helier The Parade c 1834

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Royal Crescent, Don Road, built c 1828 By courtesy of the Société Jersiaise Photographic Archive, Jersey

parish. Facilities for the dead also increased with the rise in the town’s population. By the 1820s, the parochial burying ground around the Town Church was deemed to be full, and new lands in Green Street on the way to Havre-des-Pas were acquired and laid out as St Helier’s new cemetery. Within a few decades, lands at Almorah and St Helier c 1840

ST HELIER URBAN CHARACTER APPRAISAL

Mont l’Abbé were similarly established. New Churches The great increase in St Helier’s population in the middle of the 19th century prompted an expansion of social facilities. New schools, shops and other amenities such as theatres had to be constructed. In townscape terms, the most dramatic change came with the construction of numerous new churches. From the 1829 completion of St James Church (between Colomberie and St Saviour’s Road) to the construction in 1887 of the prominent St Thomas’ Catholic Church in Val Plaisant, new churches forever altered St Helier’s skyline and abruptly (but with dramatic style) terminated the vistas down many main streets in the town. The major churches built during the 19th century were: • • • • • • • •

St James’ Church (1829) All Saints, The Parade (1834) St Mark’s, David Place (1843) Grove Place Methodist Chapel (1847) Vauxhall Street Baptist (1851) St Columba’s Presbyterian, Midvale Road (1859) Victoria Street Congregational (1861) Wesley Street Methodist Chapel (rebuilt in 1876 from an

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•

earlier church dating from 1827) St Thomas’ Roman Catholic Church, Val Plaisant (1887)

Suburb of Havre-des-Pas As St Helier expanded rapidly during the 19th century, development of Havre-des-Pas, from very different beginnings, followed in its wake. Prior to the 18th century, the waterfront east of La Collette and Mont de la Ville served as one of three landing places for ships coming to St Helier, acted as a site for collecting seaweed (vraic) for use as fuel and fertiliser, and the inland slopes were primarily sand dunes and open fields. There were numerous country lanes leading from St Helier, and some scattered cottages. The only concentrated Havre-des-Pas circa 1849

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population was located along the curving Dicq Road which ran uphill from the Le Dicq slipway to the hamlet of Georgetown. By the end of the 18th century, fortification of Jersey’s coastline brought changes to Havre-des-Pas. In 1788, La Garde du Havredes-Pas (later Fort d’Auvergne) was constructed on a small promontory halfway between La Collette and Le Dicq. With the construction of Fort Regent in the first two decades of the 19th century, many new houses were built in the area. There was, however, one significant loss due to the arrival of the military builders: the ancient Chapelle des Pas, built in the 12th century below Mont de la Ville, was demolished in 1814 to clear the area

ST HELIER URBAN CHARACTER APPRAISAL

In addition to the construction of lodging houses for the shipworkers and related tradesmen, other new buildings changed the face of Havre-des-Pas during the course of the 19th century. With the advent of Jersey’s tourist industry, and the large numbers of incoming English families, the appealing situation of a gentle slope facing southwards towards the sea attracted speculative builders. On Le Gros’ 1834 map, one can see the spread of cottages and villas - and their market gardens - spreading southeast from Regent Road, Colomberie and down the old country roads (Green Street, Roseville Street and St Clement’s Road) towards the waterfront.

La Chapelle des Pas circa 1797

below the new fort. The Norman chapel had been constructed over an ancient pagan burial mound marked by a stone with indentations resembling footprints (ie des Pas). In the early years of the 19th century, “all that there was of houses in this district could have been counted on the fingers of both hands” according to one historian. “There were one or two houses in what is now Green-street, and which was then the main road to the sea, to the east of the hill. ... Along the sea front, between the Dicq Rock and what is known as Fort d’Auvergne, were a few fishermen’s houses of the poorer class, while all the land within the triangle we have named, and which at the present day comprises Roseville-street, Peel-road, Cleveland-road, and all the smaller roads adjoining, was for the most part apple orchards, while that nearest the sea and further along past the Dicq slipway was all waste common land on which coarse grass unfit for pasturage grew. Great strides by the builders in this district during the boom of 1810 to 1850, and streets were cut and opened, and houses built up at lightning speed, and this rapid growth of this salubrious district, though not so rapid, has continued down to recent times [c.1911], and even during the last 20 years streets have been opened and numerous houses erected in this district.”

During the course of the 19th century, Havre-des-Pas grew steadily into a fairly decorative, though socially mixed suburb of St Helier. Simple workers’ cottages can still be seen in and among the handsome Regency villas and grand Victorian terraces. Lodging houses and small hotels began to line the waterfront as tourism boomed, and other civic improvements were prompted by the general increase in visitors. The Esplanade was built in 1873 (and later extended eastward), and in 1895, the tidal bathing pool was inaugurated. Over the years, redundant shipyard sites along the foreshore were redeveloped for hotels and other facilities. The demand for tourist accommodation was such that many private houses were converted; the famed Ommaroo Hotel, for example, one of the most architecturally significant buildings along the Havre-des-Pas: Regency waterfront buildings

Much of the early growth of Havre-des-Pas can be attributed to the many shipyards established along the foreshore. By the middle decades of the 19th century, there were more than a dozen firms constructing timber ships, mostly large sailing ships, but, as the industry declined towards the end of the century (having been superseded by iron and steel shipbuilders) smaller fishing boats and yachts kept the yards open. The last yard closed in 1904. OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

Havre-des-Pas waterfront, was first built as a small terrace of houses in the 1880s, partially used as lodgings by 1898, and wholly converted into a hotel in 1916. Later Victorian Streets It was estimated that by the middle of the 19th century, “the number of houses in the town [St Helier] had increased to 2,600, this being an increase of 2,000 in the comparatively short space of sixty years, so that from the time of the Battle of Jersey until 1840 it can be said that the town had more than doubled twice over.” Yet, despite this scale of expansion up to c.1850, St Helier continued to grow in the decades to come in the last remaining open areas of the city - the northeast and northwest “corners” of the town located within the Rouge Bouillon/Springfield Road/St Saviour’s Road circle. Of course, Havre-des-Pas also grew exponentially during this time.

St Helier circa 1873

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A series of detailed maps in the middle decades of the 19th century indicate the extent of the growing street network in the outer parts of the town to the northeast and northwest. At this time, the new parallel streets between Great Union and Midvale Roads (Columbus, Clearview and Clairvale) were open but only partly built up with houses, as were the adjacent Albert and Dorset Streets. East of David Place, and across to St Saviour’s Road, there were a few new streets (Apsley, Chevalier and Byron Roads) running roughly north-south and parallel to David Place. Perpendicular streets such as St Mark’s and Stopford Road had been partly opened by this time, but did not extend westward of Common Lane. In the 1849 Godfray map, there were not yet any east-west routes between Tunnel Street and Springfield Road. During the next fifteen years, however, the open fields in the northeast corner of St Helier’s hinterland would be laid out with new streets, including the easterly extensions of Stopford and St Mark’s Roads, the L-shaped Oxford Road, and the north-south running Janvrin Road.

ST HELIER URBAN CHARACTER APPRAISAL

St Helier circa 1920

1.7 20th-Century Change Densification of the Town By the start of the 20th century, all the large open sites around St Helier were more or less fully developed. Most new building took place as a means to maximise the density of a plot, and in the retailing heart of the town, small plots were joined together in order to put up larger premises. The early years of the century saw a number of redeveloped sites around the commercial centre of the town (King, Broad, Mulcaster and Bath Streets), though these classical Edwardian buildings were not drastically different from their Victorian neighbours. Not until after the First World War did a more modern approach of architecture come to Jersey. After the war, the need for new houses in St Helier could not be met within the tightly built-up confines of the town. With the arrival of motorcars, however, pressure to build within St Helier was lessened. The parish roads leading out of the town permitted local residents (and incomers) to build new houses well away from

St Helier and commute in for work, shopping, school and leisure purposes. Thus, ribbons of new development soon spread out from the town in all directions, both along the coast and up over the hills into the agricultural lands of neighbouring parishes. New Architectural Styles Between the two world wars, there was little new architecture of quality in St Helier, though a few examples of interesting Art Moderne and International Style stand out. With the growing importance of the motorcar at this time, it is not surprising that there are several fine garages built in a streamline modern style during the 1920s and â&#x20AC;&#x2DC;30s, both for parking and repair services. Other modernist buildings in St Helier, often strikingly located at prominent corner locations, were built for office and retail use. Some fine examples are well hidden, such as Green Court, in Green Street, designed by the prolific local architect A B Grayson in 1935. OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

The most interesting residential scheme from this era was built in the very heart of the commercial centre, the Evening Post Flats in Charles Street, built for the paper’s employees by A B Grayson. Although there was very little speculative residential building in town during the interwar period, the States were compelled to alleviate the overcrowding and inadequate condition of many parts of old St Helier. In the 1930s, the States constructed its first estate of public houses in Wellington Park in the northeast of the town. Low-cost loans were also made available to the public to purchase privately built houses, most often semi-detached pebbledash houses in ribbon developments on roads leading out of town. Evening Post flats, Charles Street, built c 1947

Green Court, built c 1935

Postwar Redevelopment (1950s-70s) Following the end of the Occupation in 1945, St Helier continued to develop as the population increased through the renewed tourism industry and Jersey’s new role as an important financial centre. Hotels were enlarged and upgraded, new hotels were built, British retailers targeted St Helier’s shopping precincts as the site of new multiple outlets, and the demand for new office space continued apace. Together with these influences on the postwar townscape, the increase in car use created a demand for wider roads, more parking spaces, and improvements to traffic flow. It was estimated that by the 1980s, there were 44,000 cars on the island, with St Helier bearing the brunt of the congestion. As always, there was also a marked demand for new housing during the postwar decades, putting pressure on the States to meet the needs of existing residents, new working-class immigrants, and those employed in the burgeoning financial sector. Supply and demand, naturally enough, kept house prices - and the cost of new building - relatively high. Soon after the end of the Occupation, the States formed a Natural Beauties Committee which vetted all proposals for new development, though it did not appear to have the powers and responsibilities enshrined in the UK’s Town and Country Planning Acts of 1947. Whereas land use policy seems to have been a major raison d’être of the Natural Beauties Committee, there does not appear to have been a very robust attitude towards protecting the built heritage nor any strict form of statutory protection. 50 |

ST HELIER URBAN CHARACTER APPRAISAL

Examination of historical views of St Helier prior to the 1940s indicates that a great number of architecturally and historically significant buildings have been destroyed in the decades since the last war. Regency houses and Victorian villas, working class rows and late medieval cottages have all succumbed to redevelopment pressure. Some were replaced by blocks of modern flats, office buildings, large retailing units or simply left open for car parking. One of the most astonishing losses in the immediate postwar era was the demolition of one of the oldest houses in St Helier (parts dating possibly to the 15th century), the Manoir de la Motte. Located on the corner of Grosvenor and St James Streets, this ancient manor house, with its unusual square tower to the rear, acted as Government House in the 18th century and it was here that during the Battle of Jersey, Lt-Governor Corbet was forced to surrender to the invading French forces. In 1958, this ancient

building was replaced by a nondescript apartment block atop a ground floor car showroom. In the early 1960s, the first Island Development Plan contained a major survey of St Helier which documented the approximate age of all buildings, but also recorded the physical condition from good to very poor. Despite the fact that the vast majority of structures in and around the medieval core of the town were deemed to be in good or “medium” condition, within a few years planning policy was geared to comprehensively redevelop large parts of the town in order to increase the density of the sites and increase the amount and habitable quality of residential accommodation. Many different parts of the town were affected by this redevelopment policy in the 1960s and ‘70s, such as Ann Street, and areas west of St Saviour’s Road. Most striking, however, Island Development Plan: survey of building age, circa 1961

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was the scale of the demolition in and around Hue, Union and Dumaresq Streets. Here, despite protests from local heritage bodies, large numbers of 18th century houses and shops were summarily removed. Many sites were soon redeveloped with high- and low-rise housing, though large gap sites remain to this day. Thankfully, a few historic houses in Hue and Dumaresq Streets were rescued at the time, and some have been subsequently reconstructed or restored. Still, the loss of such an ancient part of the town is tragic. The “architectural merit” was such, wrote an architectural historian, these houses could have been “renovated and conserved to provide a living ‘Vieux Quartier’ for the town.” Not long after the destruction of Hue Street, the States’ policy towards high-rise public housing began to change and coincidentally, a greater interest in the need to conserve the town’s heritage came to the fore. Dumaresq Street, c 1980

By courtesy of the Société Jersiaise Photographic Archive, Jersey

Conservation Era (1970s-90s) The fledgling building conservation movement in St Helier had its roots in the 1964 Island Planning Law, whereby places of architectural, artistic or historic merit - among other qualities - would be designated as Sites of Special Interest (SSIs). The objective of designating SSIs “is not to prevent change but to ensure that pressures for redevelopment, modernisation and adaptation are carefully controlled” so as to preserve the island’s “essential character.” From the late 1960s to the early 1970s, a subcommittee of the Association of Jersey Architects set out to compile a list of architecturally and historically significant buildings in St Helier. Formal designation of SSIs began in 1972. Subsequent architectural surveys, including for St Helier by Irish historian CEB Brett on behalf of the National Trust for Jersey (197677), and an island-wide survey ten years later undertaken on behalf of the States, all contributed to an improved understanding of the town’s historic architecture. Enhanced official appreciation of St Helier’s built heritage, and promotional activities undertaken a range of conservation-minded individuals and amenity bodies (e.g. Jersey Heritage Trust, the National Trust for Jersey, Société Jersiaise, Save Jersey’s Heritage), compelled the States over the years to be more proactive in the preservation of the town’s historic character. With the adoption of the 1987 and 2002 Island Plans, protection of the historic built environment of St Helier has become more firmly established among the States’ priorities. Policy documents, for example, on traditional windows and doors, published in 1999, are very detailed yet still very accessible to the lay person. These publications are indicative of the importance given to the preservation of the town’s historic fabric. Still, to this day, the pressures for redevelopment are as strong as ever, and despite protection offered to the limited number of designated SSIs, there are still many minor historic buildings, which make significant contributions to the townscape of St Helier, which are constantly under threat by developers. Not all such buildings Hue Street prior to demolition c 1974

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ST HELIER URBAN CHARACTER APPRAISAL

Architecture of St Helier

2.1

Stylistic Development

Georgian (1700-1820) Architectural fashions from Mainland Britain were slow to arrive in Jersey, but once they were adopted, they were usually undertaken with a fair amount of panache. During the 18th century, St Helier’s buildings underwent a major transformation, progressing from the course irregularity of the later medieval period to the order and symmetry of Georgian era design. Some early hints at the future direction of St Helier’s architecture can be seen in the simple yet dignified row of buildings at the corner of Vine Street and Peirson Place (above Gallichan’s jewellery shop, Royal Square). The strong and regular fenestration of the front elevation would become a typical feature of local buildings for the next two centuries.

are at risk of demolition per se, but there has been a pattern of incremental change (loss of original features, installation of modern windows and doors, destruction of gardens, alteration of curtilege, inappropriate paint colours etc) which inevitably diminishes the character of St Helier’s historic townscape. And as Jersey’s economic and political situation is in a state of flux at the moment, there are lobbies which still place the conservation of heritage and character - despite advantages for the tourism industry - below that of finance, commerce and new development. States of Jersey policy documents on widows and doors published 1999

During the Georgian period, not only were large, multi-paned sashand-case windows a major development from the past’s haphazard placing of small casement windows across a facade, but the formal grouping of the window openings and the “lining through” of the lintels added a measure of order and restraint not known in vernacular architecture. A certain elegance was often added to these modern designs with the use of delicate arched fanlights over the front doors. In general, ornament was simple and unpretentious, but when present it was derived from the classical orders. These town buildings, like their rural counterparts around Jersey, combined coarse granite rubble for walling material with finely dressed granite for door and window openings. Some fine examples remain in St Helier (though often reconstructed with original material) which are indicative of the quality of design during the 18th century. Hemery Row, an early terrace design (now truncated), and Elizabeth House at 9 Castle Street, seem much more advanced and modern that the rows of simple cottages and farmhouse-style buildings which survive in Hue and Dumaresq Streets and a few other locations in old St Helier. Another feature of Georgian development was the broadening of the palette of building materials, sometimes caused by stylistic desire (such as increased use of expensive bricks), and also brought about by practical imperatives such as the 1715 by-law prohibiting thatch roofs. Of course, improved harbour facilities enabled the increased importation of French or English lime, Dutch pantiles, Welsh slate and other high quality materials. One of the earliest uses in brick (as a facing material) in Jersey was the Falle Library in Library Place, begun in the 1730s. OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

Another interesting development in St Helierâ&#x20AC;&#x2122;s 18th-century architecture was in the design of working class cottages surrounding internal courtyards. Often a row of one-storey (plus attic) cottages could be built fronting the street, with a passageway at one end which led into the courtyard and a parallel row of cottages at the back of the site. The courtyards would be used for laundry and other communal uses. Sometimes a passageway through the front row would access the yard and rear. From this original pattern, workersâ&#x20AC;&#x2122; cottages would later be developed in different ways, either as rows of parallel two-storey houses set perpendicular to the street, or perhaps single rows of cottages with their own small garden spaces at the rear. right: Old shop in Vine Street - destroyed in 1928 below: Georgian house: Vine Street

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ST HELIER URBAN CHARACTER APPRAISAL

Pembroke Terrace, David Place, built c 1844

Villa in Don Road

Regency (1800-1840) In many ways, Regency architecture was the natural successor to the plain and ordered classicism of the Georgian era. In fact, it is impossible to discern a precise break between the two styles in the early 19th century, and by most accounts there was a couple of decades of overlap between the two. It should also be noted that these stylistic periods, and the subsequent Victorian era, as commonly accepted by architectural historians, do not neatly coincide with the chronologies of the monarchs. The stylistic influences of different generations are never precise; add in Jersey’s relative physical isolation from the rest of the United Kingdom and it is not surprising that certain developments arrived late and, once accepted, lingered on longer than on the mainland.

As described above, the first few decades of the 19th century was a time of great change in Jersey, and in St Helier in particular. Persistent population growth, increased prosperity, and improved communication with England all contributed to the refashioning of the island’s culture. Architectural taste, of course, is but one transformation which can be documented by physical evidence down to the present day. And whereas the emergence of Georgian design sensibilities enhanced and “modernised” many of Jersey’s architectural traditions (e.g. the ancient use of local granite), it was never wholly an alien style in the way the Regency would prove to be. According to one writer, these new forms were so different from the vernacular traditions that “Jersey’s indigenous Architecture

Almorah Crescent

Norfolk Terrace, Rouge Bouillon, built c 1840

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died from contempt and was replaced by a new form imported from England.” The Regency style coincided with the greatest building boom the island would enjoy prior to the resurgence of the late 20th century. Demand for housing in St Helier during this period was such that new streets were opened at a rate not seen previously, and completely new building forms were soon developed to meet the need of the burgeoning middle class. Although rows of contiguous houses was a tradition in St Helier since the medieval period, the elaborate design of set-piece terraces seen in the decades after Hemery Row was built is a clear indication that local builders were no less inventive and ambitious than their mainland counterparts. Although the Regency developed along the same classical lines as the Georgian, there soon appeared in St Helier two distinct approaches to this new type of classical design. One, more conservative, approach simply enhanced the strict Georgian classicism by adding devices such as Doric porches or Corinthian pilasters to their compositions. The other school of thought was much bolder in its imitation of new mainland fashion: villa and terrace compositions, although still respectful of classical proportions, were now more highly decorated with devices such as canopies, balconies (especially in Havre-des-Pas), shutters, deep projecting eaves and delicate cast ironwork. If the earlier compositions of Royal Crescent and Grosvenor Terrace were typical of the more conservative approach, then the terraces of Windsor and Almorah Crescents represent the ultimate examples of Regency style in St Helier. In addition to the innovative use of cast iron crestings, finials, balconies and verandahs, there were other material developments during the first few decades of the 19th century which helped alter the traditional appearance of St Helier’s townscape. Although brick became an increasingly common material in the Regency period, it was the use of fine stuccowork which defined the style in the town. Stucco is a term loosely applied to various cement, lime and sand mixes used for exterior render over coarse stonework or brickwork, applied with the intention of being painted. The use of soft lime putty (sometimes chalk-based) gave proper stucco a soft texture and made it a flexible, malleable material for the production of cast and moulded ornament. The use of stucco ornament, ranging from simple column capitals and terrace-name plaques in Regency times to the more exuberant embellishment of the Mechanics Institute or the “Grapes” public house in Mulcaster Street (now the Lamplighter) later in the century, radically changed the nature of St Helier’s architecture and prompted the extravagant decoration of the High Victorian and Edwardian eras. 56 |

Queen’s Road - built c 1844

ST HELIER URBAN CHARACTER APPRAISAL

Victorian (1840-1900) In St Helier, as was common throughout mainland Britain, the Victorian era ushered in a trend of architectural eclecticism. It is difficult to identify a “typical” Victorian building in St Helier, for styles include a wide range of Gothic (English, French and Italian) and classical (Romanesque, Italian Renaissance, French Second Empire etc), with numerous buildings exhibiting exotic details such as the Moorish ironwork on the Ommaroo Hotel or the Picturesque use of stucco tree branch or bark-like mouldings. It is also important to note that in the Victorian period there was much variety in the quality of buildings, ranging from the prominent banks, hotels, retailing and public buildings in the commercial centre of the town to the modest and plain cottages, villa and terraced which filled in the gaps in the town’s plan in the northwest and northeast districts.

Mechanics Institute, Halkett Place

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above: former London City and Merchant Bank, Library Place, built c1864 left: The Grapes, Mulcaster Street (now the Lamplighter) below: Weymouth Place, Aquila Road

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ST HELIER URBAN CHARACTER APPRAISAL

In many ways, St Helier’s Victorian builders continued a steady progression from the accomplishments of their Georgian and Regency predecessors, and often exceeded these earlier efforts with great style and panache (e.g. Victoria College of 1852, the Masonic Temple of 1864, National Westminster Bank and the Town Hall of the 1870s, the Central Market and St Thomas’s RC Church of the 1880s and the Grand Hotel of 1890). In terms of site planning, however, it could be said that the Victorians were less inventive in the layout of terrace developments for nothing in the second half of the 19th century could compare with graceful arrangement of, for example, Royal, Almorah, Waverly and Windsor Crescents. Most Victorian terrace compositions relied more on exuberant ornamentation (e.g. West Park Avenue, La Route du Fort) than on skilful orientation of houses on a plot, with most later 19th century terrace schemes resulting in plain, straight rows of contiguous houses. It is important to note that the eclecticism of the era - and the importing of new ideas - led to the enhancement of the palette of materials available to Victorian builders. Brickwork became more common through the 19th century, with brickworks opening up on the periphery of the town and elsewhere on the island. Local granite became more popular once again, though traditional ashlar and rubblework was often eschewed in favour of squared, coursed stonework. It is believed that the first local use of polished granite was the 1886 Public Library in Royal Square. Stucco remained in fashion, with highly ornamented buildings such as the Mechanics Institute being built as late as 1873. This fine and flexible material was still common at the end of the century.

top: La Colomberie (left) Halkett Place (right) bottoom: Green Street (left), Queen Street (middle), cement rendered house in Francis Street

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The greatest change to the appearance of St Helier buildings in the Victorian period was the development of cement render which, in contrast with stucco, did not require regular painting. This socalled “Roman cement,” a mixture of English cement and local sea sand, produced an external covering for brick and rubblestone which had none of the character of the “smooth, creamy” stucco developed in the Regency period. Instead, the cement render, struck with lines to resemble ashlar masonry, produced an effect which has been described by architectural historians at best as

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below: left - Bath Street/Phillips Street, right - David Place bottom: left - Bath Street/Minden Place, right - Halkett Place

ST HELIER URBAN CHARACTER APPRAISAL

“drab, forbidding” and “sombre,” and, at worst, “disagreeable” and “extremely nasty.” Although some Victorian builders made good use of applied cement decoration (such as the bark mouldings mentioned above), the dullness of cement-rendered facades, especially when left unpainted (e.g. Douro Terrace) no doubt diminishes the architectural or townscape qualities of the overall design. As the pace of development continued during the second half of the 19th century, several trends emerged which made a lasting mark on the townscape of St Helier. As the last of St Helier’s new streets were being constructed, the shortage of available land led to increased pressure on existing built-up areas. Over the course of several decades, gap sites which had been left in between the scattered Georgian and Regency developments began to be built upon by Victorian speculators. Thus, the visual chaos produced by the various building heights, building lines, site layouts, gardens - let alone the diversity of quality, composition, ornamentation and materials of the older structures - was exacerbated by the intrusion of yet more eclecticism in the form of large and small Victorian developments. In many ways, this pattern of stylistic and physical disorder continued throughout the 20th century and down to the present day. In a similar vein, the perpetual pressure for development particularly in St Helier’s commercial centre - has dramatically altered the traditional building pattern of the town insofar as the shortage of new and larger site has prompted builders to amalgamate adjacent (small) plots in order to form larger parcels suitable for contemporary developments. So whereas a Victorian speculator might combine two or three small (Georgian) houses plots in order to build new commercial premises, a 20th century developer would consolidate several of these larger Victorian holdings into a site appropriate for a large financial house or a multiple retail outlet. Of course, as these large blocks come to dominate the commercial centre of the town (as well as becoming common in the more residential locations), the grain of St Helier’s historic townscape has been forever altered. OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

References

A History of Jersey’s Markets, 2003 Boots, Maurice. Architecture in Jersey, 1986 Brett, C.E.B., Buildings in the Town and Parish of Saint Helier, 1977 Corbet, F. The Parish Church of Saint Helier, Jersey, n.d. Croad, G.W., A Jersey Album, 1981 Fell, A., A History of Havre des Pas, 2003 Ferrari, A., Jersey’s Lost Heritage, n.d. Ferrari, A, Jersey’s Disappearing Heritage, 1998 Jersey Weekly Post, “The Town of St Helier. How it has grown,” Twelve weekly articles, February – April 1911 Lemprière, R. Buildings and Memorials of the Channel Islands, 1980 Nicolle, E. T., The Town of St Helier, 1931 Plees, W. An Account of the Island of Jersey, 1817 Stevens, J., Old Jersey Houses Volume II, 1977 Syvret, M. and J. Stevens, Balleine’s History of Jersey, 1981 Images of Royal Crescent and Dumaresq Street courtesy of Société Jersiaise

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ST HELIER URBAN CHARACTER APPRAISAL

people and perceptions This section examines the perceptions of a range of locally based groups interested in the future of St Helier as well as external perceptions of the town. The consultant team held workshops with local traders, with Jersey based artists, staff of the States Planning and Environment Department and with the Association of Jersey Architects (AJA). An additional workshop is planned with the AJA and interviews a series of interviews are taking place with a wide range of local interests. This is an ongoing part of the study and the following pages represent only a partial record of findings with only limited analysis. Travel Agencies’ Views on Jersey and St Helier Five travel agencies were been interviewed, two of which were agencies that specialised on students and backpackers. These Edinburgh based travel agencies were: •

STA Travel

•

Lunn Poly

•

Thomas Cook

•

Student Flights and

•

Visiting Places

Generally speaking, employees had little in-depth knowledge of Jersey. Only two of the interviewees have been to Jersey themselves but did not consider themselves to be frequent holiday makers to the Channel Islands.

Old postcard view of St Helier Harbour

The two student travel agencies - STA travel and Student Flights - were not able to provide any brochures or information material. There was the possibility of booking a flight to Jersey but package holidays or even accommodation linkages were apparently non existent. Travel agents explained that there is no demand for students to go to the Channel Islands since they were considered to be too expensive and “do not serve the needs and interests of these people”. The target group were middle-aged and elderly people that want to have a “retreat for those seeking a holiday with a touch of the Continent but without any language or currency barriers”. The proximity to the mainland also contributed to the idea of an attractive holiday destination for less mobile people. Brochures advertise Jersey as a holiday that is “just like going abroad without the bother of passports, visas, inoculations, foreign currency- yet with good familiar food and drinks, and your regular morning newspaper at the breakfast table”. OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

Visitor Survey: Jersey Airport August 2004

per cent between 25 and 34 and seven per cent older than 75 years.

We carried out a visitor survey at Jersey Airport in August 2004. The aim of this survey was to get an insight into how Jersey visitors viewed the Island’s attractions and discover their motivations in choosing Jersey as a holiday destination. Particular attention was been paid to St Helier.

Number of Times Visitor has been to Jersey

The questionnaire was handed out to 96 visitors. Additionally, the Jersey Visitor Survey 2003, carried out by Travel and Tourism Research Ltd. (TATR) complemented our results: Our survey consisted of a one-page questionnaire which dealt with: 1) 2) 3) 4) 5) 6) 7) 8)

nationality of the visitor age of visitor number of times visitor has been to Jersey reasons of choosing Jersey as a holiday destination activities pursued during holiday how attractive is St Helier as a tourist destination? good and bad things about St Helier factors/attributes that would make St Helier and Jersey a better holiday destination

Nationality of the visitor 79 per cent of Jersey’s visitors came from Britain, most of them from England. Nine per cent were Irish, seven per cent German with the remaining percentage coming from Poland, Switzerland, Portugal, Italy and Australia. Age of Visitor Most visitors were between the age of 31 and 45. Considering that this was the summer holiday season, this may not be surprising since many families with children were more likely visit Jersey at this time of year. The percentage of under 30s and over 60s was comparably low with 18 per cent between 18 and 30, 17 per cent over 60s and 27 per cent between the age of 46 and 60. The TATR report states that the average Jersey overseas visitor is 49 years old, whereas the UK average visitor is 56 years. Their survey reveals that 23 per cent of non-UK visitors are between 45-54, followed by 21 per cent between 35-44, 20 per cent between 55-64, 18 per cent between 25 and 34, 12 per cent between 65-74, and three per cent between 16-24 and over 75. In terms of UK visitors, most visitors (29 per cent) are between 55 and 64, followed by 23 per cent who are between 45 and 54, 20 per cent between 65 and 74, eight 64 |

More than half the visitors have been to Jersey four or more than three times (57 per cent). For 24 per cent it has been their first trip while the remaining 19 per cent have been to Jersey less than four times. The TATR report states that 34 per cent of Jersey’s UK visitors has never been to the Island followed by 19 per cent who have been in Jersey 3 to 5 times, 14 per cent who have been twice, 11 per cent once or more than eleven times and ten per cent 6 to 10 times. In terms of overseas visitors, nearly 70 per cent have never been to Jersey, 19 per cent once or twice and the remaining 12 per cent more than three times. Reasons for Choosing Jersey as a Holiday Destination The three main reasons for choosing Jersey as a holiday destination were: • • •

landscape short travel distance, and family/relatives/friends in the area

followed by culture and business. Less important reasons were climate, and language. The TATR survey reveals that most UK interviewees quoted “relaxing place” as the main reason to choose Jersey as a holiday break (22 per cent), followed by “beautiful scenery” (11 per cent), “easy/ convenient to travel” (10 per cent) and “peaceful and uncrowded” (10 per cent). The overseas visitor response was similar, with culture the third most important reason (8 per cent). Activities Pursued during Holiday The most important holiday activity was sightseeing with more than 90 per cent of visitors stating that they have visited Jersey’s cultural and natural assets. The second most important activity was walking, followed by shopping and swimming. Cycling, and surfing were mentioned as other popular sports. How Attractive is St Helier as a Tourist Destination? More than 75 per cent stated that St Helier is a “very attractive” or “very good” tourist destination. 10 per cent described St Helier as “good” whereas seven per cent ranked it as “ok” and five per cent as

ST HELIER URBAN CHARACTER APPRAISAL

“fair”, three per cent as “not very interesting” or “could be better”. Good and Bad things about St Helier The main things people considered to be good in St Helier were: • • •

shops restaurants/pubs friendliness

The harbour/waterfront, beaches, clean street and the feeling of safety were also mentioned amongst many other factors such as cultural activities, size and history. The 2003 survey shows that 38 per cent rated shopping range and quality in the whole of Jersey as “very good” and 46 per cent as “quite good”, with slightly lower satisfaction levels of overseas visitors. Tidiness and safety have also been rated as positive images connected with Jersey (76 and 50 per cent for overseas visitors and 73 and 70 per cent for UK residents respectively). The most negative views on St Helier were in relation to the following: • • •

• • • • •

blending in with British heritage and culture tax haven status (duty free shopping) proximity to France attractive sightseeing (castles, museums, cliff walks etc.) good cuisine

St Helier was particularly mentioned as the “cultural centre”. Agents promoted St Helier as the place to experience annual parades and ceremonies (eg the Jersey Battle of Flowers), high-quality high street shopping, the island’s main port, exciting night life, cultural attractions (such as Elizabeth Castle and Royal Square, Parade Gardens, Howard Davies Park) and excellent cuisine. It was mentioned that the pedestrianised area contributes substantially to the rising attractiveness of St Helier. Hotels were seen as high quality but very expensive. St Helier was generally viewed as a cultural hub which offered festivals, theatre, shopping, night clubbing and food whereas other areas were seen as mostly rural with a focus on swimming, walking, cycling and jet skiing.

traffic system, access to parking and narrow pavements too crowded too expensive

The waterfront was also mentioned as something that “did not fit in” (which is interesting given that it was also stated as a positive asset of the town). The TATR report states that 47 per cent of UK visitors regard prices for shopping, eating out and drinks higher than they expected. The survey states that families with children were much more likely to criticise Jersey prices. What would make St Helier/Jersey a more attractive Tourist Destination? The main suggestion was to reduce hotel, travel and entrance prices, followed by a better waterfront and more/free parking. Other considerations were more stable weather conditions, more access flights from Ireland, wider pedestrian areas and more places to stay. Holidays were mostly booked for one or two weeks. Package holidays were the most frequent choice. Main reasons for visiting Jersey were: • • •

beautiful coastline/landscape nice and clean beaches continental climate OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

Traders Workshop A workshop was held for local retailers, market traders and the Chamber of Commerce in the Jersey Museum on the 6th of May. 32 people attended. After an introduction to the aims of the study and the structure of the workshop, participants were asked to provide adjectives to describe St. Helier now and how it should be in the future. The results of this exercise were:

How it is:

• • • • • • • • • • • • • • • • • • • • • • •

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inaccessible piecemeal fragmented constrained congested convoluted access expensive polarised clean bland quiet un-quaint disjointed unfriendly unwelcoming restricted tatty scruffy pressurising circular attractive clean busy (by day)

• • • • • • • • • • • • • • • • • • • • • •

confused unrealised (potential) impenetrable convoluted poorly signed pretty run down threatened character incoherent planning inconvenient too anglicised compact inconsistent non-competitive committee led old fashioned bureaucratic tourist dependent mixed soulless characterless uninteresting

ST HELIER URBAN CHARACTER APPRAISAL

How it should be:

• • • • • • • • •

vibrant friendly lively bustling busy convenient forward thinking coherently planned individual

Participants then split into 4 groups to discuss aspects of the town’s character that are good for business, aspects of character that are considered to be bad for business, threats that might emerge in the future if nothing is done and desirable changes that might occur. Aspects of character that are good for business:

• • • • • • • • • • • •

no competition as town centre some architecture good underplayed historical context pedestrian area good

inconvenience

• • • •

Bailiff’s influence on use of open space

• • •

high rent – puts off small business

street entertainment markets very attractive floral – summer good al fresco wining and dining historic buildings (underused?) small local businesses – unique character good choice of shops cleanliness (day)

Aspects of character that are bad for business:

• • • •

• • • • • • • • • • • • • • • • • • • •

getting into St Helier access, servicing, delivery car parks difficult to access especially for shoppers congestion

cleanliness (night) secondary retail areas dying markets un-commercial litter , pigeons, scruffy poor signage for visitors empty shops – business gone out of town out of town commerce opening times - lack of evening economy lack of amenities / tolerance for young people buses disabled access loading bays not policed no pick-up point for shoppers absence of open market pedestrianisation does restrict diminution of specialist shops few green areas over-pedestrianisation – too sterile and lifeless joint admin of public spaces a problems (e.g. King Street (Public Services), Vine Street (St Helier), Royal Square (Bailiff) tinkering with the Market (should be our focal point) shuttle buses, shopper buses economic policy should not be the be-all and end-all - parking should be for convenience not just revenue. loss of Jersey enterprises hotel facilities (too small, closing down)

Threats: will stagnate

• • •

will stagnate increase in £100m “black hole” tax will go up OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

• • • • • • •

more shopper parking including short stay

more empty units

• • • • • •

greater finance orientation will marginalise retailers and other businesses

•

more recreational space and better use of Royal Square

will lose brand names worse access less parking more out of town shopping sales tax will reduce business (both visitor and local

Desirable changes:

68 |

remove grid-locking scheme extend train route (through precinct?) more public toilet facilities work on hospitality and welcome increase are classed as town centre to accommodate specialist shops (not just King / Queen Street)

town park should be more of a priority

Participants were given maps and asked to outline the town centre. They were also asked to list places they thought were significant for both visitors and locals.

underground parking

Significant places

• • • • • • • • • • • •

better parking for commerce - a strategic approach

• • •

improve hotels

• •

control of use in retail areas (e.g. banks)

•

guidelines which define usage and allow for creative planning without endless bureaucracy

•

remove traffic from certain areas (e.g. New Street) but allow bus services to improve direct access to the town.

• •

restrict commercial sprawl

environmentally friendly housing sustainable transport plan needed change of attitude to motorist island plan militates against motorist collection, drop-off points, parking cover King Street / Queen Street no retail at abattoir /waterfront better policing of trading bays open market on Thursday pm – occasionally on Sundays more consultation / involvement in decision making joined-up planning (retailers, businesses and services) restriction on growth but with better use of existing units

more pedestrianisation - remove cars

• • • • • • • • • • • • • • • • •

Markets King Street Queen Street Royal Square Town Hall Museum Weighbridge Howard Davis Park Parade Gardens Library Opera House Arts centre Hospital States Offices Odeon Waterfront Social Security

ST HELIER URBAN CHARACTER APPRAISAL

Traders’ Workshop: Town Centre Definitions and Significant Places

OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

Artists Workshop A meeting was held with local artists in the States office on the 12th of May. 11 people attended: Following a description of the study aims and programme, participants were asked to write down adjectives which describe St. Helier now and how it should be in the future. These were grouped as:

How it is:

70 |

•

confusing

•

prickly (weighbridge)

•

noisy

•

busy

•

damaged

•

fragmented

•

underappreciated

•

used

•

coloured houses

•

concealed

•

flowers

•

Victorian

•

parking

•

financial

•

sea

•

bland

•

grubby

•

car friendly

•

run-down

•

historical

•

unimaginative

•

intimate

•

uninspiring

•

small

•

depressing

•

varying in architectural quality

•

crowded

•

improving

•

lacking architectural vision

•

good to escape from

•

restrained and restricted

•

lacking in character

•

not forward looking

•

architectural hotch-potch

•

lack of quality in new development

•

ugly

•

incoherent

•

cheap

•

vista

•

capitalist

•

flat

•

loss of heritage

•

steep

•

busy

•

rocky

•

noisy

•

residential

•

continental

•

surprising

•

hub

•

eccentric

•

crowded

•

narrow

•

mishmash

•

seaside (used to be)

•

soulless

•

small scale

•

small minded

•

good

•

grey

ST HELIER URBAN CHARACTER APPRAISAL

How it should be:

• • • • •

looking up throbbing nightlife enticing busy interesting

• • • • • •

lack of cohesive vision on waterfront fear for Gas Place dull architectural projects soulless glass buildings more public art projects more animation

How are things changing? Good aspects of St. Helier’s character:

•

interesting architectural elements although one has to look up to see them

•

some good examples of good buildings: archive centre for example

•

good States urban development in some areas: community gardens etc.

• •

there are interesting spaces but they are fragmented

• • • •

small scale, intimacy, accessible, use of colours

good places are where you can relax in public, time to appreciate outdoors and a place without cars

•

some of the participants felt things are getting better but some didn’t

• •

too much bad architecture slipping through the net

•

for the better: people are listening, e.g. skate park saga

• • •

architecture higher on agenda

•

to outsiders Jersey is known for finance, St Ives is known for art - connection with money is spiritually “down-lifting” - raising the profile of art in St Helier would create a balance

• •

more “eggs in the basket”

public art forum good period architecture Christmas lights

Bad aspects of St. Helier’s character: •

architectural comprise

•

developers unsympathetic, just want a return on their money. unconcerned about look of final place

•

aesthetically waterfront needs large, specific landmark

•

some modern buildings will not age well but will date easily

• • • •

more needs to be done for pedestrians

•

lack of public space

St Helier changes from day to night. A place that is enjoyable for tourists etc during the day, needs to accommodate local teens at night etc.

tax breaks for artists St Ives: small galleries, sympathetic to artists, artists collections - Abbotoin has potential for this

in the past more people were living over the shops

too much bad architecture lack of consultation about planning process scale and height of development puts streets into shade. austere and cold architecture

OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

What interventions can or should the arts make?

72 |

•

transient art: projections onto buildings as well as permanent

•

public art has to be of high quality and uncompromising

•

trails- sculpture, architecture, poetry

•

lighting!

•

element of surprise: finding public art where it is not expected

•

use of local artists rather than UK based? there should be a mix!

•

make room for artist’s to paint and exhibit their work, through use of planning gains.

•

temporary, ever changing art works

•

art can’t be a Band-Aid - used for its own sake, not used to correct other people’s mistakes

•

events, festivals, more street theatre, exhibitions in shop windows

•

need a cohesive plan from the start for placing art

•

interiors of buildings as locations for art

• • •

lighting installations - La Collette etc.

•

“tunnels”- Interesting walkways through St Helier

•

Improve spaces for the young - make less threatening

•

places change after dark

•

everywhere has a functioning-: a feeling of being directed instead of being free to wander’

•

no walking routes to sea-no directions. tourists don’t know where to go.

•

Minden Place - no crossing outside car parking routes have too much purpose- not just for leisure

•

linking old town to waterfront. bridge may offer contemporary feature

•

encourage people to live in the town!

•

compromises made in design and architecture

•

make space for artists (through planning gain)

Participants were given maps and asked to indicate the boundaries of the town centre. They were also asked to list significant places and indicate them on the map: What significant places exist for locals and visitors? Locals:

• • •

area of “Bean around the World” Liberation Square, particularly for teenagers West’s Centre

Visitor: Maritime Museum

courtyards as locations for art

• • • • • • •

signage and street furniture

•

West’s Centre - restaurants, sculpture

Heritage Site Markets Waterfront in the evening Shopping (Royal Square) Havre des Pas Howard Davis Park

ST HELIER URBAN CHARACTER APPRAISAL

OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

Association of Jersey Architects

• • • • • •

An evening meeting was held on the 12 May 2004 attended by seven architects. Following a brief introduction to the study, participants were asked to write down adjectives which described St Helier as it is and as it should be. The results were:, How it is:

74 |

•

disjointed

• • • • • • • • • • • • • • • • • • • • • • • • • • •

imageless not vibrant lack of pausing areas perforated cramped old hard congested fragmented no quality no centre no gateway gridlocked confused leaking mishmash town-like identity focus charm zoned loose congested tacky too many high street billboards low key architecturally uninspiring

rowdy in summer flat ok uk boring indoor

How it should be: •

complex

• • • • • • • • • • • • • • • • • • • • • • • • • •

unique multi-layered extreme / balanced defined seamless vibrant modern green fluid cultured quality defined centre gateway organised confident diverse city-like focused flowing quarters character access pedestrian friendly transport integrated connected hubs safe after 10 pm

ST HELIER URBAN CHARACTER APPRAISAL

• • • •

exciting

•

traffic/road system

hilly

•

globalisation/UK multiples

continental

•

lacks critical mass of people to support varied retail/ commercial

•

outdoors

•

diversity spread to waterfront

inspiring

Two workshop groups were formed to assess the aspects of character that benefit architecture and those that make good architecture more difficult:

Threats:

What are the aspects of character that encourage good architecture: •

Town Centre around retail/historic centre. Waterfront seen as appendage – difficult - even Vies with centre

•

significant places - Royal Square - places to pause

•

Parade good location but dominated by cars. Good breathing space, gateway underused.

•

harbours underused - potential

•

streams, marshes, geology have dictated “shape” and character (grain) of St Helier

•

Fort Regent has great physical presence but compromised - most ICONIC part of St Helier

•

Elizabeth Castle is iconic but detached

•

Royal Square is full of potential but use restricted through Bailiff

What inhibits good Architecture and Urban Design? •

St Helier isn’t like anywhere else - clients elsewhere seem to be more enlightened.

•

architects work re-actively and are trained to work within a range of frameworks.

•

architects are only hired to get a permission developers then produce poor quality imitation.

•

design briefs are often not policy - conditions are reneged upon (specially planning conditions) + question over technical knowledge of planners to administer conditions.

•

lack of cash

•

politics/planners/car parking

•

Waterfront will rot town - acts as satellite town in competition - not enough people to sustain both parts

•

High street becoming more UK/globalised - could be in any British town.

• •

internet shopping will threaten commerce centre of gravity is moving from Royal Square outwards

What is needed:

•

reinforce good things - define them, invest in future - vision for future

• • •

look at what is wrong

• • •

define gateways into town

•

invest in future- vision.

• • • • • • •

preserve what is left of waterfront

traffic management. better public transport strong stance by planners on the value of the “picturesque” models are uk based but there is a wish to be more culturally associated with France.

potential. definition of gateways transport. traffic management= pedestrianisation emphasise links and key areas improve legibility encourage variety of culture emphasise importance of land-use planning to encourage diversity and an urban milieu. OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

â&#x20AC;˘ â&#x20AC;˘ â&#x20AC;˘

French town - patronage from mayor understand present diversity and innovate within it encourage friendly/consensus approach

Participants were asked to work on maps to define the town centre and to indicate significant places:

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ST HELIER URBAN CHARACTER APPRAISAL

OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

Officers Workshop A workshop was held at the States offices on the 13 May for officers of the various agencies and departments that are concerned with the planning process. Eight officers attended. Initially participants were asked to write down adjectives to describe St Helier as it is now and how they would like it to be. The results were: How it is:

78 |

•

scruffy

• • • • • • • • • • • • • • • • • • • • • • • • • • •

un-coordinated unfriendly varied vibrant architecturally disappointing traffic dominated run down (in parts)

• • • • • • • • • • • • • •

quaint (in part) criticised diverse under-rated busy at times pedestrian unfriendly in places parochial / international lack of cohesion atmosphere can be intimidating not particularly good as a shopping centre compact pleasant unpleasant improving

traffic dominated improving un-green disjointed vibrant centre unloved divided (commercial / residential) tired 2nd class (perception) choked quiet friendly peaceful convenient busy old and new (mixed bag) cars historic congested / uncomfortable unsafe

How it should be:

• • • • • • • • • • • • • • • • • •

visually stimulating / challenging pedestrian friendly more vibrant more adventurous more vibrant (street activity) town integrated with waterfront safe unique pleasant proud friendly (it’s not unfriendly at the moment!) more pedestrian priority more diverse evening culture more to do for all – weekend new buildings more respectful attractive picturesque cohesive

ST HELIER URBAN CHARACTER APPRAISAL

•

issue of relative scale - people get in their car to go anywhere. also scale of issues/priorities can be confused

•

identification of character areas- many different character areas make it hard to develop a code

•

but the level of interest is good and should be encouraged

• • • • • • • • • • • • • •

provision of open spaces and art

quality

•

growing civic spirit

•

more trees

•

European regulation

•

decline if public funds

•

large scale development

•

political restructuring

•

housing pressure

•

instability of finance industry

•

traffic and parking

•

economic development and decline – e.g. finance, retail, tourism

• • • •

changing population age and structure

• •

land value

admired successful confident balanced (pedestrian / traffic) accessible green

Opportunities/Advantages for effective planning

artistic

•

variety leads to greater scope for innovation

vibrant

• • • •

human scale- intimacy

enquiring interesting better new architecture less cars / fumes

The workshop session was divided into two parts:

•

Part 1 – identifying problems and opportunities that character poses for effective planning

•

Part 2 – identifying the town centre and other areas of character and the organisational changes that might be required for more effective planning to maintain, enhance or change the town’s character

Part 1 Problems for effective planning •

variety of different character areas makes it hard to develop a code

•

physical constraints of town infrastructure (too tight, especially for trains/traffic)

• • • •

mental scale - insular attitude

•

historical stigma attached to St Helier- changing

small issues- politicians get into open

public ownership/enfranchisement diversity perception/ opportunity for change

Pressures for change

increased aspirations eg open space, public amenity social and ethnic identity wider island planning policy – remove pressure from countryside political will and perception

policy vulnerable to sudden change culture and influence; behaviour affects physical environment and vice versa

OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

Part 2

Initiatives:

Administrative/Organisational Change:

•

draw on local enthusiasm/interest

•

be more proactive – share resources with stakeholders

•

power to the people, i.e. stakeholders (doubts about this)

•

St Helier civic body

•

pulling together diverse bodies

•

a “champion”

•

open up the processes

•

a Unitary Authority

•

re-examine delivery process

•

re-balancing policy framework

•

one body to look after St Helier

•

change rating system to give island wide ownership of St Helier

•

more temporary public art

•

more events/street theatre throughout the year making it more distinct

Stakeholders: •

professional planners

•

politicians

•

property owners

•

art in shop windows

•

business interests (office, retail, restaurants)

•

integrated approach to architecture/public art

•

different cultural sectors in society

•

uncertainty about Colomberie

•

age is a factor

•

La Charse (?)

•

visitors (leisure/business)

•

daytime/night time variation

•

developers

•

relationship between centre and historic core

•

architects/designers

•

size makes a difference

character as constant abstract concept; social and political perception

•

utilities

•

encourage private initiatives, more empowerment (welcome centre at St Thomas art in the frame etc.), encouraging residents, giving them trust

Character:

80 |

Problems:

•

historic/visual character

•

unique

•

what are we trying to achieve?

•

split town/waterfront empty sites/buildings

•

what do we mean by character?

• •

climate of change

lack of cohesive strategy and implementation

•

various activities

•

multi-ethnic society

• • •

•

tourism

•

finance industry

strong character and identity can constrain development

•

complex character requires careful analysis and decision making

•

delivery mechanisms have failed so far

poor political commitment and consistency over time different stakeholders have different agendas and perceptions

ST HELIER URBAN CHARACTER APPRAISAL

•

understanding of the issues is poor/communication must improve

•

better resource levels needed

Opportunities:

• • •

positive potential to sell development opportunities content of change dynamism Officers Workshop: result 1

OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

Officers Workshop: result 2

82 |

ST HELIER URBAN CHARACTER APPRAISAL

friendliness or otherwise

OFFICERS

diversity/variability/fragmentation

ARCHITECTS

ARTISTS

usability/accessibility/legibility

usability/accessibility/legibility diversity/variability/fragmentation friendliness or otherwise physical attractiveness/ environmental quality maintenance/stewardship degree of busy-ness/vibrancy economic issues process/planning/administrative issues community perception/image/identity issues

2nd 3rd = 9thth 5rd = 3th = 5th = 8th 5st = 1

5thth= 4th 9nd 2th 5rd = 3th 7th = 7st = 1

2nd 4thth 7rd = 3th 5th = 5th = 7th = 7st = 1

2nd 4thth 6th = 5th 6rd = 3th 8th 9st 1

4. physical attractiveness/environmental quality

1st most popular theme

9th least popular theme

6. degree of busy-ness/vibrancy 7.

economic issues

process/planning/administrative issues

9. community perception/image/identity issues An analysis of the responses indicates that when asked how the town is at present, the largest proportion of words related to theme 9: community perception/image/identity. Unfortunately, over half of these responses were negative (eg tired, bland, soulless, tired, unloved) and many more were somewhat ambivalent (eg ok, constrained, hard, imageless, improving). Even some apparently positive adjectives seemed to suggest an underlying defensiveness about St Helier (eg underappreciated, criticised, under-rated). Theme 1: usability/accessibility/legibility was also popular, with the majority of related words reflecting a sense of dissatisfaction with functional aspects of the town (eg confused, inconvenient, trafficdominated, congested). The much shorter list of positive words did however, seem to conflict slightly with this, with words such as convenient and compact being used. The third most popular theme was 4: physical attractiveness/ environmental quality and here many more positive words than negative were used. Positive words included various attractive physical features (sea, flowers, vista) as well as more general qualitative words (intimate, attractive, pretty, charm). The few negative words again seemed to contradict the positive ones, with grey, ugly, and unpleasant being mentioned.

When asked how the town should be, of course all responses were aspirational and positive. Three key themes came up most frequently â&#x20AC;&#x201C; 1: usability/accessibility/legibility, 4: physical attractiveness/ environmental quality and 9: community perception/ image/identity issues. Combining the results of the four groups, the relative popularity of the themes was as follows:

1 2 3 4 5 6 7 8 9

THEME

maintenance/stewardship

POPULARITY

1 2 3 4 5 6 7 8 9

TRADERS

The response to the â&#x20AC;&#x153;adjectives exerciseâ&#x20AC;? resulted in lists of descriptive words, both positive and negative in nature, which can be grouped under 9 themes, as follows:

THEME

Adjectives Exercise: broad analysis

3rd 5thth 6st = 1th = 8th = 4th 8th = 6st = 1 =

Typical words used to describe the future St Helier include vibrant, friendly, lively, forward-thinking, admired and successful. Practical suggestions included more to do, safe after 10pm, pedestrian friendly, transportintegrated. More specifically, key words that were recorded that reflect the individual themes included the following:

As might be expected, the different groups favoured different themes, which partly reflected their professional interests, as indicated below:

OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

THEME

TYPICAL WORDS

usability/accessibility/legibility

convenient, pedestrian friendly, safe, organised, connected, accessible

diversity/variability/fragmentation

diverse, complex, extreme/balanced, cohesive

friendliness or otherwise

friendly

physical attractiveness/ environmental quality

interesting, enticing, quality, modern, green, visually stimulating, picturesque, artistic

maintenance/stewardship

(none specific)

degree of busy-ness/vibrancy

lively, bustling, busy, vibrant

economic issues

(none specific)

process/planning/administrative issues

coherently planned, forward-thinking

community perception/image/identity issues

successful, confident, unique, proud, individual, inspiring, cultured, city-like

This analysis reflects a degree of dubiety about the essential positive and negative qualities of the town but at the same time provide an excellent illustration of the double-edged nature of many of the rich and complex qualities of life in towns - everyone wants vibrancy and bustle but nobody wants noise or congestion; everyone wants diversity but no-one wants confusion. St Helier residents value their heritage and regret the erosion of the historic townscape but they also want it to be a forward-looking, modern town. An important observation may be therefore, that, despite a great deal of negative comment regarding St Helier as it is now, the positive descriptive words used to describe a future St Helier show a strong commitment to the idea of a genuine urban lifestyle in the town centre.

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ST HELIER URBAN CHARACTER APPRAISAL

urban qualities One of the most distinguishing features of St Helier is the complexity and richness of its urban environment. Although the town has a strong physical setting, is reasonably compact and has strong landmarks and iconic features, it is not particularly easily ‘read’. As shown in the previous chapter on People and Perceptions, there are remarkably few well known places or area names for a town of this size. To the visitor, large areas of the town appear as assemblages of buildings with a wide range of styles, ages, sizes and uses, often arranged in a complex plan of narrow streets. ‘Something different around every corner’, may well be an alternative motto for the town. The apparent lack of clear structure and the random nature of much of the urban area raises a number of issues. Firstly, in relation to carrying out the Urban Character Appraisal, it would be easy to be drawn into traditional methods of analysis that attempted to break down the complexity of the urban environment and reduce it to the simplest terms. A one-dimensional character analysis methodology would achieve this but would not acknowledge the richness and complexity of St Helier. Secondly, the brief attaches as much importance to action – through policies, proposals, action areas and frameworks – as it does to data collection and the actual definition of character areas. The challenge here is to devise a method of analysis and a way of looking at St Helier which acknowledges the complexity of the place – in this way there is a better chance of future intervention also being complex, multifaceted and involving, rather than simplistic. Previous work carried out in St Helier – by CEB Brett and by Melville Dunbar Associates in 1977 and 1984 respectively – set worthwhile precedents. Brett’s work documents the remarkable stylistic richness of the town’s architecture while Dunbar adopts the principles and methods of townscape analysis pioneered by Gordon Cullen. The Dunbar study identifies nine character areas and goes on to describe a series of walks through the town. The emphasis of the study is on the richness of the town’s built heritage and the importance of place, scale, texture, colour and individuality. However the work is not comprehensive and has limited coverage of the town. It also does not deal with the way in which different functional areas interact. An alternative method of dealing with the issues raised by the complexity and richness of St Helier’s urban environment is to find a means of describing it without losing its qualities or complex inter-relationships. In his recent work, ‘The Nature of Order’, Christopher Alexander outlines a number of fundamental structural properties or qualities which together create good design/places/ centres. There is nothing particularly new in this approach – the

idea of the whole being greater than the sum of the parts – but it does help to describe some of the qualities of St Helier which might be overlooked in a purely objective approach to character appraisal. Most importantly, these properties are interlinked rather than separate entities. In appraising the character of areas of the town, we would look for as many of these qualities as possible. In assessing proposals, it should be possible to ask, ‘How many of these qualities does this proposal bring to the town?’ Examples of eleven properties are shown on the following pages: together they represent an alternative method of looking at and thinking about St Helier and are presented as balance to the more objective criteria used to define character areas in the subsequent chapter. 1

Recognisable Places

Strong Centres and Focal Points

Strong Boundaries

Gradients and Changes in Level

Nodes and Connections

Repetition of Elements

Local Symmetries

Echoes and Similarities

Solid and Void

The Presence of the Past

Integration

In addition to these properties it is also worth considering: 12

Surprise

Colour

Little gems

OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

1 Recognisable Places

86 |

ST HELIER URBAN CHARACTER APPRAISAL

2 Strong Centres and Focal Points

OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

3 Strong Boundaries

88 |

ST HELIER URBAN CHARACTER APPRAISAL

4 Gradients and Change in Level

OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

5 Nodes and Connections

90 |

ST HELIER URBAN CHARACTER APPRAISAL

6 Repetition of Elements

OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

7 Local Symmetries

92 |

ST HELIER URBAN CHARACTER APPRAISAL

8 Echoes and Similarities

OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

9 Solid and Void

94 |

ST HELIER URBAN CHARACTER APPRAISAL

10 The Presence of the Past

OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

11 Integration

96 |

ST HELIER URBAN CHARACTER APPRAISAL

12 Surprise

OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

13 Use of colour

98 |

ST HELIER URBAN CHARACTER APPRAISAL

14 Little gems

OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

100 |

ST HELIER URBAN CHARACTER APPRAISAL

character appraisal This chapter of the report describes the process of defining character areas for St Helier using a multi-stage urban design analysis of the town. Five general categories of assessment were used, each with a number of sub-categories. These were as follows: •

context – topography, boundaries/edges, landmarks, sea-views

•

grain, scale and texture – figure field, frontage width, frontage setback, building height

•

use and activity – land use, street activity, waterfront, population density

•

spatial issues – places, green space, public realm

•

built heritage – historic value, listed buildings, architectural character

In addition to these, an appraisal was carried out of the town’s main approaches and entrance points. CONTEXT Topography: St Helier has a highly distinctive setting occupying low ground around the base of a granite outcrop on which sits Fort Regent. The town is generally contained by the steep escarpment slopes of Jersey’s East and Central Plateau to the north east and west. The sea context is varied and interesting with the broad sandy open St Aubin’s Bay to the west contrasting with the more rugged seascape visible from Havre des Pas, particularly at low tide. The escarpment slopes, sea fringes and granite outcrop of Fort Regent combine to create strong containment. Boundaries and Edges: The town is defined and shaped by some very strong edges and boundaries. The predominant edge is represented by the coastline with an especially hard edge along the built quayside. This is reinforced by a sequence of progressively softer edges represented by the beach, rocks and waterline. The rising slopes to the west, north and east of the town provides another distinctive edge, defining a dish-shaped hollow in which the town sits. Although the town’s buildings now flow up and over the top of the slopes, it still provides a strong defining edge - a solid backdrop that ‘contains’ and embraces the town. The land mass on which Fort Regent is perched also acts as a partial edge. The rocky outcrop forms a wedge that intrudes into the town centre and creates a physical separation between the town centre and harbour areas and the eastern suburbs. Other important edges are formed by the primary road network. The most significant examples of this are Victoria Avenue/Esplanade

and the Ring Road where the physical scale of the roads and the level of traffic create dominant corridors that act as powerful boundaries or barriers that cut through the urban matrix. Landmarks: The town has a range of landmark buildings and features which take on different roles, as follows: Iconic landmarks – these are the most conspicuous and best known landmarks of the town that often become icons or emblems for the place. Images of these landmarks appear frequently in postcards or marketing material so that they are often recognisable even to people who have not been to Jersey. They have a strong influence on the character of the town as a whole and include:  Elizabeth Castle  Fort Regent  Victoria College  St Thomas' Church  Almorah and Victoria Crescent  La Collette power station chimney Major local landmarks – these are landmarks that are well known to Jersey residents, which are easily recognised and useful for orientation or wayfinding. They include distinctive buildings or structures that are often in prominent locations and have a strong influence on the identity of distinct parts of the town. They include:  Le Havre de Pas pool  New flats on La Route de la Port Elizabeth/La Route de la Liberation  Abattoir and Tourism Office  Parish Church and States Buildings  Central Market  Wesley Grove Church  St Mark's Church  Town Park gasometer  General Hospital

Minor local landmarks – these are distinctive buildings or features that, because of their modest scale or discreet location, have a more localised influence than major landmarks. They are still useful for wayfinding but only affect the character of a localised area. There are potentially quite a number of these, but notable examples include: OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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 La Fregate  Opera House  Odeon Cinema  Stopford Road Masonic Hall  Brewery, Ann Street  Wesley Street chapel Sea Views Views to the sea reinforce the ‘island’ or ‘seaside town’ identity of St Helier but interestingly, although the sea is visible from a wide area round the margins of town, almost the entire town centre itself is denied views to the sea. Rather, from within the town centre, views to the rising ground of the escarpment or Fort Regent are much more significant. The reclaiming of land at the new Waterfront has meant that parts of the town that were previously closely connected to the water no longer have a visual connection with the sea. In those areas (most notably the Esplanade and abattoir area) the original configuration and strong sense of being a frontage for the town no longer applies and a new rationalisation will only emerge once anticipated new development takes place in adjoining areas. GRAIN, SCALE AND TEXTURE Figure Field: The figure field analysis distinct variations in line with the major stages of historical development of the town. This ranges from extremely small scale and dense in the old centre of the town to more open on the west, north and east slopes of the town as well as in the Havre des Pas and Georgetown areas. Frontage Width: An analysis of frontage width revealed a highly complex situation with clear patterns emerging although these appear to be generally unrelated to age, use or other obvious factors Frontage Setback: This analysis, based on no frontage setback compared to normal garden or other setback revealed a clear picture of the dense character of the centre of the town and the extent to which this spreads north – almost to the ring road in some cases. Building Height: Despite the great variety of building styles and forms in the town, there is a relatively high level of consistency in building height. The vast majority of buildings in St Helier are in the range of 2 ½ to 3 102 |

½ storeys (equivalent) regardless of their use or location within the town Exceptions to this include areas in the southern parts of the town where commercial pressures have pushed building heights up to 5 or 6 storeys. Taller buildings in this range are also found scattered along the lower reaches of the slopes that curve around the town, where they are seen against the solid backdrop of rising ground. The town is also peppered with a scattering of very tall buildings - high rises over 7 storeys tall and up to 14 or so, which are most commonly residential high rise flats, usually designed to optimise views to the sea. Some of these are visible from well beyond the town itself, but the often bland mid 20thC architecture means they lack distinctiveness and therefore do not act as true landmarks for St Helier. USE AND ACTIVITY Land Use: The analysis of land use was generalised to create broad sweeps of different activity rather than the detailed small scale patchwork that would have evolved from a detailed survey. Uses were categorised under eight headings – residential, mixed urban (general mixed use), public buildings, retail core, mixed industrial, business/office, leisure and vacant. On the basis that land use is a strong determinant of character, these created twelve separate character areas. Street Activity: Daytime activity is concentrated in the commercial heart of the town where people come to do business, shop and access services and local amenities. There is comparatively little residential use in this zone, so it is often relatively unpopulated at night. Night-time activity is concentrated a in a few specific locations where there are clusters of eating and drinking establishments and entertainment, at:  the Waterfront  Lewis Street/Kensington Place  the south end of the Parade and York Street  the Esplanade  the Conway Street area  the Weighbridge  Colomberie

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There are many shops and cafes that serve specific immigrant ethnic communities and these often have a strong influence on the character of the immediate area. These small nodes are gathering points for certain communities but are comparatively small scale and scattered throughout the town; there are no identifiable "ethnic neighbourhoods" as such in St Helier. There are one or two locations in town where young people gather to socialise. Observation indicates that Snow Hill is a popular meeting point for groups of young people who linger to chat close to where there are food outlets and public toilets. The skateboard and trampoline parks at Les Jardins de la Mer are also popular, where it is possible to take advantage of the additional facilities at Le Fregate and the Waterfront leisure development. Waterfront: St Helier’s waterfront has been a central influence on the development of the town and its culture; the waterfront location is fundamental to its identity as the capital of an island state, a seaside town and an historic harbour town. The water’s edge has been modified repeatedly over time through reclamation, land shaping and the construction of basins, ramps, quays, retaining structures and sea defences. It serves many different functions, being used for a mix of transportation, industry, manufacturing, commercial and leisure uses. As a linear space it is complex, diverse and intriguing, with many examples to be seen of features from all stages of the sequential evolution of the waterfront from its earliest beginnings to the present day. The actual edge varies in character depending on adjacent uses, the scale and character of architecture and the treatment of the quayside environment. It divides up into five main character zones: Havre de Pas - an historic seaside resort that has a great range of architectural styles but that, taken as a whole, represents a charming, harmonious townscape with an attractive human scale. The richness of detail and ornamentation on key buildings plus the promenade treatment along the sea edge give it a distinctive Victorian seaside character. Havre de Pas is focused on the curved expanse of St Clement’s Bay with the central feature of the iconic 1930’s swimming pool and pier. La Collette - a purely functional industrial and storage area. A place

of work that is not accessible to the public but that has a significant visual impact, not least because of the dramatic scale and robust style of the power station chimney. Historic Harbour - this includes the Old French and English Harbours where there is a strong sense of the maritime functions of historic St Helier. This area is typified by large scale robust treatments. Massive blocks of granite are used for retaining walls, quayside paving and mooring posts, with cast iron used for railings, bollards and dockside paraphernalia. The area accommodates both commercial and leisure maritime activities which create an evocative colourful and vibrant atmosphere. The character of the area is enhanced by the huge diversity of boats both on the quayside and in the water, the assorted chandlery scattered about and the collection of sculptural navigation equipment at key vantage points on the pierheads. Reclaimed/The Waterfront - recently reclaimed land that is partially complete but with gap sites awaiting development. This area does not itself have clear defining characteristics at present but is identifiable largely because it is different from the adjoining stronger and more historic areas. The reclaimed area accommodates a large new marina, portrelated buildings, new residential blocks, a leisure centre and a new promenade and park. The character of the area is being shaped in large part by the distinctive late 20thC style of the various buildings and the public realm, but the ultimate overarching character of the place will only transpire on completion of the wider scheme. West Esplanade - a broad sweeping esplanade running west from the Les Jardins de la Mer. It comprises a linear promenade space with wide open views southwards to the beach, sea and sky of St Aubin’s Bay. It is characterised by a simple, robust treatment with a distinctive string of lights adding a somewhat jaunty seaside theme. This is a place primarily for walking, running or cycling and is used as a continuous vantage point from which to take in scenic views to the sea and Elizabeth Castle or landmark features inland and across the bay. Population Density: Population density information provided a further insight into levels of use and activity. Although information was somewhat patchy, the OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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highest densities of residential population lay within the ring road to the north of the town centre. SPATIAL ISSUES Places: The places (and areas) identified in this part of the analysis were compiled from a range of observations on what are significant parts of the town. These may be meeting places, evening economy locations, general areas that have been referred to in conversation or places with cultural significance. This part of the analysis will continue into the next stage of the study and should not be regarded as complete. Green Space: Although St Helier itself is densely built up, it is surrounded by extensive open space, with the broad expanses of St Aubin’s Bay and St Clement’s Bay to the south and open agricultural countryside to the north. The sea and countryside are fundamental determinants of character for the whole island as well as St Helier itself. The steeply rising ground that defines the town to the west, north and east is colonised by significant groups of trees and provides an important green backdrop to the built up area. Likewise, the vegetated slopes of Fort Regent provide an important ecological resource and contribute softness and greenery to many otherwise hard urban views. Some groups of trees in the town have a significant influence on the character of particular areas. Notable examples of distinctive groups of trees with this quality include the mature trees at the Rouge Bouillon roundabout, trees on Great Union Road and others at the north end of Val Plaisant. In some locations there are striking examples of individual trees affecting the character of streets; these include large specimens at the junction of Great Union Road/Aquila Road and on St Saviour’s Road opposite the Apollo Hotel. Formal green space within the town comes in different forms and includes the following: The Parade - a formal green space mostly laid out to lawns but including a popular play area and distinctive, colourful seasonal bedding displays. As the site of several significant monuments, it has a civic as well as amenity function. The geometric layout, the style of certain adjacent buildings (eg at the Union Street/Parade 104 |

junction) and strong avenue planting around the edges give it a distinctly continental air. The Parade has become the name of the area rather than just the space, which reflects its impact on the character of the wider area. Les Jardins de la Mer – a contemporary space, recently completed, that incorporates a dynamic water feature, maze, decorative planting and seating, alongside trampoline and skateboarding facilities. The activities provided mean that this is an important destination at the western edge of the town. The eye-catching Le Fregate building also contributes to the role of this space as a place to gather and linger, especially during the warmer months. The contemporary styling of the space complements that of the wider Waterfront development which has established a distinctly different character area from those in the adjacent historic parts of the town. Green Street Cemetery - an historic cemetery that is no longer used for burials but has instead become a treasured urban wild area. The amenity of the space is compromised by the poor environment of the adjacent multi-storey car park but the space itself is interesting for the tombstones that give historical insights as well as the abundant wildlife and colonising plant species. Howard Davis Park - a traditional park located in St Saviour’s just on the boundary of St Helier. This space provides a formal and decorative park with large lawn areas and well-maintained ornamental planting. It has a small bandstand that is used for concerts and outdoor film events. The park is surrounded by busy roads and enclosed within high walls and so is generally inward-looking. Consequently, the park’s influence on the character of the surrounding area is relatively limited and is only significant at the western entrance where ornamental gates act as a focal point at an important junction. Springfield Stadium - a football ground with a range of indoor and outdoor sports facilities. It is also a venue for conferences and other exhibitions or shows that require large level open spaces. The stadium building itself is large and conspicuous and so exerts a direct influence over the Springfield Road/Janvrin Road area. On match or event days the high levels of activity focused on the park means that its influence is more widely felt throughout the area.

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Public Realm: The selection of materials for the carriageway and footways, how the street is lit and the presence of seating, signage and planting all contribute to the character of St Helier streets. As might be expected, generally, the more peripheral the street, the more ‘ordinary’ or utilitarian it becomes. Streets in the heart of the town centre are therefore most likely to have been pedestrianised, repaved and embellished, reflecting their greater status in the street hierarchy. There are a number of especially distinctive design features that distinguish St Helier streetscapes from those found on the mainland, some of which perhaps reflect a more continental approach:  small scale, discretely-placed road signage  the use of moveable benches in public spaces  high quality stonework in walls, floors and benches (often using local granite)  'stabilisé’ surface in public spaces  attention to detail in surface laying (eg the ubiquitous struck joints) There are distinct zones of streetscape character that arise from the colour, style and arrangement of the street environment that is, in turn, influenced by the period in which the scheme was implemented. The key character zones can be described as follows: Basic utilitarian - treated in a simple and functional way with concrete or asphalt (black or red) footways and asphalt on the carriageway. Kerbs are usually granite. High quality utilitarian - treated simply with asphalt on the carriageways and stone kerbs but enhanced with granite on the footways. Historic harbour-side - areas around the historic English and French harbours and along the Victoria Avenue esplanade where very robust, large scale stonework is used. The rich brown and ochretoned local granite is the predominant material and is used in a variety of ways including orthogonally shaped, random sized blocks in the harbour walls, massive single blocks for quay stones and stanchions and patterns of small scale units for paved surfaces.

1980s pedestrianisation - short lengths of pedestrianised streets treated in a style fashionable in the 1980s using coloured paviors and seating grouped around trees in planters. These areas are showing signs of deterioration and beginning to look rather ‘tired’ in places. 1990s pedestrianisation - the pedestrianised heart of St Helier, which has been paved in dark red/brown granite cubes and slabs with white marble trim patterns. This scheme is visually distinctive and has provided a functional, long lasting and attractive floor surface that complements the scale and character of the main shopping streets. This scheme adds to the legibility of the town centre by ‘flagging’ the main shopping spine. Contemporary waterfront - a simple palette based mainly on manmade materials but with stone used in places as a higher quality finish. Small scale paviors and concrete slabs are used for pedestrian surfaces, with stone used for trim and as a facing applied to walls. Contemporary light fittings set into surfaces, in bollards and lamp standards distinguish these spaces from those in other parts of the town. Public Spaces: There is a network of open spaces in the town that includes soft and hard spaces, parks and squares. Some spaces are notable for their cultural significance (eg Royal Square and Liberation Square), whilst other are more functional or decorative in nature (eg Jardin de Mer and Wests’ Centre). Many spaces have a significant impact on the character of the surrounding area and in some cases even become the defining element of a wider neighbourhood, as in the case of The Parade. There is a noticeable difference between the way the historic spaces of the town function within the network as compared with more recently created public open space. The historic spaces have arisen as a natural product of the evolution of the surrounding townscape and are therefore inextricable components of the matrix of buildings and spaces. The historic spaces and streets therefore tend to be well-connected and it is possible to flow readily from one to the other through a seamless sequence of spaces and places. Contemporary spaces however, have often arisen in quite a different manner, as a conscious carving out of space or the exploitation of gap site opportunities. As a consequence they are frequently rather isolated by comparison with historic spaces, and not well-connected to the pedestrian network or the wider space network. OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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BUILT HERITAGE Historic Value: Our analysis used two categories of historic value: •

high quality architecture (with medium to high percentage of original fabric intact)

•

good quality architecture (with medium percentage of original fabric extant)

These were supplemented by groupings of early 18th century buildings, old streets and second generation streets, and by major post war redevelopment sites. This analysis produced distinct groupings of high. medium and low value areas. Registered Buildings: We are aware that the analysis information on Listed Buildings presented to the Steering Group at its meeting in May was based on inaccurate information. We have not corrected this but it is unlikely that the character assessment would change. Predominant Architectural Character The building styles of St Helier are sufficiently varied and intermixed that architectural eclecticism virtually becomes a defining characteristic of the town. It is therefore difficult to identify distinct neighbourhoods of singular architectural style or quality. It is possible nevertheless to identify certain patterns and consistencies which can be used to loosely define areas within which a predominant architectural character can be identified. This process results in a mosaic of 8 key character areas, as follows: •

Victorian/Edwardian commercial

•

Regency/Victorian middle class residential

•

High Victorian middle class residential

•

Victorian working class residential with

•

Victorian middle class residential

•

Mixed 19thc commercial/warehouse

•

Regency/Victorian resort

•

Early 19thc maritime/industrial

GROUPING AND ANALYSIS Summary analysis drawings were produced for each of the five categories of context, grain, scale and texture, use and activity, 106 |

spatial issues, and built heritage showing the development of character areas based on the criteria selected. These were then reanalysed to produce a provisional plan of Ten Character Areas for St Helier. The layers of analysis for each category, the grouped analysis and the final combined analysis are shown on the following pages. These character areas themselves are described in detail in the subsequent chapter.

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Character Appraisal: context topography

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Character Appraisal: context boundaries and edges

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Character Appraisal: context landmarks

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Character Appraisal: context seaviews

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Character Appraisal: context summary

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Character Appraisal: grain, scale and texture figure field

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Character Appraisal: grain, scale and texture frontage width

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Character Appraisal: grain, scale and texture frontage setback

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Character Appraisal: grain, scale and texture building height

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Character Appraisal: grain, scale and texture summary

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Character Appraisal: use and activity land use

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Character Appraisal: use and activity street activity

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Character Appraisal: use and activity waterfront analysis

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Character Appraisal: use and activity population density

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Character Appraisal: use and activity summary

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Character Appraisal: spatial issues places

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Character Appraisal: spatial issues green space

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Character Appraisal: spatial issues public realm

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Character Appraisal: spatial issues summary

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Character Appraisal: built heritage historic value

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Character Appraisal: built heritage listed buildings

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Character Appraisal: built heritage architectural character

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Character Appraisal: built heritage summary

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Character Appraisal: provisional character areas

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Character Appraisal: character areas without interstices

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the character areas The Character Areas in Context St Helier is Jersey’s principal settlement and seat of Government. Although it is the largest town on the island and occupies a substantial area, it is not particularly visible from the island’s countryside – even at quite close range. This is largely due to the historical position of the town in a sheltering landscape of escarpment and flood plain. Today the built up area associated with St Helier stretches for a considerable distance to the east towards Green Island, west to First Tower and to the north where it has burst out of the valleys that originally defined it. Although the town is not intrusive in the countryside, its approaches are not particularly well defined - although they are never unpleasant.

boundary walls, areas of open space and seafronts and views starts to build into a complex pattern which is varied and interesting. Closer to St Helier around St Saviour and St Clements then into Havre des Pas, larger buildings, often in a 1920-30s streamline style, start to mark out road junctions and become focal points or waymarkers along the route. This makes the process of entering the town very legible as well as interesting.

It is outwith the scope of this study to deal with the more remote approaches to the town but they are certainly important as they start to define the sense of arrival (or lack of arrival) in St Helier and the first experience of its character areas. The figure opposite shows a simple character assessment of the main routes into St Helier and the location of the town’s positive and negative entry points. Sea Approach: The sea route into the town is particularly poor through the new waterfront area – it is generally accepted that docks and ferry terminals are not going to be things of great beauty but the problem here is not the traditional harbour infrastructure and the functional tradition of maritime building. It is the contemporary environment of roadscape, tropical plants and the unfinished nonstreet nature of the new waterfront. West Approaches: The west approach to the town is generally very positive. There is a strong sense of expectation as the outline of Fort Regent becomes clearer and St Aubin’s Bay and Elizabeth Castle are magnificent features to the right. This changes in the vicinity of the People’s Park where the road splits into three – left towards the Parade, right onto the Route de la Liberation or, with difficulty, straight on along the Esplanade which was the original and easily read entrance to the town. The issue here is that the route towards the Parade seems illogical and robs the traveller of the experience of getting closer to what seems to be the most prominent feature of the town – Fort Regent. Equally the anticlimax of the Route de la Liberation is a poor approach to the town. East Approaches: The east approach to St Helier is more complex. From as far east as Green Island, the arrangement of buildings, OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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west approach: patterns of built and unbuilt

North Approaches: Routes into St Helier from the north share a gradual build up of suburb then a decent into the town along one of the valleys. Again, boundary walls, landscape and changes of level are important elements of the experience and these are mostly positive. Entry Points: Most of St Helier’s entry points are reasonably positive. These include: • • • • • •

St Aubin’s Road and Cheapside at the Parade Queen’s Road and Rouge Bouillon Trinity Hill and Rouge Bouillon St Saviour’s Road and La Motte Street St Clement’s Road and Havre des Pas Mont Millias, Don Road and Colomberie

Negative entry points include: • • • • • • •

La Route du Fort and Green Street

Victoria Avenue, St Aubin’s Road and La Route de la Liberation St Saviour’s Hill and Springfield Road La Route de la Fort, Tunnel and Green Street La Route de la Fort and Georgetown Road La Route du Port Elizabeth and La Route de la Liberation Ferry Terminal and La Route du Port Elizabeth La Route de la Liberation and the Weighbridge

The negative entry points are almost entirely caused by excessive roads infrastructure or a breakdown in urban structure, form and legibility. The remedies are to do the reverse – reduce roads infrastructure, build better urban form and concentrate on simplicity and readability. The following pages describe the character areas in detail. east approach: Grouville coast road - patterns of paint and granite

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lost logic: Esplanade and La Route de la Liberation

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Character Area 1: West Esplanade and Elizabeth Castle

Elizabeth Castle

Description: This area is one of the most positive and iconic parts of St Helier. The area is defined by extensive scenic, panoramic views across St Aubin’s Bay and southwards to open sea. The large tidal range reveals a deep sandy beach at low tide and Elizabeth Castle, one of the most memorable and important landmarks of St Helier. occupies a rocky outcrop linked to the shore by a causeway that is passable only at low tide. The area marks the western edge of St Helier and there is an important inter-relationship between this area and the New Waterfront (Character Area 6) and the Parade and Esplanade (Character Area 7). The boundaries between St Helier and First Tower are blurred by continuous development and the Town Edges and Slopes (Character Area 10) has a marked effect on this area. The sea wall represents an abrupt and significant edge. There is a distinct promenade character created by the robust sea wall, with evenly spaced lighting columns strung with coloured lights and traditional timber shelters at regular intervals.

St Aubin’s Bay

The character of the area is dominated by natural features - open expanses of sea and sky – and these contrast with manmade sea walls and the remains of a Victorian bathing pool, the causeway and the cluster of structures that make up Elizabeth Castle and the Hermitage. Activity in this area is predominantly leisure-related, especially walking and cycling along the waterfront where ramps and steps give access to the beach. It is an important starting point for tourists walking or being ferried to Elizabeth Castle. The Castle is a significant and recognisable place which is special not only because of its rugged outline and picturesque nature but also because it is a place apart from the rest of the town – partly inaccessible – setting up a strong sense of here and there. The Castle and related buildings are significant historical structures and significant cultural sites, having played a role from the earliest origins of St Helier through to the Second World War. It is regrettable that the means of access to such a special area at high tide is on a gaudily painted amphibious vehicle. The Petit Train is also an unpleasant and trivial feature of an otherwise stunning environment.

looking back to St Helier from Elizabeth Castle

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Strengths and Weaknesses: 1 Bay Edge Promenade • •

attractive feature of the approach to St Helier pleasant place to walk or cycle

2 Scenery • •

scenic views across St Aubin’s Bay expansive views of sea and sky

3 Green Edge • • •

important green break in built up edge along Esplanade positive contribution to town approach strong starting point of green rim around St Helier

4 Quarry •

obtrusive corrosion of positive landscape feature at key arrival point

5 Arrival Point • • •

fragmented buildings and spaces traffic-dominated poor/mixed image

6 Gateway To Elizabeth Castle • • •

important pedestrian gathering point robust historical materials weak synergy with adjoining spaces

7 Incomplete Edge •

unattractive vacant sites as backdrop to bay edge

8 Causeway •

appealing experience of route only available at low tide

9 Elizabeth Castle • •

iconic cultural and scenic landmark major island visitor attraction

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Below : St Aubin’s Bay from Elizabeth Castle Above: Interior of Le Fregate

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‘Freedom Tree’ by Richard Perry and St Aubin’s Bay La Collette and the Harbours from Elizabeth Castle

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Character Area 2: La Collette Description: La Collette occupies reclaimed ground that extends the natural promontory dividing St Aubinâ&#x20AC;&#x2122;s Bay from St Clementâ&#x20AC;&#x2122;s Bay. It is surrounded on three sides by the sea. La Collette power station chimney is an iconic landmark visible from throughout St Helier and beyond. Views to La Collette are more significant than views from La Collette to the surrounding area. La Collette is an area defined by its function. There are no streets as such and buildings and roads are laid out to facilitate vehicle movements and industrial processes. On the west side, industrial estates and harbours dominate while to the east and south, storage areas predominate. This is not a particularly public area - daytime business activity is the norm with little other public activity except for coastal walkway/cycleway cutting though on the route from Havre des Pas to the Old Harbours. The area is therefore physically and functionally different from the rest of St Helier.

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Strengths and Weaknesses: 1 Power Station Chimney • •

powerful, large scale landmark attractive part of Town Hill silhouette composition

2 Long Distance Views •

tower visible from far along the coast and inland

3 Industrial Estate •

physically and visually discreet from rest of town

4 Mount Bingham • • •

attractive tree and garden planting helpful green setting for power station attractive vehicle route linking town and Havre des Pas

5 Ferry Route •

interesting views to working harbour

6 Linking Path •

poor amenity for footpath/cycle link through La Collette

7 Vantage Points •

excellent views to harbours/town and Havre des Pas

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La Collette from South Hill

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Character Area 3: Havre des Pas

The Pool

Description: Havre des Pas occupies level coastal land on the eastern edge of St Helier. It is one of St Helier’s most distinctive places and is one of the most pleasant areas to spend time in. A large tidal range creates a deep beach at low tide studded with extensive ranges of rocky outcrops. The coastline of the bay is dramatic and is a more than usually significant edge between land and water. There are sweeping views across St Clement’s Bay and southwards to the open sea and views of the sea along key north-south streets bring a seaside flavour well inland. This is a predominantly historic area with its origins in the early part of the 19th century. There is a high proportion of High Victorian middle class residential buildings and numerous streets where a high proportion of original fabric is extant. The decorative Victorian guesthouses and hotels on the waterfront give a particularly strong and identifiable character to the whole area.

Residential street in Havre des Pas

It is a medium density built up area mostly comprised of terraces and semi-detached villas with a range of wide and narrow plot widths. Buildings are predominantly set back from the street with small gardens in front. Most buildings are predominantly 2.5 – 3.5 storeys with a cluster of tall buildings on the water’s edge and two high rise residential blocks. The distinctive architecture and location of the Havre des Pas bathing pool makes it a major local landmark and focal point in the bay. Uses throughout the area predominantly residential and tourism or leisure related. The waterfront, beach and bathing pool are magnets for visitors and residents in the summertime and the moderately dense residential population increases significantly during holiday periods

Decorative Lighting

Havre des Pas is an identifiable, named neighbourhood and is part of the wider St Clement’s Bay water’s edge open space. The public realm is predominantly simple and functional but with a characteristic promenade and “seaside town” treatment along the water’s edge; there is an example of a contemporary themed ‘pocket park’ on the waterfront. Howard Davis Park is a well-used formal public green space that has an additional role as a venue for events. OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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Strengths and Weaknesses: 1 Green Street Cemetery • •

a place of significant historical and ecological interest poor edges and access points

2 Howard Davis Park • •

popular and well-used park and event space valuable public green open space

3 Green Street Car Park • • •

poor quality environment intimidating , especially after dark poorly integrated with surrounding townscape

4 Historic Buildings • • •

significant areas of intact historic architecture generally well-kept attractive decorative Victorian seaside theme on waterfront

5 Promenade • •

pleasant promenade along bay edge environmental quality beginning to decline

6 Scenery • •

scenic views across St Clement’s Bay expansive views to sea, sky and rocky foreshore

7 Bathing Pool • •

striking landmark structure and focus of activity original integrity may be compromised by contemporary alterations

8 Positive Arrival Point • •

attractive, appropriate approach sequence legible arrival point

9 Negative Arrival Points • •

poor legibility fragmented, traffic-dominated spaces

10 Green Edge •

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residential street in Havre des Pas leading to sea

Green Street cemetery

east from the Pool

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Character Area 4: Fort Regent

Fort Regent leisure facility

Description: Fort Regent is a large, steep-sided rocky outcrop, topped with historic fortifications and a 20th century modernist roof structure. It is an identifiable and named ‘place’. Its silhouette is one of the most recognisable images of St Helier and it is an important vantage point with 360 degree views of the sea, St Aubin’s and St Clement’s Bays, the town centre and north to the countryside beyond. It is an iconic landmark. The rock outcrop creates a series of edges that are important in separating the main part of St Helier from the Havre des Pas area. Fort Regent is a major community leisure facility that acts as a significant draw. However the limited and discreet nature of the access to the Fort means that very little visible activity is generated in surrounding areas although a complex of States offices and the Pier Road car park generate some street activity during business hours.

view west from Fort Regent

In addition to being a significant historic site, it is also a significant green feature in the town and an environmental resource which accommodates a variety of recreational open spaces.

view north west from Fort Regent

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Strengths and Weaknesses: 1 Landmark Silhouette • •

Fort Regent/Mount Bingham provide a memorable, iconic skyline blocky pool building interrupts otherwise attractive silhouette

2 Vantage Points •

hilltop provides 3600 views to town, sea and countryside

3 The Cut • •

intriguing historical feature and useful linking route can be intimidating after dark

4 Nodal Point • •

transport hub and natural meeting place poor environmental quality

5 Regent Road •

historical street with distinctive character

6 Tunnel •

distinct boundary between town centre and Havre des Pas

7 Fort Regent • • •

valuable historical site unique, eye-catching modern roof structure access to Leisure Centre is limited and awkward

8 Green Space •

important environmental and leisure resource

9 Mount Bingham • •

attractive trees and ornamental planting scenic views to St Aubin’s and St Clement’s Bays

10 States Offices •

poor setting and arrival spaces

11 Pier Road Car Park • •

overly dominant large scale structure on the front of Town Hill dated building style

12 Residential Development • •

unsympathetic, bulky massing inappropriate, fussy facade detailing

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smaller scale domestic buildings on Regent Road

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Snowhill looking up to Fort Regent

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Character Area 5: Old Harbours Description: The old harbours occupy the area lying to the west of the steeply rising ground of Fort Regent. The water’s edge is now entirely manmade and represents a strong, indented edge defining the southern limits of the town. A major road now separates the harbours from the historic town edge and Esplanade and a series of colourful, visually prominent new apartment blocks on the western edge of the area are local landmarks. Views into and across the various harbour basins provide important visual reminders of the historic role of St Helier as a harbour town. The Old Harbours have strong, if under-developed links with adjoining character areas, especially the Town Centre. The area has a distinctive and positive identity as an historic harbour area and the water edges providing attractive informal public open space which looks out over moored boats and to the sea beyond. The area also includes examples of contemporary public open space at Liberation Square and the Steam Clock. The harbour-side is a rich and attractive environment with distinctive qualities that arise from the use of especially robust materials, with traditional detailing and evident craftsmanship.

the Old Harbours

The piers and harbour structures originate from the early 19th century and retain much of their period detailing. Distinctive early 19th century maritime/industrial buildings have a strong presence, especially where they create an uninterrupted frontage along the east side of the harbour; the impact of this elevation is exaggerated in places by strong colour treatments. Uses in the area are mostly industrial, with some commercial activity and a small number of residential properties. The various harbours are used for both leisure and commercial purposes and the harbour edges are mostly used for storing equipment and boat maintenance. Northern and eastern areas are busy public areas during working hours and there is a nightlife focus at the Weighbridge. Generally it has an active, colourful, living water’s edge.

the Old Harbours

The area is predominantly 2.5 – 3.5 storey with taller buildings on the northern margins at the interface with the town centre and on the rising ground of South Hill. The area contains a strip of dense development set back from the harbour edges and there is a significant number of broad plots containing large scale industrial or warehouse buildings. Frontages are usually flush with the pavement. OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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Strengths and Weaknesses:

Maritime Museum

1 Museums • •

high quality Maritime and Occupation Tapestry Museums key visitor draws in the heart of the harbour area

2 Steam Clock • •

well-maintained public space with steam clock feature space isolated by busy roads on two sides

3 La Route De La Liberation •

heavily-trafficked through-route severs waterfront from town centre

towards recent residential development

4 Commercial Buildings •

strong cohesive frontage of robust warehouse buildings

5 Town Hill Backdrop • •

hillside forms dramatic backdrop to harbour views incorporates impressive historic stone structures

6 Historic Harbours • • •

many retained historical buildings, structures and artefacts attractive old harbour atmosphere colourful and lively with ongoing harbour uses

7 Marinas • •

the English Harbour

water busy with boats of various sizes and types high levels of activity, especially during summer months

8 New Waterfront Apartments • • • •

colourful new buildings; establishes a new townscape character brings new residents to the harbour area wider development not yet complete not yet well-integrated with historic town or old harbour area

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English and French Harbours

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Character Area 6: New Waterfront

Aqua Splash

Description: The new waterfront occupies mostly land reclaimed from the sea creating an extended and realigned coastline which has increased the distance between the historic town and the sea. The new waterfront is distinguishable from the rest of the town by its contemporary architecture and lack of traditional street layout. Much of the area is vacant but is intended for development. There are examples of contemporary public open spaces at Les Jardins de Mer and adjacent to the Aqua Splash water facility. Extensive public areas are paved with palettes of manmade materials and this has established a particular character for the new waterfront which is quite unlike traditional St Helier. Distinctive new buildings and open spaces have created a series of landmarks and there are attractive views internally not only to the new marina but also to St Aubin’s Bay, Elizabeth Castle and back to the Esplanade.

La Route du Port Elizabeth

The area is focused around a major new leisure development with pool, cinema and eating and drinking facilities It is a focal point for night time activity although this is mostly internal. There is some walking and cycling along the water’s edge and a focal point for young people at Les Jardins de Mer. Industrial and transport-related activities take place on the water’s edge to the south around the ferry landing point. The development and therefore the ultimate grain of the area is incomplete. Completed buildings are relatively dispersed and await a uniting structure. There is little discernable evidence of plot width and buildings tend to be between 4 – 6 storeys in height and set back from the street edge, often with planting between the road and the building.

Courtyards of residential development

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quality leisure development

Strengths and Weaknesses 1 Les Jardins De La Mer • contemporary public space with planting, paths and water feature • La Frigate provides food, drinks, toilets • useful focal point/amenity at western end of harbour area • isolated feel; suffers from incomplete surroundings 2 Interface • layers of severance created by heavy traffic and road in cut • tenuous relationship between original Esplanade and new waterfront 3 Waterfront Centre • strong focus for leisure activities, including evening entertainment • indoor and outdoor spaces well-used • isolated from other town centre facilities

waterfront residential development

4 La Route Du Port Elizabeth • a road rather than an inhabited, active street • municipal highway character reinforced by ornamental roadside planting • southern reaches present poor first impressions for ferry passengers 5 Ferry Port • tidy but sterile arrival space • weak sense of place 6 Marina • new infrastructure • attractive, busy marina with great variety of boats • prestigious brands bring sense of glamour 7 Waterfront Walk/Cycleway • extensive paved routes for pedestrians and cyclists • some pier areas can be closed off • extensive open views to Elizabeth Castle and St Aubin’s Bay 8 Vacant Sites • empty sites yet to be developed • gives a desolate atmosphere to the wider area

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exciting new open spaces

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recent buildings on the Esplanade

Character Area 7: The Parade and Esplanade Description: This Character Area is situated on low-lying level land in the western part of the town. The Esplanade represents an historic built edge that originally formed the southern elevation of the town facing the sea. Parts of this area originated in the late 18th century and some of the original street and block pattern is retained. The area includes some of the earliest St Helier buildings many of which are registered. There is a mix of Victorian middle and working class residential buildings to the west and north with early 19th century maritime and industrial buildings to the south. There are also significant areas of post-war redevelopment, especially between Gloucester Street and Kensington Place.

the Parade

The hospital acts as a major local landmark, both as a large scale and recognisable building but also as an important public facility while the Opera House is a minor local landmark. There are attractive open views across the formal green space of the Parade. The park is an identifiable ‘place’ that lends its name to the wider area and the Parade is the only significant public green space in the town centre. The character of the park stems from the formal arrangements of street trees around areas of lawn, augmented with seasonal ornamental flower displays. There is a hard paved space at the south which is partially used for café terraces. Several key town memorials are located in the park and this gives it civic and cultural significance. The hospital is a key land use and is surrounded by a mix of residential and commercial uses. Business and office use predominates in the east of the area. The area is busy during working hours and there are small focal points where night time activities occur at clusters of restaurants or bars. There is a relatively small but growing residential population. The area around the park is densely built up on an historic street pattern and comprises of a mix of narrow and wide plot widths. Frontages are virtually always flush with the pavement and most buildings in the area are 2.5 – 3.5 storeys but there is a sizeable zone of 4-6 storey offices and civic buildings between the Parade and the Esplanade. The Esplanade has a particularly prominent and unattractive collection of buildings constructed over the last 40 years which contribute nothing to street activity along this important axis. OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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Strengths and Weaknesses 1 The Parade • a group of pleasant formal green spaces with a continental feel • well-used by all sectors of the community • serves cultural, civic and leisure functions • formality reinforced by attractive street trees 2 Cenotaph Square • paved space with central memorial feature • pronounced continental character to space and surrounding buildings 3 Parade/Town Centre Boundary • series of gap sites and altered street pattern breaks down urban grain • weak visual and physical links between town core and Parade 4 Seale Street/Sand Street • intricate, historic street sequence leading to town centre • distinct atmosphere from small cafes and ethnic shops compromised by car park

9 Lewis Street/Kensington Place • groups of restaurants and bars create a destination • small scale residential potentially under threat from larger scale redevelopment 10 Grand Hotel • visually prominent and historical landmark • undermined by poor alterations to elevation and immediate setting 11 Peterson Road • attractive composition of good historical buildings and green space • compromised by heavy traffic 12 Arrival Point • good first impressions with views to the Parade 13 Architectural Quality • streets of intact Victorian terraces lend strong character to wider area Peirson Street

5 Sand Street Car Park • poor termination to key view west from King Street • unsympathetic infill building • inactive brutal street frontage 6 Esplanade • original waterfront identity now obsolete • building and street quality variable • ‘off pitch’ compared to town centre • some evening activity but can be intimidating after dark • attractive historical industrial buildings to rear; some creatively adapted 7 Transition Zone • isolated and underused sites lie between old and new waterfronts 8 New Development • contemporary buildings complement New Waterfront architecture • large scale and bright colours overwhelm adjacent older buildings

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Gloucester Street

The Parade looking towards Cheapside

General view of the Parade and Esplanade from Westmount Road

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Character Area 8: Town Centre Core Description: The town centre lies in the centre of the low-lying, bowl-shaped basin where St Helier originated. The core contains a series of distinctive places that link together creating a complex network of streets and spaces of varying scale and character. The area incorporates the civic heart of St Helier which is focused around Royal Square, the Parish Church and the States Building. Royal Square is therefore the main civic/ceremonial space of the town.

development - these characteristics provide a visual consistency that overrides the diversity of architecture in the central area. The historic buildings are predominantly Victorian and Edwardian commercial buildings but they now heavily interspersed with a wide variety of 20th century buildings.

The States Buildings, Parish Church and Central Market are all major civic landmarks while Wesley Church is a distinctive building that acts as a major local landmark and the Arts Centre is a more minor local landmark. The core area is typified by tightly framed views defined by narrow streets and distant views to the east and south often terminate in the vegetated and partially built rising ground that surrounds the town. There are also examples of dramatic axial views terminating at landmark buildings, most notably: Halkett Place to Wesley Church and Beresford/Peter Street to the old Wesley Street Church. The network of pedestrianised streets and other incidental spaces are important components of the public open space of the town, being popular as places to pause, people-watch and socialise. The public realm is of a relatively high quality throughout the area; local granite has historically been used for kerbs and footways; more recent decorative stonework in the pedestrianised areas has created a new and distinctive streetscape character for the central area.

General views of the town centre core

The northern part of the core area is consistently 2.5 – 3.5 storeys with areas of taller buildings lying between the retail core and the harbour area. This is the town’s retail core and includes key civic functions and commercial activities - it is therefore the primary focus of daytime activity and a vibrant, colourful place during business hours. There is a small proportion of residential uses and clusters of bars or restaurants attract people to localised parts of the town centre at night. The town centre core contains a series of distinctive places that link to create an complex network of streets and spaces of varying scale and character. It is the most densely built up part of town and while historic narrow plots remain, many have become amalgamated to create larger, more commercially acceptable sites. Building frontages are virtually always flush with the pavement. The town centre core is the historic heart of the town and many of the streets, spaces and block patterns were shaped during the earliest days of St Helier’s OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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General view of the town centre core from Fort Regent

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Strengths and Weaknesses 1 Built Form • the historic heart of the town • dense, complex block pattern • organic and orthogonal street layouts overlie one another • high degree of consistency in building heights and facade rhythms • many examples of rich detailing and special features, especially on corners • retail/commercial heart lively during business hours • potential loss of grain in places through increasing plot size and massing 2 Space Sequence • interesting and intriguing sequences of streets and spaces • good variety of active/passive and traditional/modern spaces • many streets affected by high volumes of fast moving traffic 3 Streetscape • recent stone paving scheme brings high quality materials and distinct character • remnant 1980s paving is deteriorating • pedestrianised streets provide safe, comfortable places to linger • levels of clutter generally low, although perhaps increasing 4 Landmarks • includes many of the town’s most important landmark buildings and features • strong hierarchy of civic, cultural and social landmarks • many memorable places, spaces and features

• • •

a useful network of potentially attractive lanes and arcades some routes are open 24hrs but several are closed after hours quality and accessibility are variable

9 Snow Hill • an important transport hub; a natural junction and meeting point • poor street environment and disjointed, underused spaces 10 Weighbridge • transition between town centre and harbour • poor definition of spaces and routes • poor physical and perceptual links 11 Loss Of Grain • pockets of underused or vacant land undermine townscape qualities • vacant sites affect continuity of street activity • inappropriate development resulting in loss of traditional St Helier urban texture 12 Minden Street Car Park • the function and appearance of the building sterilises the surrounding area 13 Night Time Focus • clusters of bars and restaurants create animated ‘hotspots’ at night • some poor environment/lighting creates intimidating atmosphere after dark Royal Square

5 Civic Heart • a loose arrangement of gracious buildings and dignified spaces • a legible and distinctive civic focus 6 Axial Views • strong axial views are a feature of the town centre • Halkett Place is pre-eminent; others are weaker 7 Broad Street • attractive scale and spatial qualities • part of the important east-west chain of spaces from Snow Hill to the Parade • currently compromised by taxi rank and wheelie bin storage 8 Secondary Pedestrian Network OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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Town Church

Church House

Minden Street

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ST HELIER URBAN CHARACTER APPRAISAL

Character Area 9: Town Centre North Description: The town centre north area lies on low-lying but gentle rising land, defined by the escarpment slopes that surround much of St Helier and by the Ring Road that represents a significant boundary or barrier around the area’s northern flanks. St Thomas’s Church is an iconic landmark for the whole of St Helier and other significant landmarks include St Mark’s Church, the gasometer, the Odeon Cinema, the brewery on Ann Street and the Masonic Temple on Stopford Road. Axial, framed views along streets laid out in an orthogonal pattern are common in this area - there are distant views to the west, north and east of the vegetated and partially built up slopes of the escarpment. The area is predominantly residential in the north, with a higher proportion of commercial and retail uses in the south. There are also scattered examples of leisure, civic and light industrial and business uses providing a localised areas of mixed use character. Street activity is generally minimal although Springfield Stadium becomes a major generator of activity during key events. This area contains the highest density residential population in the town becoming less dense towards the margins.

variety of use and materials

The area is moderately densely built up with a variety of plot widths but a relatively high proportion of narrow plot widths compared to adjacent areas. Frontages are predominantly flush with the pavement in southern parts of this area with setbacks becoming more common further north - shallow hard or soft spaces between the road and building elevation are important features of certain key streets. The area is predominantly 2.5-3.5 storeys with scattered small groups of taller buildings including three high rise residential blocks. Notable ‘places’ in the Town Centre North area include Springfield Stadium and the site of the proposed Town Park. Most open space is private and there is very little public open space apart from the Stadium. Several streets comprise a high proportion of extant original fabric and west of Bath Street, Victorian working class residential buildings predominate; middle class Victorian residential buildings are more common in the east and Regency buildings are found in northern areas. There are many registered buildings. Basic utilitarian materials are used for streetscape.

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Strengths and Weaknesses:

Stopford Road

1 Springfield Stadium important leisure destination valuable large open public green space 2 Vacant Site • eyesores in prominent locations 3 High Victorian Housing Area • cohesive area of attractive Victorian terraces • much rich detailing and decorative colour treatments • generally well-looked after • scattered, unique and attractive workshops add to richness 4 Recent Development • massing, materials and elevation treatments unsympathetic to adjacent context

St Saviour’s Road

5 Town Park Site • vacant site awaiting development • distinctive landmark cinema building at west end 6 St Thomas’ Church • iconic landmark visible form throughout St Helier • important punctuating building on Val Plaisant 7 High Rise Flats • a breakdown in the urban grain • creates disaggregated street frontages and leaking spaces 8 Working Class Victorian Housing • a cohesive area of Victorian working class housing • repeated patterns of narrow streets and simple terraced houses • inappropriate alterations are resulting in loss of fabric • scattered, unique and attractive workshops add to richness 9 Specimen Trees important single mature trees or groups in prominent locations gives key junctions a distinctive character; aids legibility improves quality at key arrival points 10 Le Rouge Bouillon cluster of public services organisations busy through-route; strong defining corridor around the town centre some good trees and buildings but quality very mixed OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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near Gas Place

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Character Area 10: Town Centre Edges and Slopes Description: This character area centres on the steep slopes curving around the north, west and eastern margins of the town - the steeply sloping ground represents a significant boundary that defines the most densely built up part of the town. Several iconic landmark buildings perch on the slopes and ridges above the town and are visible from over a wide area – for example Victoria College and Almorah and Victoria Crescents. The rising ground forms an important green backdrop to many town centre street-scenes and there are important views from the higher ground down to the town roofscape as well as to the coast and sea beyond. Street activity is minimal except where public facilities (such as schools) draw large numbers of people at key times.

properties on Old St John’s Road

This character area contains few instantly recognisable ‘places’. There is little formal public open space - most open space is private or part of the landscape setting but some important semi-private resident’s gardens form part of the setting for formal building arrangements – for example at Almorah and Victoria Crescents. There is important greenery and some distinctive statuesque trees on the sloping ground and ridge (although tree cover is becoming significantly eroded in places). The grain is more dispersed than in central areas. This is a predominantly residential low density area which comprises mostly of villas or apartments set into gardens or other green space. Plots are generally larger than normal for St Helier and often encompass sizeable gardens. Buildings are usually set back from the pavement and are 2.5 - 3.5 storeys although there are scattered groups of taller buildings including a number of conspicuous tall landmark structures. Buildings often have a particular recognisable configuration - for example significant front garden space often hidden behind large stone or granite retaining walls. These walls often create very distinctive enclosing relationships with the narrow streets of the area. Buildings are predominantly 20th century and often undistinguished; however, there are some examples of important registered buildings, including set-piece terraces.

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Strengths and Weaknesses: 1 Green Edge • important green break in built up edge facing Esplanade • positive contribution to town approach • western extent of green rim around St Helier 2 Skyline Development • some buildings are especially visible where they break the skyline • in places, bulky massing has disturbed the integrity of the ridgeline 3 Tree-Covered Slopes • groups of trees provide an absorbent setting for buildings on sloping ground • trees make a visible and legible transition from the densely built up core to surrounding countryside 4 Prominent Buildings • massing, height and/or colour makes certain buildings especially conspicuous 5 Victoria College • strong and attractive landmark tower set within trees 6 Poor Arrival Points • fragmented urban grain and poor legibility • traffic-dominated spaces • poor/mixed first impressions 7 Positive Arrival Point • attractive, legible approach sequence • positive first impressions below: Rouge Bouillon defines edge of area

right: Almorah Terrace

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St John’s Road

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Character Area: Interstices These areas are zones which either overlap or act as buffers between character areas. They represent: • • •

areas in transition areas where a number of distinct character areas converged areas that were substantially different from surrounding established character areas but were not considered large enough to be separate character areas

In the second part of the report we have merged these interstices with the most appropriate character areas. Nevertheless their strengths and weaknesses are set out here for the sake of completeness.

Interstices at Green Street and Esplanade

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Strengths and Weaknesses: 1 Weighbridge • the interface between the town centre and the harbour • a significant historical and cultural site • contains important visitor destinations and town landmarks • space enclosure and definition to the south is poor • roads/traffic make a significant impact on the space and patterns of movement • the bus terminus creates a hostile central area

6 Tunnel East • large scale roundabout junction • new development fails to restore a robust urban context • poor legibility where three character areas meet 7 La Route Du Fort/Georgetown Junction • traffic-dominated, confusing space • lacks a distinct character or sense of place • poor first impressions for people approaching from the east

2 Esplanade/La Route De La Liberation • vacant sites create large hostile inactive zone between town and new waterfront • rising ground levels increase visual severance between town and waterfront • heavy traffic and substantial highway structures increase pedestrian severance • Esplanade was town facade; new relationship required to integrate old with new 3 West Park • space subdivided by road network • relationship between buildings and space becoming weak • quarry is a major scar at a key entrance point • important tree cover on slopes is becoming increasingly weak • role of public leisure space compromised by separation from adjoining spaces 4 Ring Road • busy traffic route forming a distinct corridor between neighbourhoods • strong edge to town centre but a barrier to inward/outward movement • includes a number of town arrival points; some positive, some poor • treatment suggests amenity is secondary to efficiency of traffic conduit

Interstice at the Weighbridge

5 Parade East • fragmented area suffering from erosion of urban grain • causes a breakdown in continuity of space, form and activity between the town centre and Parade • some strong architecture, both modern and historic/conserved, but lacks cohesive character

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conservation 1.

Introduction

The integrity of St Helier’s historic built environment has been slowly eroded since the end of the Occupation, though over the past fifty years the pace and magnitude of the changes has not been consistent. For example, in the 1960s and ‘70s, the programmes of urban renewal swept away many old streets and traditional neighbourhoods, whereas in recent years the losses have been much more incremental. Still, the cumulative effect of minor alterations, let alone the outright demolition and replacement of historic buildings, has greatly diluted the original character of many parts of St Helier. Most worrying, however, is the fact that the Town’s historic character is still under threat despite four decades having passed since conservation was first enshrined in Jersey’s planning legislation.

further measures must be introduced. Certainly, the introduction of Conservation Areas should augment the States’ power to control development and alterations in sensitive historic places.

derelict building in Clarence Road

Although it could be stated that the Town’s built heritage was not sufficiently protected by the 1964 Island Planning Law, as many ancient buildings (eg Hue and Dumaresq Streets) were summarily demolished over the subsequent two decades, since the passing of the 1987 and 2002 Island Plans there have been great strides forward in the statutory regard for historic buildings. The question remains, however, whether enough is being done to restrict the demolition of serviceable historic buildings or stem the gradual loss of original architectural details and elements of historic fabric. The onus to maintain and repair St Helier’s historic buildings is, of course, the responsibility of the private property owner. The reasons for the decline in the integrity of historical properties might include the following: •

Lack of awareness/concern/appreciation amongst owners

•

Difficulty in obtaining technical information, guidance and advice

•

Ill-judged attempts to improve/modernise properties

•

Poor or non-existent maintenance; wilful neglect

•

Lack of incentives to conserve/restore

In addition, although the States’ Department of Planning & Building Services has worked hard within its remit and available resources to improve stewardship of St Helier’s historic built environment, it may be the case that the present regime of statutory controls is inadequate for the task at hand and that in order to prevent the continued erosion of the Town’s character, OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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Why Conserve?

Historic buildings and streets provide the context in which we live, work and play. These urban spaces are a record of the lives of previous generations, and they are the foundations to be bequeathed to generations to come. Of course, the historic built environment is not static, it is evolutionary, with every generation taking the burden the responsibility of maintaining the best of the old whilst creating new and complementary buildings of quality to be enjoyed in the future. But why conserve relics of the past? What is the value of retaining the buildings and urban spaces of those gone before us? Much of the postwar period has seen the ebb and flow of conflict between the two schools of thought: those who view the historic built environment as something worth saving, and those believing it to be an obstacle to progress. Naturally, there have always been extremists on either side of the debate, either wishing to preserve everything at all costs or to comprehensively redevelop without restriction. St Helier’s Masonic Temple is a prominent local landmark

Fortunately, in recent years there has been a softening of attitudes at the extremes and an increasing amount of pragmatism and compromise. Much of this softening of attitudes has been the result of more detailed analysis of the economic value of conservation as well as a greater understanding of people’s intuitive appreciation of the historic built environment. Importantly, there has also been increasing evidence of how older properties can be reused and adapted to suit modern day needs. 2.1

Cultural Capital

The economics of conservation has become increasingly tangible as new studies over the past decade are starting to show that (public and private) investment in the historic built environment is earning profitable returns. What is most interesting, however, is the fact that studies also show that such investment is reaping cultural rewards as well, not only enhancing the environment but also improving the quality of people’s lives. The regeneration of older buildings has led to the revitalisation of neighbourhoods and communities which previously had little hope for the future. Throughout the UK, it has been shown that attractive, successful and eminently liveable places are often those with a long history and a distinctive character. Historic buildings contribute much of that character,evoking a sense of continuity and of quality. As a source of memory and continuity, the built heritage plays a critical role in the cultural identity of a population. One’s “sense of place” depends greatly on one’s surroundings, and if this local environment is visually stimulating and well respected it will also engender civic pride. With such pride in the community there is likely to be social cohesion within it as well. The cultural capital of the historic built environment is not just about buildings — it has as much to do with the people who come into contact with them. The historic environment is a ‘public good’ in the sense that everyone is able to derive benefit from a handsome, well-kept building or street even if they do not directly pay for it. Well maintained historic streets and town centres add vitality to a community, engaging both local residents and visitors, and attracting people to shops, restaurants and other local businesses. An attractive, diverse, vibrant and creative local culture can lift people’s aspirations. Several recent studies in the UK have quantified people’s views on the role of the historic built environment in their lives and communities. In 2003, English Heritage published Heritage Counts, a review of both the cultural and economic value of its investment in regeneration schemes across England. More recently, a House

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2000 agreed that their lives are richer for having the opportunity to visit and see examples of the UK’s built heritage. Yet this perception of “heritage” was not restricted to visitor attractions such as stately homes and cathedrals. The report pointed out that there is a growing recognition that heritage can be something that is “all around us,” that is, the landscapes, streets and houses in which we live. A poll undertaken by MORI in 2003 in three distinct parts of the country (Bradford, Cornwall and west London) showed a high level of interest in the conservation of their local areas. Some 91% of residents in Cornwall, 85% of residents in Bradford and 82% of London residents either strongly agreed or agreed with the statement “the heritage in my local area is worth saving.” A 2000 MORI poll of 3000 people in England found that 87% believed that the historic environment “plays an important part in the cultural life of the country” and 76% think “their own lives are richer for having the opportunity to visit or see it.” In its evidence to the Commons Committee earlier this year, the Civic Trust made the case that not only was the presence of historic buildings of great cultural value to a local community, but their destruction could have severe negative effects on morale. When the public feel that the local authority are demolishing loved local buildings it engenders a “feeling of powerlessness” in that the redevelopment process has no public involvement or support. Thus a frustrated and indifferent population begin to feel it is pointless to vote and “that they have no control over, and therefore no responsibility for, their local environment.”

Historic buildings can serve a variety of public uses

of Commons Committee published a lengthy report entitled The Role of Historic Buildings in Urban Regeneration. Both documents underline the contribution made by conservation projects in improving the physical and social well-being of communities in decline. 2.2

Public Opinion

Whereas the Commons report focused primarily on the economic value of regenerating the urban environment, Heritage Counts provided ample evidence that old streets and buildings are appreciated by the population at large by quoting numerous opinion polls. For example, some 76% of respondents to a MORI poll in

Interestingly, people surveyed not only appreciated the old buildings around them, but also coveted them to a certain degree. A survey by MORI of London residents suggested that the most popular choice of residence was a “pre-war semi-detached house” for which 70% of respondents expressed a preference. In the same, poll, a “period terraced house” was viewed favourably by 69% of respondents, whilst 61% would also desire a “flat in a converted historic building.” At the bottom of the scale were flats in tower blocks, which only attracted a positive reaction from 10% of the Londoners polled. Recent polls have also confirmed that people understand the intrinsic value of protecting old buildings. According to Heritage Counts, MORI “surveyed owners and residents of registered buildings to gauge their enthusiasm for living in a historic property. Of the 300 people questioned, 60% said that, taking everything into account, the listing of their property was a ‘very good’ or ‘fairly good’ thing. Only 4% saw it as a ‘very bad’ thing.” OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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2.3

The Economics of Conservation

It has been stated above that people value the historic environment, derive enormous benefits and satisfaction from it, and are concerned when it is neglected. Such positive popular views on old buildings, however, must be judged alongside the economic equations. In recent years, there has been an increasing amount of data showing not only the positive effects of conserving (and reusing) old buildings in the economic regeneration of declining urban areas, but also that conservation is far more sustainable than demolition and new construction. It is not a simple exercise to determine the benefit deriving from the historic environment and express it in monetary terms. Although it may be intuitive that public support for the built heritage stems from the sheer visual pleasure of its architectural or historic character, it cannot be denied that the historic environment is a hugely significant economic asset, and it follows that its direct benefits — and the return on investment in conservation — can be measured and assessed in the same way as other aspects of the economy. Members of the Commons committee investigating the role of conservation in the regeneration of urban areas acknowledged that there was “overwhelming evidence” that historic buildings played a crucial role in reinvigorating neighbourhoods, and their repair and reuse helped “to boost the local economy,” create jobs and achieve “a better use of natural resources.” The committee also concluded that a pragmatic, rather than a purist, approach to conservation was most beneficial in regeneration work, reporting that historic buildings “should not be retained as artefacts, relics of a bygone age. New uses should be allowed in the buildings and sensitive adaptations facilitated, when the original use of a historic building is no longer relevant or viable.” 2.4

Value of Historic Buildings

In its evidence to the Commons Committee, the Royal Institution of Chartered Surveyors commented: “There is often a win / win situation where keeping the best of the old and introducing high quality, sensitive new development, can achieve the best result for regeneration (and sustainability) and the historic environment. Regenerators need to appreciate the value that historic buildings can represent, and that sympathetic development of such buildings can be of benefit to both the building and the area.” The “value” suggested by the RICS can be interpreted in many ways. First of all, conservation-led projects often build on the quality 182 |

Older properties are eminently suitable for small businesses

inherent in the traditional building stock. Given the popularity and desirability of older properties, it has been determined that offices in registered buildings in the UK tend to have higher rents. According to research undertaken by the Investment Property Databank, over the past two decades registered offices in the UK achieved higher total returns than non-registered offices, indicating that “there is a prestige value to registered buildings.” Similarly, a MORI survey noted in Heritage Counts found that a pre-1919 house is worth on average some 20% more than an equivalent house of a more recent vintage. The intrinsic nature of historic properties can also have advantages in terms of enhancing economic vitality. Many old buildings in urban settings, when sensitively converted, are well suited to house the small and medium-sized companies that are seen as the engine of a growing economy. This “small business incubation” is often driven by design-based firms seeking distinctive premises. Many older properties lend themselves to creative and stylish conversions, enabling contemporary design solutions deftly blending old and new. In addition, when these small businesses are located in a densely populated town such as St Helier, there are great opportunities for people to work close to their homes, thus minimising the need to travel. In fact, mixed-use developments are often the mainstay of regeneration schemes in the UK.

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2.5

Tourism

Maximising the potential of historic areas derives other economic benefits as well. According to the Commons evidence of the Institute of Historic Building Conservation, research from the US indicates that investment in building rehabilitation — as opposed to general industrial investment — “delivers far higher incomes, a lot more jobs on average, in terms of heritage-based tourism and money spent particularly in historic environment attractions, which is matched by vast amounts of expenditure in the wider economy.” Cities and towns wishing to reinvigorate the tourist trade need to emphasise their unique selling point: what makes them distinctive and different from competing tourist destinations. If a town has an attractive built environment — as St Helier certainly does — it should strive to develop its distinctiveness. It has long been recognised that a majority of tourists visiting the St Helier has a rich variety of historic properties

UK do so because of its history. A 1995 survey showed that 54% of overseas visitors cited historic buildings as one of the things that encouraged them to visit London. It also showed that, even if they did not come to London specifically for the purpose, 79% of all overseas visitors went to a historic building while they were there. More recently, a 2002 visitor survey of Scotland indicated that 82% of respondents claimed that “history and heritage” was either “very” or “quite” important in their decision to visit the country. 2.7

Cost Effectiveness

In addition to the value of conservation in terms of small business growth, tourism and general prosperity, there is another important reason why the reuse of historic properties makes good economic sense. By definition, conservation is eminently sustainable — both in terms of financial investment and in the best use of natural resources. The Heritage Counts report dispels the myth that older properties are more costly to maintain over time. New research undertaken for Heritage Counts used sophisticated methodologies to analyse the relative whole-life costs of older buildings compared with more modern housing. The study compared three houses of a similar size in the Manchester area: one Victorian building, a 1920s house and one built in the 1980s. A team of architects, quantity surveyors and mechanical and electrical engineers projected the maintenance costs of each house over a 100-year period and costs were calculated on a like-for-like replacement or repair basis. The five main areas of maintenance assessed were: • decoration • fabric maintenance • services maintenance • utility costs • insurance According to Heritage Counts, “the research demonstrated that, contrary to earlier thinking, older housing actually costs less to maintain and occupy over the longterm life of the dwelling than more modern housing. Largely due to the quality and life-span of the materials used, the Victorian house proved almost £1,000 per 100m2 cheaper to maintain and inhabit on average each year than a property from the 1980s. Construction features such as a slate roof, quality softwood double hung sash OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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public inquiry, these findings were instrumental in the rejection of the local authority’s redevelopment plans and thus much of the historic building stock was saved from demolition. Therefore, it can safely be claimed that conservation of well-built historic properties offers value for money over the long term. And it is this long view that is frequently mentioned in current studies of successful regeneration. The conservation, conversion, repair and maintenance of older properties is never a quick fix or a fast return. Rather, it is an investment requiring both vision and patience, and an investment capable of sending out strong signals to other property owners and investors that the area is a good bet. Hopefully, such activity can spark, in the words of English Heritage, “a virtuous cycle of improvement.” Historic properties can be the focus for successful regeneration Traditional buildings provide prestigious addresses

windows and cast iron rainwater goods fared much better than the concrete tile roofs, poorer quality softwood windows and PVCu rainwater goods typically used on 1980s dwellings.” Overall, the annual maintenance and occupancy costs per 100m2 of internal floor area were shown to be: Victorian House: £2,648.00 1920s House: £3,112.00 1980s House: £3,686.00 Over and above the question of simple maintenance, there is now solid evidence that refurbishment is more cost effective than demolition and reconstruction. In order to combat the local authority’s plans to compulsorily purchase extensive numbers of Victorian terraced houses in Nelson, Lancashire — and replace them with new-build houses — English Heritage engaged quantity surveyors to compare the relative costs of repair/improvement and demolition/rebuilding. According to Heritage Counts, “the surveyors found that, on the basis of repair cost projections stretching over 30 years, the cost of repairing a typical Victorian terraced home in Nelson was some £24,600 while a more substantial refurbishment cost something in the region of £38,500. By contrast, the cost of demolishing one of these houses, replacing it with a newly built home and maintaining that home over 30 years was in the region of £64,000.” At the 184 |

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2.8

Environmental Sustainability

The sustainability of historic buildings must also be viewed in the context of the local and global environment. Few industries are as energy-intensive as the construction industry, and a remarkable amount of waste is also generated by the building trades. For example, the UK Government’s Performance and Innovation Unit report, Resource Productivity: Making More With Less (2000), stated that “energy is consumed in the production of construction materials such as bricks, cement and metals and in their distribution. The energy produced from non-renewable sources consumed in building services accounts for about half of the UK’s emissions of carbon dioxide. Over 90% of non-energy minerals extracted in Great Britain are used to supply the construction industry with materials. Yet each year some 70 million tonnes of construction and demolition materials and soil end up as waste.” There are undoubtedly ways in which the production of construction materials can be made more efficient — and more environmentally sustainable — but short of augmenting industrial regulations a far simpler method to combat such waste is to recycle not only building products but also the buildings themselves. The current building stock represents in itself a substantial investment of capital and energy, and this should not simply be wasted in the drive for new homes, offices and shops. Demolition and construction already account for 24% of established total annual waste in the UK, and despite several years since the institution of a landfill tax, there is little evidence that this waste mountain has been reduced. 2.9

Conclusion

It is clear that the conservation of historic buildings makes good cultural and economic sense. Conservation provides benefits ranging from civic pride and social cohesiveness to job creation and environmental sustainability. It has taken several decades for these truisms to work their way to the forefront of government thinking, but many in the field have been arguing the case for many years. More than thirty years ago, the eminent architect and town planner, Lord Esher, testified at a public inquiry into Glasgow’s road expansion plans that the importance of conservation must be recognised. If a solution to the proposed devastation of the historic environment could be found, Esher argued,

investment and you conserve that city’s attraction to the outside world. It becomes a place worth visiting, worth seeing, worth staying in. These are inevitable but vital economic factors. They are not sentimental factors.” Summing up his testimony, the late Lord Esher concluded that “conservation is often thought of as just a fad of a few.... The truth is that it is hard economics.” 2.10

References

Dept of National Heritage, English Heritage and the RICS, The Value of Conservation?, 1996 English Heritage, Heritage Counts, 2003 English Heritage, State of the Historic Environment Report, 2002 English Heritage, Power of Place, 2000 English Heritage, The Heritage Dividend, 1999 English Heritage, Conservation-led Regeneration, 1998 Glasgow West Conservation Trust, The West End Conservation Manual, Section 1.0 “Principle & Practice,” 1995. House of Commons, Office of the Deputy Prime Minister: Housing, Planning, Local Government and the Regions Committee, The Role of Historic Buildings in Urban Regeneration, 2004 Performance and Innovations Unit (UK Cabinet Office), Resource Productivity: Making More with Less, 2000 Urban Task Force, Towards an Urban Renaissance, 1999 The character of St Helier owes much to its historic built environment

“you do not merely protect old buildings and give them a new lease on life, but you conserve more than buildings; you conserve the gross capital value. You conserve the investment that previous owners have put into a city in which they believed and on which they thought it was worthwhile to spend their money. Your conserve their OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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Loss of Original Fabric

The scale of the loss of original, historic fabric in St Helier’s building stock is great. Some houses may have simply had their front doors replaced, or their shutters removed, and are otherwise unmarred. More common, perhaps, are the buildings that suffer from multiple negative interventions; that is, properties that have had several original features altered, removed or replaced. Thus, the number of traditional (ie pre-1914) properties still wholly intact is certainly small. Regrettably, even many fine interwar [1919-40] buildings have also been altered in some way, or simply neglected and left to decay. The main alterations to the traditional fabric of St Helier’s historic building stock may be generalised as follows: 3.1

Roofs

•

Coverings — replacement of original pantiles or slates with flat concrete tiles or manmade slate

•

Roofline, structure — alteration of pitch to accommodate extra attic space; formation of bulky mansard extensions

•

Dormers — Removal of traditional Jersey dormers such as cubical Georgian and decorative Victorian dormers,

above: clumsy mansard in Seale Street below left : chaotically altered roofscape in Aquila Road below right: boxy dormers spoiling classical grace of Chevalier Road

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and replacement with outsized, boxy modern dormers; loss of original details like timber finials, filigree bargeboards and glazed cheeks •

Chimneys — cement rendering, truncating or removal of patterned brick stacks; removal of terra cotta pots

•

Drainage goods — replacement of cast iron and lead items with uPVC

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right: traditional Jersey windows in Regent Road below left, right: fine door surrounds dimished by inappropriate modern doors in Great Union Road

3.2

Windows and Doors

• Windows — removal of sliding sash windows with original (some specific to Jersey) details such as grooved central astragals, decorative horns, crown or cylinder glass; replacement of multipaned sashes with single panes of plate glass; replacement of traditional timber sashes and boxes with unsympathetic materials and methods of opening (most notably tilt/turn windows manufactured in aluminium or most commonly, uPVC) • Shutters — often partially or completely removed across a facade, much to the detriment of the building’s unity of design (presumably partial removal indicates separate owners in a subdivided house) • Doors and door surrounds — replacement of original timber panelled doors (that are appropriate in style with the doorcase and house) with unsympathetic generic doors from builders’ merchants, manufactured either in timber or uPVC, and bereft of traditional detailing and ironmongery; alterations to

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above left: partly reglazed house in St Markâ&#x20AC;&#x2122;s Road above right: PVC door and windows in Great Union Road below left: PVC tilting windows (plus dormers) in Belmont Road below centre: neglected traditional sash & case in Poonah Road below right : mixed loss of original features in Douro Terrace

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above: mooted but inharmonious colours in West Park Avenue below: dominant blue in a pastel New Street block

above: overwhelming trim colour in Chevalier Road below: traditional hues in Roseville Street?

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3.3

Decoration and Ornamentation

•

Render (stucco or cement) — removal of render and exposure of brick or rubble walls beneath; loss of decorative detail

•

Paint Colours — incoherent array of painted facades, dominated by magnolia and similar bland treatments; apparent lack of historical provenance for colour selection; tasteless combinations of clashing and inappropriately bright colours, either between neighbours or on an individual building

Loss of stucco in a Georgian terrace in Bond Street

A formal, verdant setting is lacking in St Mark’s Road

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•

Ironwork — removal or neglect of cast/wrought iron cresting, balconies, railings; poor quality repairs in mild steel

•

Awnings/canopies, porches — alteration or complete removal of important decorative features

3.4

Setting

•

Front gardens of individual houses — removal of boundary wall, gates, railings and green space of front gardens in favour of paved car park area; loss of trees and other greenery; installation of garage or house extension to front of house

•

Settings of formal terraces, crescents — destruction of communal pleasure grounds/formal carriage drives to setpiece terraces, thus destroying the original composition and character of the historic architecture; loss of green interface between building and street diminishes the amenity of the wider area, thus “hardening” the environs, exacerbating street noise, reducing wildlife habitats etc.

3.5

Other Fabric Problems

•

Shop and bar fronts — alteration or removal of original material (doors, windows, signage) and replacement with generic fit-out with oversized glazed areas, fascias etc

•

Satellite dishes, TV antennas — cluttering of roofscape with

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excessive numbers of dishes and antennas (most common in subdivided properties) •

removal of inappropriate alterations to chimneys

Whereas the fabric of Sites of Special Interest, proposed SSIs and Buildings of Local Interest are at present protected by statute, there are sizable numbers of older properties whose character is being destroyed by unsympathetic repairs and alterations to the above features. These unregistered buildings, many humble and unsophisticated, form an important backdrop for St Helier’s finer architecture and thus, as a group, make an invaluable contribution to the wider townscape. Also, as many of these “lesser” buildings are found in areas originally established as working class neighbourhoods, there is a social or cultural value to the properties that might not justify registration on pure architectural or historical grounds but should still ensure a degree of statutory protection. The designation of Conservation Areas is an important way in which the greater townscape can be protected, and it is important that such protection is not only afforded to St Helier’s commercial centre and salubrious streets but to the outlying neighbourhoods as well. 4.

left: the Assembly Rooms in Belmont Place below left: Sussex House in Clarence Road awaiting demolition below right: typical building at risk, Don Road

Buildings at Risk

Assessing the current state of abandoned, derelict, neglected properties is always difficult within the period of a limited study,

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for the status of such buildings is often quite fluid. Many sites recorded during recent fieldwork as being a “Building at Risk,” upon investigation, appear to be the subjects of proposals currently in the planning system. Some buildings (namely Sussex House in Clarence Road) are apparently destined to be demolished, whereas others, such as small residential properties in Aquila and Great Union Roads, are in a parlous state and need urgent stabilisation. Perhaps the most common building groups that might be considered to be “at risk” are interwar structures (often motorcar garages) and traditional workshops. These utilitarian structures — both the streamline Moderne buildings and the vernacular asymmetrical workshops — add immense character to St Helier,

above: undervalued workshop property in Brighton Road left: old workshop in Nelson Avenue provides flexible space below: granite-built works in Wesley Street

and provide a sharp contrast to the orderly details and classical refinement of so much of the town’s residential properties. Usually tucked in back lanes and in minor side streets, the humble workshops are also seen in prominent streets such as Gas Place, Minden Place and Victoria Street. Many of these premises still retain their original use; others have been converted to other commercial uses (eg retailing) or have been converted into residences. These small workshop buildings, often standing in isolation amongst residential properties, are an integral part of St Helier’s historic built environment and should be preserved. Retaining such mixed use sites are crucial to the town’s economy and vitality, and reuse for commercial (ie light industrial) purposes should always be the preferred option. If residential redevelopment 192 |

of the site is the expressed intention of the owner, conversion of the existing fabric should always be encouraged (rather than demolition). St Helier has — relative to the UK — a noticeably large number of fine buildings built between the wars in Art Deco, Art Moderne and

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early International Style. Apparently, few structures of this period are Registered Buildings (eg Collins Office Products on the corner of Don Road and Frances Street; “Greencourt” in Green Street). Many are humble garages (eg Le Sueur’s in Colomberie/Hilgrove Street). Many are under threat due to development pressure (Le Sueur’s) or simple neglect (Arrow Insurance in Hill Street, opposite Halkett Place) and thus are at risk of demolition. A reassessment of these interwar structures should be made — based on a thorough survey and academic appraisal — with a view to adding them to the Register of Buildings and Sites. Any losses of this unusual collection of buildings would severely impact upon

above: handsome, well-proportioned interwar offices in Hill Street above left: Le Sueur garage in La Motte Street below left: elegant corner garage in Le Greve d’Azette

the breadth of St Helier’s architectural patrimony. In common parlance, “buildings at risk” are those under threat of demolition due to severe decay, redundancy or outright dereliction. Many such buildings are actually most in need of a sympathetic, imaginative and resourceful owner. Unfortunately, in the wrong hands a perfectly viable building can be neglected to a point where demolition is the only alternative. On the other hand, if a structure is physically sound, but it has lost so many historic features that little or none of the original character survives, its architectural and historical integrity has thus been so compromised that perhaps it too could classified as being as a “building at risk.” At present, with so many older properties in St Helier lying outwith the protection of the Register of Buildings and Sites, there is a vast amount of the Town’s architectural character at risk of irreparable damage or OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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outright loss. Again, the importance of thorough Conservation Area designation cannot be overemphasized.

Objectives

4.1

Education

The obvious objective of any conservation initiative is the improvement in the standard of repair and maintenance of the older building stock. In order to achieve and maintain good stewardship of the historic built environment, it is advisable not only to adopt a combination of controls and incentives, but there must also be present a certain level of understanding on behalf of the property owners. After all, it is a maxim in the conservation field that there is no such thing as a “problem building,” there are only “problem owners.” Therefore, the education of building owners is paramount if high standards of repair and maintenance are to be achieved and sustained. The education of building owners (and leaseholders) is not, however, an end in itself. Similar training must also be available to contractors and tradesmen in order to ensure that repairs are undertaken to the highest standard. In essence, the objectives of any public educational campaigns should include the following:

above: rotten timber eaves in Chevalier Road below: partly maintained double portico in Clarence Road

•

Greater appreciation of and sympathy for St Helier’s built heritage

•

An understanding of good conservation practice

•

Familiarity with sources of technical advice

•

Awareness of the cultural value of the historic built environment

•

An understanding of the economic value of heritage (eg financial and material sustainability)

•

Appreciation of the intrinsic value of investing in high quality repairs and maintenance

4.2

Statutory Controls

Successive improvements to the statutory protection of Jersey’s historic buildings (1964 Planning Law, 1987 Island Plan, 1992 Register of Buildings and Sites, 2002 Island Plan, interim policies for the conservation of historic buildings 1998) have been invaluable tools for the States’ efforts in preserving fine examples of St Helier’s historic built environment. Together with the 1997 Historic Building Repair Grant scheme, these statutory mechanisms are undoubtedly effective, though one might question whether there is any scope for modest improvements in the system. For example, • 194 |

Can the designation of Sites of Special Interest be

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• • • •

streamlined (so that pSSIs are processed more efficiently)? Should more BLIs be upgraded to SSI status (for enhanced protection and maximum grant eligibiilty)? Should the Historic Building Repair Grant scheme be augmented/extended? Should the propsed Conservation Area only include the medieval core of the Town, or should a single, large Conservation Area cover most of St Helier? Should there be several, smaller CAs for specific areas(eg commercial centre, Havre-des-Pas, NW New Town, NE New Town)?

poor maintenance leading to loss of original fabric, David Place

Proposals

5.1

Protection of unregistered buildings/extension of Conservation Areas

The number of Registered buildings in St Helier is limited, and if only a single, central Conservation Area is designated (as proposed in the 2002 Island Plan), much of the late 19th-century town outwith the retail/commercial core would remain unprotected. At present, many “minor” buildings, streets and neighbourhoods are suffering irreparable damage to their character due to a lack of statutory protection. Unless these lesser buildings are Registered, it is only the removal of permitted development rights within designated Conservation Areas that will ensure that the integrity of these buildings is preserved and the character of the whole of St Helier is not further diluted. In order to ensure a degree of protection for these unregistered buildings, a case may be made for the designation of either a larger, single conservation area across the Town (incorporating the commercial centre and residential districts of the northwest, northeast and Havre-des-Pas), or a series of separate areas each with its own identity but enjoying equal protection. 5.2.

Promotion of better stewardship through education

The key to improving the repair and maintenance of historic properties is education. Once property owners, leaseholders and contractors are empowered with appropriate information on the value of conservation and its practical application, then part of the battle can be considered to be won. Technical education can be undertaken in a variety of ways. Certainly, the Department of Planning & Building Services’ 1999 policy statement, Traditional Timber Windows and Doors, is a cogent, accessible and handsomely produced document combining detailed technical and planning information. Apparently, this document, along with its partner brochure, A History of Timber Windows and External Doors in Jersey, have encouraged many building owners in St Helier to reinstate like with like rather than replace their original timber sash windows. The States might wish to consider extending the range of such policy documents to include other historic building features (as outlined above) which are at risk of alteration, removal or replacement. In addition to the dissemination of technical information through a series of free leaflets, there might be a case made for the commissioning of a definitive conservation/restoration/ OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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maintenance guide for St Helier’s historic architecture, perhaps modelled on the Care and Conservation of Georgian Houses published by the erstwhile Edinburgh New Town Conservation Committee, the Glasgow West Conservation Manual, numerous publications from Bath etc (there being many models in the UK and abroad). Apparently there is considerable academic and practical knowledge of Jersey’s built heritage amongst local professionals and lay experts, but comparatively little has been published in recent years. Certainly, there is an absence of published technical material on St Helier’s architecture or buildings, and little of specific interest to the owner/restorer of the island’s historic properties since Joan Stevens’ two volumes of Old Jersey Houses were published in the 1980s. There is undoubtedly a great wealth of historic photographs of St Helier, providing a clear image of the Town buildings prior to the gradual decline of its architectural integrity in the later 20th century. The collections of the Société Jersiaise contain vast amounts of 19th and early 20th views, whilst the Historic Buildings Section of the Department of Planning & Building Services has a sizable archive of survey photographs from the 1960s and ‘70s. These and other collections are invaluable as a record of the traditional appearance of buildings in the Town prior to the postwar regime of alterations, repairs and “improvements.” 196 |

Initiatives to celebrate St Helier’s historic architecture — publications, lectures, exhibitions, walking tours — could be instrumental in improving standards of maintenance and repair. The establishment of an annual Architecture Festival, which need not focus solely on historic buildings, but might also feature public debates on contemporary design, competitions or consultations, could be geared to attract a cross section of the community.

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Annual events such as Doors Open Day, held throughout the UK since the early 1990s, attract a wide variety of lay people into buildings — old and new — not generally open to the public. Such events may start up slowly, but can grow steadily over the years with appropriate support from public bodies and private institutions. It would probably be difficult for the States to undertake a wide ranging campaign of conservation education on its own, but amenity and professional bodies, libraries, learned societies, local media, acting together with the States, all have a role to play in promoting St Helier’s built heritage. There may be scope for a joint effort — perhaps under the auspices of the Jersey Heritage Trust — to co-ordinate campaigns that promote, for example, best practice in building maintenance. In addition to using publications to disseminate information, more direct methods could be used such as specialist masterclasses for building contractors and practical demonstrations for building owners. A series of classes or seminars could be instituted as a part of a maintenance week. Such an annual programme of events sponsored throughout the UK each November by the Society for the Protection of Ancient Buildings.

Uncoordinated finishes in Roseville Street

5.3

Proactive campaigns to reinstate lost character

Whilst it is of crucial importance to control the incremental loss of traditional features and the unsympathetic alteration of the historic building stock, it is perhaps of equal importance to promote the reinstatement of these elements that contribute so much to the character of St Helier. To complement its encouragement of best practice in repair and maintenance, the States could undertake proactive campaigns to promote minor improvements — some merely cosmetic — to historic properties with a view to enhancing the public faces of these buildings, and, in turn, the appearance of the townscape as a whole. With appropriate technical guidance, and perhaps certain incentives, owners could be prevailed upon to improve their properties by: •

using traditional, historically accurate paint colours to decorate facades

•

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above: an expertly detailed name plaque in Rouge Bouillon below: applied lettering obscured by drainpipes in Le Dicq Road

above: this Green Street name plaque would be improved by a single colour below: a good name plaque let down by wall colours, Clairvale Road

•

“picking out” or polychroming ornamental details (eg stucco, ironwork, carved timberwork)

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“picking out” stucco name plaques of set-piece terraces and other formal developments (for aesthetic purposes and to enhance local awareness of building provenance/history)

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encouraging the common use of traditional terrace or building names

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reinstating ornamental details (eg window shutters, dormer trim, cast iron crestings, decorative chimney pots, awnings, canopies)

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rejuvenating formal settings: reinstating trees and other

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plantings in private or communal gardens (particularly important for set-piece terraces — Royal Crescent in Don Road and Don Terrace in Clarence Rd are examples of good, mature planting which complement the buildings)

•

rationalising the parking areas in front of major terraces to limit the paved area and reduce the visual impact of the cars on the appearance of the building

Enhancing the appearance of one’s property, particularly when a communal effort amongst neighbours, can contribute to rare feelings of civic pride, and pride in ownership is a cornerstone of good conservation practice. The greater the appreciation for the aesthetic value of the property, the greater the likelihood that the building will be appropriately maintained.

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above: parking in terrace garden in Clarence Road left: planting for the future in St Mark’s Road below: a sterile front in St Mark’s Road

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4.4

Enhance grant programme

In most instances, the cost of undertaking appropriate and sympathetic repairs to the fabric of historic properties is more expensive than the use of modern alternatives. It is often difficult for statutory authorities to encourage building owners and contractors to “do the right thing,” especially when the economic value of a high quality (and long lasting) repair is not readily obvious to them. If the use of statutory controls is the proverbial stick of the conservation world, then grant funding may be considered to be the carrot. For more than fifty years, central government in the UK has made grant funding available for the repair and restoration of historic buildings, gardens and townscapes. In 2002-03, for example, English Heritage awarded over £39m in grants (out of an agency budget of £115m) and Historic Scotland distributed £11.5m out of its total outgoings of £53m. Most grants are distributed directly by these executive agencies (and their counterparts in Wales and Northern Ireland), but increasingly, a percentage is handled

above: state of near delapidation in Upper King’ s Cliff below: sadly neglected terrace in Great Union Road

by small charitable trusts established (in partnership with local authorities) in specific districts, town or neighbourhoods. According to a recent English Heritage survey, 87% of a sample of 3000 people in England agreed that public funds should be used to preserve the historic built environment. Similarly, a 2001 survey by the Scottish Civic Trust of over 1000 people found that 95% of respondents believed that the protection of Scotland’s historic built environment is important, and 88% agreed that public money should be spent preserving this heritage. The discretionary use of public funding promotes best practice in a pro-active way by enabling appropriate high quality materials and superior workmanship. Grant schemes demand high standards (which, of course, must be met if grant is to be paid) and thus fosters improved skills in the building trade. Equally important, perhaps, is the wider public benefit gained through the use of grant funding as the visual amenity of a street or neighbourhood is enhanced by the reinstatement or repair of the traditional features of a town’s historic buildings. In 1995, the States of Jersey took the first steps in establishing its Historic Building Repair Grant scheme. Launched in 1997, the scheme was originally targeted at Sites of Special Interest (including proposed SSIs) with grants amounting to 40% of the grant-eligble cost (maximum of £10,000). Encouragingly, the scheme was expanded in 2002 to include Buildings of Local Interest (the largest proportion of Registered buildings in Jersey). Grants to BLIs are appropriately smaller (30% of eligible costs,

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repairs and maintenance creates more sustainable employment than new-build construction. Conservation work is generally more consistent, being less reliant on one-off major projects, and, interestingly, labour comprises some 70% of budget costs (as opposed to the 30% used for materials). Such an equation, for an island such as Jersey, with money staying in the local economy as wages rather leaving the island in terms of imported materials, should be welcomed.

above: cosmetic as well as structural problems in Le Dicq Road below: lack of simple maintenance could cause major problems, Hill Street

with a maximum of £7,500), and are only applicable to the exteriors of buildings whereas SSI grants may also cover special internal features. At present, the annual budget for the entire island amounts to £75,000 (with the possibility of a reduction to £60,000 in the upcoming fiscal year). With this level of funding, it is inevitable that awards must be kept small in order to distribute the grants over such a wide area. By comparison, in 2004/5 the Glasgow Conservation Trust West distributed c.£400,000 last year (95% coming from from Historic Scotland), the Edinburgh World Heritage Trust spent £1.29m in 2002/3 and the fledgling City Heritage Trusts (in Inverness, Dundee, Aberdeen and Stirling) have been provided with grant budgets amounting to £200,000 per annum for an initial period of three years.

There is undoubtedly a case to be made to increase the availablity of grant assistance in St Helier for the repair and restoration of external fabric of traditional buildings, as much work needs to be done to halt the incremental loss of architectural character throughout the Town. If increased capital funding were available, in addition to standard works such as the repairs of traditional doors and windows, there might also be scope for special themed campaigns to tackle certain troublesome issues such as the restoration of terrace gardens, cast iron features, ornamental dormers etc. In order to address certain problems or special sites, it might be necessary to raise levels of grant. Even in times of economic instability, investment in heritage should be seen as an investment in Jersey’s infrastructure. Whether an enhanced grant scheme could be handled within the limited resources of the Department of Planning & Building Services would require further examination, but the feasibility of establishing a charitable trust, along the lines of the models mentioned above, should also be given serious consideration. Certainly, the bodies represented by the Jersey Heritage Advisory Panel, with their many years of experience on heritage issues, should be well placed to support such a new organisation, working of course in conjunction with the States.

Of course, the architectural, demographic and socio-economic profiles of St Helier/Jersey and these Scottish cities are not strictly comparable, but it is interesting to note the levels of funding that have been made available and also that after thirty-four years of trust-based grant schemes in Edinburgh, and fifteen years in Glasgow, Historic Scotland has committed itself to expand its grant-making facilities through local agents in another four cities. According to English Heritage, for every £1 spent on their grant funded repair schemes, another £5 is raised through private and public sources. English Heritage also states that spending on OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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5.5

Promote increased owner-occupation in the Town

On balance, owner-occupiers tend to take better care of their properties than do absentee landlords. Recent research in the West End of Glasgow, which has Scotland’s highest concentration of let properties and Houses in Multiple Occupancy (ie bedsits), demonstrates that owner-occupiers generally maintain the buildings and gardens with a view to enhancing their investment, whereas absentee landlords in an buoyant rental market generally regard their properties as short-term sources of ready income and thus pay little heed to long-term maintenance requirements. If the quality of the built environment is upgraded, then the quality of life in St Helier should also improve. If the States desire an active, vibrant and attractive town, and if St Helier is to reach its potenital economically, socially and in townscape terms, there must be a concerted effort on behalf of all parties to address the issues of quality. How the States might attract more owneroccupiers into St Helier (obviously at the expense of absentee landlords) is an open question. It is obviously outwith the remit or power of the Historic Buildings Section to manage ownership patterns in the Town, but it is worthwhile to consider that if high standards of repair and maintenance are to be achieved, and sustained, there must be a seismic shift in attitude among owners of historic properties. As stated above, a certain degree of change can be undertaken through controls, education, and financial incentives. Unless,

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however, there is the political will to alter the demographic profile of St Helier, in other words, to attract more “stakeholding” owners who will take pride in the care and condition of their buildings — and seek to enhance their investment — it will continue to be an uphill struggle to maintain the status quo, let alone improve the lot of the Town’s architectural heritage. St Helier’s built heritage positively enhances one’s impressions of the town, as seen above: Victoria Street, and below (left to right): Don Road, Val Plaisant, Roseville Street

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above: well kept buildings exude confidence and civic pride, Victoria Street below: typical home in private ownership, Oxford Road

above: Havre-des-Pas houses in mint condition, Queen’s Road below: one of the town’s small gems, La Route du Fort

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strategic directions This section of the report examines the dynamics of St Helier, establishes relationships between policy initiatives and urban character, and decribes the key components of what is effectively an urban design strategy for the town. This strategy has seven key objectives:  to encourage and enable positive change and development  to promote economic dynamism and a rich urban mix  to enhance the vitality and attractiveness of the town  to conserve and capitalise on valuable buildings and townscapes  to encourage excellence in the design of new buildings and public spaces  to revitalise under-performing areas  to strike a better, more sustainable transport balance between cars, lorries, buses, cyclists and pedestrians By delivering on these objectives, the strategy will contribute towards one of the stated objectives of the Island Plan:to make St Helier a desirable place to live, work and play. The strategy will assist the delivery of other overarching goals for the town, including:  establishing St Helier as the world’s premier offshore financial services location  encouraging the diversification of the Jersey economy through entrepreneurship and the development of knowledge-based businesses  modernising the tourism product, and making St Helier more attractive to discerning, high spending visitors  increasing the appetite of Jersey visitors for urban living and urban experiences. THREATS AND OPPORTUNITIES Many of these themes were trailed in our comprehensive baseline report, and have since been the subject of consultations with the clients and a wide range of stakeholder interests. These discussions have confirmed much of our initial analysis, including the apparent paradox that: OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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 St Helier is in many ways a remarkable place, with many of the assets and attributes of a much larger city, but – at the same time  the urban experience is disappointing, and in some respects the town is dull and old-fashioned

Stakeholders described a worst-case scenario for St Helier, in which the town fails to respond to these challenges and drifts into anonymity and provincialism: sub-standard waterfront development would suck the life out of the traditional town centre, without creating an attractive new place, and the flight to the countryside – by residents and visitors – would continue.

Our consultees described some of the powerful driving forces that will shape the future of St Helier:

TRANSFORMATIONAL CHANGE

 the opening up of the island site and the rest of the waterfront will provide a new focus for commercial development

By contrast, an effective urban design strategy will treat the driving forces as an exciting opportunity for St Helier, the catalyst for a process of transformational change which will deliver:

 as a result, the town’s centre of gravity will shift south, and some traditional town centre activities will be displaced  residents and visitors will demand a more sophisticated product, based on quality, distinctiveness and authenticity  there will be increasing competition as other places raise their game, and market themselves more effectively  5-10,000 people will earn the right to buy homes in the next 10 years; this will create demand pressure in the residential market

 a world-class waterfront, comprising a dynamic central business district; quayside cafes, restaurants and shops; visitor attractions; and apartments in a high quality, high density urban setting  a revived, repopulated and distinctive urban core, with a lively mixed economy of shops, markets, cultural and entertainment venues; new workplaces; and city living apartments  a sweep of stylish, civilised and sought-after city suburbs, including the regeneration of Havre des Pas as a seaside gem GUIDING PRINCIPLES The urban design strategy is one of a number of tools for placemaking, which is a complex and multi-faceted process, requiring policy and other interventions on many fronts. Our consultations helped to define guiding principles for the process in St Helier, including:  reconnecting the town with its waterfront  integrating waterfront development with the form and character of the town centre  creating a sense of arrival and welcome at points of entry  overcoming severance and environmental impacts of traffic  nurturing the town’s distinctiveness and authenticity through conservation and new development  encouraging diversity and cosmopolitanism  animating streets and public spaces.

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IMPLEMENTING THE STRATEGY IN THE CHARACTER AREAS

CENTRAL ST HELIER

Our baseline report identified 10 provisional character areas. They are not prescriptive and it is in the nature of the urban change process that the boundaries between them will shift and blur. As we have developed the urban design strategy, we have sorted the character areas into 3 groups:

The future direction of the Central St Helier area, spanning the town centre core and fringes, and the waterfront is the most important challenge facing the town in the next 10 years.

 Central St Helier: character areas 5 (Old Harbours), 6 (New Waterfront), 7 (The Parade), 8 (Town Centre Core), 9 (Town Centre North)  Major regeneration opportunities: 2 (La Collette), 4 (Fort Regent)  Setting and context: 1 (Esplanade), 3 (Havre des Pas), 10 (Edges and Slopes)

The old harbours (area 5) also have enormous potential, especially as a visitor destination for alfresco eating and drinking and a new location for the evening economy.

Each group of areas will contribute to the goals for St Helier, as follows:

Financial services



Diversification



Tourism

 

Urban living

Setting and context

Major regeneration

Central St Helier

Goals 

 

This is the area where development pressures will be strongest, largely through the agency of the Waterfront Enterprise Board. The development of the new waterfront (area 6) beginning with the pivotal Island Site will cause the financial services sector to gravitate towards a new central business district, with inevitable consequences for traditional business locations in the town centre core (area 8). WEB also has plans to create a high profile mixed use waterfront development, combining retail, hotels, residential and visitor attractions, overlooking St Aubin’s Bay.

These market trends have the potential to generate substantial economic benefits, by creating magnet attractions for visitors and local residents and prestigious residential accommodation. However, the urban design strategy must aim to ensure that:  new development on the waterfront is achieved within a coherent, high density design framework, and that the architecture and design are consistent with a sensitive, high profile location  the design framework links and integrates the town centre and waterfront  the roads infrastructure is reconfigured or supplemented to reduce the impact of traffic and overcome existing barriers and severance  the town centre core remains the principal centre for retail, cultural and civic functions  the town centre core continues to be a pedestrian priority environment, animated by events, activities and outdoor eating and drinking  mixed use developments are actively encouraged: the town centre should be a preferred location for professional service employment, city living apartments, fine dining and quality shopping OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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 the town centre fringes (areas 7 and 9) provide a complementary urban setting for enterprise, culture and creativity: these areas should be preferred locations for start-up businesses, live-work space, knowledge workers, music venues, galleries and alternative shops Our consultations showed that there is a perception that the development of the waterfront poses a risk to the prosperity and well-being of the traditional town centre. These concerns partly reflect disappointment with the poor quality of much of the new development, which has added nothing to the vitality, attractiveness or competitive advantage of St Helier. Continuing in this vein would be an historic lost opportunity, and a zero-sum game for Jersey. But we believe that this danger is now well understood, and that there is a shared commitment both to raise the quality of development and to take the necessary steps to enable the traditional centre to adjust and adapt to a new role. At the same time, the creation of a high quality business district on the waterfront (including quality hotels) will help Jersey to position itself as the world’s most competitive offshore financial services centre.

REGENERATION OPPORTUNITIES The baseline report identifies two contrasting locations:  Fort Regent (area 4) is a Jersey icon, which dominates St Helier and provides a superb view of the town and the coast  La Collette (area 2) is effectively a closed zone: a promontory of reclaimed land dedicated to utilities, industry and distribution Fort Regent is a key location in urgent need of a new role. The landmark leisure developments which give the Fort its distinctive silhouette have been overtaken by more accessible – though architecturally inferior – facilities on the waterfront. The swimming pool is closed, and the leisure complex is under-used and out of date. There is an opportunity for comprehensive redevelopment of the site, based on the following principles:  architecture of distinction for the town’s most visible location  a mix of uses that will attract residents and visitors to the fort and capitalise on its outstanding views  conservation and interpretation of the historic fort  retention of significant areas of public open space  improved pedestrian access. A number of development opportunities have been identified and should be subject to market testing. Fort Regent has been identified as a prime location for an international graduate business school, and we recommend that this project should be the subject of a detailed feasibility study. The redevelopment of La Collette will be a long-term project, but the regeneration of the old harbours will change the area’s relationship to the town and open up new opportunities. The possibility of creating a new deep-water berth for ferries and visiting cruise ships has been mooted, but this will inevitably raise questions about the image and environment of an area which accommodates much of the island’s essential infrastructure, and which may also be an alternative location for economic activities displaced from the English Harbour area.

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SETTING AND CONTEXT The final three areas provide the topographical frame for the town of St Helier. While the character of the town itself is often elusive and enigmatic, these areas have a strong and generally positive impact:  the Esplanade (area 1) is the principal point of arrival for air travellers: the public realm interventions (Victoria Park and the Jardin de la Mer) are disappointing, but the coastline and Elizabeth Castle are superb  Havre des Pas (area 3) has the character of a traditional seaside resort, and is down at heel in places, but it is an area of great character and appeal with charming 19th century houses and an evocative sea water bathing pool  the edges and slopes (area 10) overlook the town from the north, and include some of St Helier’s most favoured residential districts: the quality is variable, but the rising ground provides a natural, green boundary for the more densely packed lower town, and there are a number of landmark buildings, including Victoria College. This group encompasses a large swathe of the urban fringes of St Helier, and will require a range of approaches. However, common themes should include maintaining and strengthening the natural landscape framework of sea, sand and hills, which bounds the urban area and gives coherence to an often shapeless townscape. Specific area priorities include:  protecting and enhancing the setting of Elizabeth Castle: this should be a key consideration in future waterfront developments  nurturing Havre des Pas as a discrete and distinctive urban quarter: the area should become an increasingly popular residential location, with a bohemian flavour, and the bathing pool should be restored and upgraded, preserving its period feel.

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design guidance This section deals with the ways in which the character of St Helier can be maintained and enhanced through the process of development control. It consists of three parts: 1)

overarching design principles that should be considered during the design and development control phases when development change is proposed

a set of guidelines – character area design guidance – for each area

advice on the deployment of the design guidance as part of the process of development control including how the guidance should be monitored and adapted over time

Taken together these provide a basis for a targeted and effective assessment of the design aspects of planning applications and future development. Their purpose is to maintain and enhance the quality and character of the built environment of each distinct area of St Helier and the town as a whole

•

create conditions that encourage the development of sensitive and creative urban outcomes

•

improve communication and participation among developers, designers, planners and residents in the design development process

1) Design Principles Good design in towns is about creating ‘places’ where every building and space contributes in a positive way to the character and function of the wider townscape. Development can be said to have been ‘successful’ when: •

site planning and massing has responded to the larger context of the townscape and the region

•

architectural expression relates to the neighbourhood context

•

the street facade creates a safe and interactive pedestrian environment

•

public amenities and activities enliven adjacent streets and open spaces

•

arrangements for vehicular access and parking have a minimal impact on the pedestrian environment

The approach to design guidance The consultant team philosophy is based on a distinct view of design guidance, design briefing and the respective roles of planners, developers and their architects in the planning process. In general terms, the purpose of urban design and planning guidance in relation to urban character is to set out broad guidance which maintains or enhances the essential features which contribute to local character. The purpose of guidance should not be to try and control the detailed development of architectural design, as designing buildings is not a planner’s job - similarly, designing towns, or parts of towns, is not an architect’s job. Planners and architects rarely have any training or skills in each other’s fields and it is important to separate out different specialists’ roles and responsibilities. The intention of this guidance is therefore not to provide a straightjacket for development but to: •

provide a set of simple principles to protect and enhance genuinely significant urban characteristics

•

give architects and developers flexibility to respond in a positive way

All development in St Helier should be assessed on its individual merits but also in terms of the contribution it makes to the efficiency and vitality of the town and to the quality of the wider townscape. Specifically, new development should: Minimise environmental harm Buildings and landscapes should be designed, constructed and operated in an environmentally responsible manner. Sustainable design and construction reduces energy and water use, reduces solid and hazardous waste, prevents indoor and outdoor pollution, and uses materials efficiently. From conserving water and energy to recycling and reusing construction materials, sustainable design considers the costs and benefits over the entire life of the building, landscape and infrastructure. Development proposals should be assessed in terms of their environmental impact but also in their ability to be flexible and adapt to future change. OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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Contribute to distinctiveness and integrate with surrounding townscape The role of the development site within the urban structure of the wider town should be recognised. Developments should help to shape distinctive neighbourhoods to reinforce local identity. Reference should be made to adjacent natural and built features and to special relationships between forms or features. New developments should not cause unsympathetic change but should emphasise, retain or enhance the image and identity of the relevant character zone. The use of landmarks, vistas, focal points and existing landscape or built features gives urban areas a unique character and memory. Improve first impressions and legibility Developments should enhance the appearance and maintain the character of arterial routes. New developments along key approaches and at entry points to the town should be of particularly high quality urban design and architecture. This should include the proper consideration of the setting of the development. Protect important views Views to and from established landmarks, hills and skylines should be protected and enhanced. The visual impact of development on distinctive character areas, layers of built form, backdrops and town silhouettes should be carefully assessed. The potential impact on strategic views from major access routes and public vantage points should also be carefully considered. Make coherent layouts Developments should form an integral part of a clear and coherent spatial structure and show robust connections with the surrounding urban pattern. It should sensitively address adjacent development form and character. New development should reinforce the indigenous block grain and street pattern. Contribute to the vitality of the town Mixed uses and human scale give vitality and create attractive places that contribute to safe and vibrant towns. Consideration should be given to the incorporation of a diverse range of uses, buildings and tenures. This fosters activity and greater security throughout the day and helps to create a balanced community. Mixed use development can also reduce the need for commuting and car travel to facilities. 212 |

Make positive relationships with public space Where relevant, new development should enhance existing spaces and/or provide new open space as spaces are an effective means of integrating and linking development and creating a shared community focus. Open spaces should be configured to provide visual interest but especially to accommodate activity. Buildings should give positive definition and enclosure to public space; active and transparent frontages facing onto public space provides surveillance and encourages a range of activities to take place. Strengthen and extend the network of routes and spaces Development should aim to maximise the extent and quality of the existing street and public space network. The network should provide a choice of routes to maximise connectivity and linkages and aim to link areas of amenity, recreation and environmental interest. Integrate car parking Almost all developments require car parking. This can be catered for inside the boundary of the development, outside the site (usually on street) or underground. Proposals should consider how to integrate parking without allowing it to dominate the development, the street scene or adjacent developments. 2) Character Area Guidance Area-specific guidance was set out for each of the ten character areas identified during the analysis phase of the study. The format for the guidance for each character area includes a description of: a)

what the area is like - a summary description of the areaâ&#x20AC;&#x2122;s characteristics

what we think can be achieved - a statement of the aims for the character area

how these can be achieved - a plan showing the controls applied with brief narrative under each building characteristic

The design guidance is intentionally simple and straightforward. Its purpose is not to unduly constrain development but to provide a springboard which architects and developers can use creatively while ensuring that the urban character is not undermined.

ST HELIER URBAN CHARACTER APPRAISAL

Initial drafts of the assessment criteria were tested by States of Jersey planners and the list was eventually distilled to 12 building characteristics that were considered to be distinct, definable and able to be applied as guiding principles. They incorporated: horizontal/vertical emphasis, whether or not the building turns a corner well, the colour and materials used in the development, the massing of the building, its building line and envelope, the relationship of the building to its neighbours, co-ordination, frontage proportion, scale of detail, roof characteristics, the interface with the street and what happens on exposed gables. A more detailed explanation of these aspects is as follows: 1

HORIZONTAL/VERTICAL

simpler, more streamlined architectural styles were favoured. The treatment of new corners does not always have to be overtly ‘showy’ but it is often an opportunity for visual emphasis and for the introduction of valuable landmark or skyline features. 3

COLOUR

Historically the predominant colours found in towns were characterised by a palette of colours derived from indigenous natural materials and locally available pigments. The original colour palette for St Helier was probably based on the browns, yellows and pinks of the local stone combined with the white, orange/pink (‘salmon yellow’) and green (‘sea green’) of traditional stuccoes.

This refers to the key features of a building’s elevation that contribute to the rhythm of the individual façade and/or the whole street. A vertical or horizontal emphasis is formed through the predominant direction and proportion of the main building elements (eg windows, doorways, panels, string courses, ornamentation etc). Creating a predominant emphasis one way or the other can help a building blend with or stand out from its neighbours.

The development of synthetic paint colours and the increased availability of paints over the last hundred years have allowed opportunities for a far greater diversity of colour and for the introduction of strong accent colours. This has proved to be especially popular in holiday seaside locations like St Helier, but has not always been used in a way that is sympathetic to the intrinsic colours and character of the location.

Most of the urban townscape of St Helier is characterised by buildings with a distinctively vertical emphasis but there are some notable exceptions, especially along parts of the waterfront and on the rising ground to the north.

Colour treatments can produce harmony, diversity or disharmony. The use of colour on a single building, particularly in an urban setting, can be discordant if it is not considered in relation to its neighbours and the street scene as a whole; a limited palette will tend to produce more a more coherent, harmonious townscape.

A reference to neighbouring properties and the wider street will usually provide the necessary evidence for the appropriate treatment for new elevations. 2

TURNS THE CORNER

Corners are important elements of the townscape as they define nodal points and can be very significant factors in the overall legibility of the town. The intricate, organic street pattern of St Helier means that corners are often prominent landmarks. This has traditionally been recognised and reinforced through the use of embossed date plaques, elaborate plaster sculptures and distinctive window treatments. Other corners are more subtly celebrated however, especially on buildings dating from the 1930s onwards when

There is a slightly different approach to colour in different parts of St Helier; for new developments, reference should be made to the recommended colour palettes described later in this section. 4

MATERIALS

Stone and stucco were traditionally the two main materials for St Helier building facades. Indigenous stone is expressed in an especially robust way throughout St Helier, most notably in the complex mosaics of massive blocks that can be seen around the old harbours, in various fortifications and large scale retaining walls. Stone and stucco have been supplemented by other materials such as timber (eg for utilitarian buildings), concrete (especially for 1930s Deco buildings) and brick (popular in the 1970s and 80s before the removal of local brickworks in the 19th century). OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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The choice of materials for a building can produce harmony, diversity or disharmony within a single elevation or between adjoining buildings, depending on colour, texture, the manipulation of the material and its unit size. Today, stone and stucco (or modern equivalents) are still often the most sensitive choice of material in St Helier, but the fluidity of concrete can be surprisingly successful (as evidenced by the Havre des Pas pool), as can glass and metal finishes. Generally, small unit materials such as brick do not complement the character of St Helier. 5

MASSING

The mass of a building is a reflection of its height and footprint proportions. Modern buildings can easily clash with older neighbours, either through being overscale or underscale relative to the wider context. The scale of buildings affects the scale of streets and spaces and is a strong determinant of urban character. Much of St Helier is of a markedly human scale, comprising a general matrix of buildings between 2.5 and 3.5 storeys in height. This is interspersed with discrete clusters of buildings up to 6 storeys in height and the very occasional high rise. Cues should be taken from the immediate context to determine the appropriate height and massing of new development. 6

BUILDING LINE

The building line defines the edges and scale of the street and a consistent building line has a pronounced influence on the sense of cohesion along a street. The vast majority of St Helier streets have very consistent and uninterrupted building lines that can be easily identified and adopted in new development. There are some examples of setbacks from the building line which have created attractive ‘incidents’ in the street, but this device should be only occasionally and very judiciously used; ill-considered setback areas can become unused, litter-strewn spaces that detract from the wider street environment.

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DIVERSITY/HOMOGENEITY

Some parts of the St Helier townscape are more consistent and homogeneous than others. Parts of Havre de Pas, for example, are highly coordinated, with a very consistent use of scale, style, detail and colour. Other parts of the town are inherently more diverse, with a mix of individualistic architectural approaches. Where new development is taking place in an area that is conspicuously coordinated it is important that new buildings adopt elements of the significant local architectural themes. Where diversity is typical however, a less contextual approach is acceptable. 8

FRONTAGE PROPORTION

The proportion of a building frontage is a function of the plot width and building height. The dimensions of the frontage contribute to the underlying pattern of urban grain as well as establishing a visual rhythm along the elevation of the street. This rhythm is reflected in the articulation of the frontage through the spacing of door and window penetrations and the subdivision of gardens (or in rear lanes, yards, outbuildings etc) In many parts of St Helier there is are strong and consistent patterns of plot widths and building heights which is makes an important contribution to the urban character of different neighbourhoods. An assessment of typical frontage proportions adjacent to a development site will help guide the design treatment – and where necessary subdivision – of the frontage. 9

SCALE OF DETAIL

The details on a building elevation provide visual interest and give it scale and character. Certain architectural approaches favour elaborate or decorative detailing whilst in other cases details are minimal and the approach simpler and more utilitarian. There are a number of characteristic approaches to this in St Helier. There are many parts of the town, such as in the harbour areas for example, where simple robust detailing is typical; in other areas, delicate detailing, decorative additions and ornamental flourishes are the norm. Where there is an observable pattern to the scale of the detail, new development should respect and complement that pattern.

ST HELIER URBAN CHARACTER APPRAISAL

ROOF SHAPES AND FINISHES

This refers to the treatment of eaves line, roof planes and roofline silhouette, all of which are important in St Helier, especially as there are several important vantage points from which to look down onto the roofscape of the town. Pitched roofs, flat roofs and mansards are all common in St Helier so it is difficult to make blanket rules about what is appropriate; in general, reference should be made to immediate neighbours for an indication of the most suitable approach. There are some locations where a consistent eaves line is a significant characteristic of a street. In these areas it is important that adjacent eaves lines are not more than half a storey above or below the norm. In a number of particularly visible locations such as along the waterfront or on the ridge above the town, the roof silhouette is important. Although no particular guidelines are required, careful consideration should be given to the overall composition of - and impact on - the skyline. 11

ACTIVITY AND STREET INTERFACE

The treatment of the ground floor of development has a profound impact on the character and animation of the street. The more transparent and active the ground floor, the safer, more interesting and attractive the street feels. A proper consideration of these factors will ensure that new buildings make a suitable contribution to the vitality of the adjacent street and the wider area. 12

3) Deploying the Guidance The purpose of this study has been to define character areas for St Helier and to devise policies and proposals which will maintain and enhance these areas. One of the reasons for this work was a realisation that positive action was needed to improve the quality of design submitted to the States through the planning application process. The planning application process is often a source of some tension between those who approve or refuse applications, and developers, architects, businesses and individuals who wish to obtain planning permission – this is the case not just in Jersey but throughout the United Kingdom. Some of the complaints about the planning application process include: •

a lack of certainty about what will be approved and what will be refused

•

the time taken to deal with applications

•

poor quality results

Design guidance can improve these matters by: •

encouraging the planning authority to set out their visual policies for areas and sites in a form that can be included in development plans and/or supplementary planning guidance

•

enabling the planning authority to influence the designer during the conceptual stage of the proposal before time and money have been spent and before attitudes have hardened – this can lead to fewer abortive submissions

•

allowing the planning authority to concentrate on those aspects of design which they consider to be most important – and spend less time on minor applications

FLANKS

‘Flanks’ are rear or side elevations of buildings that become important where they – often unintentionally – become particularly conspicuous. They can be as important as corners in some places, especially where they terminate a vista or mark an important junction. The articulation of the exposed elevation through the organisation of materials or the use of details or penetrations for example, is important to avoid a blank or over-scaled appearance.

Adoption of design guidance will appeal to developers and their architects who will value a higher degree of certainty about what is acceptable and what is not. Design guidance and its accompanying mechanisms of design OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

215

guides, design briefs and development briefs do require planners to do more work on strategy and less on dealing with day-to-day applications. To be successful, it requires a degree of ‘letting go’ of the application process. If applications meet the design guidance parameters they should be approved – all other matters being satisfactory. This will not apply to applications in Conservation Areas or to Registered Buildings. Monitoring the Character Areas The design guidance proposed in this study is a carefully compiled response to St Helier as it seems in 2004-2005. But successful towns and cities are dynamic places and it would be surprising if the guidance laid out in this document was totally appropriate in five years time. The guidance was complied to reflect current development pressures and an assessment of area sensitivity in the town in 2004 – these will doubtless change. The current relationships between the character areas, development pressure and development sensitivity is shown on the diagrams opposite. Monitoring of these factors and change in the parameters of the design guidance from time to time will be central to success. The design guidance should not be frozen in time.

LA COLLETTE

NEW WATERFRONT

LOW SENSITIVITY TOWN CENTRE FORT REGENT

ELIZABETH CASTLE

HIGH SENSITIVITY

216 |

ESPLANADE AND PARADE

TOWN CENTRE NORTH

HAVRE DE PAS

OLD HARBOUR

Character Area Sensitivity Analysis

ST HELIER URBAN CHARACTER APPRAISAL

Character Area Sensitivity Analysis versus Development Pressure

HIGH DEVELOPMENT PRESSURE TOWN CENTRE

ESPLANADE SLOPES

FORT REGENT OLD HARBOUR

HAVRE DE PAS

LOW SENSITIVITY

HIGH SENSITIVITY

NEW WATERFRONT TOWN CENTRE NORTH

ELIZABETH CASTLE

LOW DEVELOPMENT PRESSURE Revised Development Control Process

OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

217

Character Area 1 West Esplanade and Elizabeth Castle

DESCRIPTION Context: •

• • •

•

occupies the low-lying, level coastal edge; the large tidal range gives a deep sandy beach at low tide; Elizabeth Castle occupies a rocky outcrop linked to the shore by a causeway that is passable only at low tide the area is defined by extensive scenic, panoramic views across St Aubin's Bay and southwards to open sea the sea wall represents an abrupt and significant edge the area marks the western edge of St Helier and there is an important inter-relationship between this area and the New Waterfront (Character Area 6) and the Parade and Esplanade (Character Area 7) the boundaries between St Helier and First Tower are blurred by continuous development – the Town Edges and Slopes (Character Area 10) has a marked effect on this area Elizabeth Castle is an 'iconic' landmark, one of the most memorable and important landmarks in St Helier

Grain / Scale / Texture: • •

the character of the area is dominated by the natural features - open expanses of sea and sky the natural features contrast with manmade sea walls, the causeway and the cluster of structures that make up Elizabeth Castle and the Hermitage

Use and Activity •

activity is predominantly leisure-related, especially walking and cycling along the waterfront

•

ramps and steps give access to the beach

•

activity is predominantly leisure-related, especially walking and cycling along the waterfront

•

ramps and steps give access to the beach

•

it is an important starting point for tourists walking or being ferried to Elizabeth Castle

Spatial Issues • •

Elizabeth Castle is a significant, recognisable place the Esplanade forms part of the wider St Aubin's Bay water's

218 |

•

edge open space and part of the historic waterfront of St Helier there is a distinct promenade character created by the robust sea wall, with evenly spaced lighting columns strung with coloured lights and traditional timber shelters at regular intervals

Built Heritage •

the castle and related buildings are significant historical structures (proposed SSI)

•

the castle and Hermitage are significant cultural sites, having played a role from the earliest origins of St Helier through to the second world war

CHARACTER AREA OBJECTIVES • • •

to protect the outstanding visual qualities of Elizabeth Castle and St Aubin’s Bay to enhance first impressions of St Helier at this important arrival point from the airport and the west of the island to manage the transition between the coastline of the bay and the edge of the town

ST HELIER URBAN CHARACTER APPRAISAL

AREA DESIGN GUIDANCE Character Area 1 West Esplanade and Elizabeth Castle

CHARACTERISTIC

CRITERIA

horizontal / vertical

area a - no new build, area b only - horizontal

turns the corner

not applicable

colour

waterfront palette

materials

area b only - concrete, granite, glass

massing

area b only - single storey above existing sea walls area c only - below existing building outlines as seen from shore

building line

not applicable

coordination

not applicable

frontage proportion

not applicable

scale of detail

area b only - robust, maritime

roof shapes and finishes

area b only - flat

activity and street interface

should contribute to promenade activity

flanks

not applicable OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

219

Character Area 2 La Collette

DESCRIPTION Context:

Spatial Issues:

•

• •

• • •

occupies reclaimed ground that extends the natural promontory that divides St Aubin's Bay from St Clement's Bay; surrounded on three sides by the sea La Collette power station chimney is an iconic landmark visible from throughout St Helier and beyond views to La Collette are more significant than views from La Collette to the surrounding area the coastline represents a strong edge between land and water

an area defined by its function physically and functionally distinct from the rest of St Helier

Built Heritage: •

identifiable as a major post war industrial/public utility development

Grain / Scale / Texture:

CHARACTER AREA OBJECTIVES

•

• • • •

industrial estate and harbours to the west, storage areas to the east and south industrial buildings are predominantly utilitarian - usually large scale structures designed for storage and industrial processes; buildings and roads are laid out to facilitate vehicle movements and industrial processes; there are no 'streets' as such buildings are usually set back from road and external open areas are used for storage, parking and deliveries etc conventional storey-height delineations or references are often absent

Use and Activity: • •

designed specifically for industrial/business uses daytime business activity only; little other public activity, except for coastal walkway/cycleway cutting through

22 0 |

•

in the short to medium term, to manage the industrial character of the area in the medium to long term, to seek change through regeneration potentially including

ST HELIER URBAN CHARACTER APPRAISAL

AREA DESIGN GUIDANCE Character Area 2 La Collette

CHARACTERISTIC

CRITERIA

horizontal / vertical

both

turns the corner

not applicable

colour

not applicable

materials

utilitarian: concrete, concrete block, glass, steel, cladding

massing

not critical at present - large scale structures could be effective

building line

not applicable

coordination

not applicable

frontage proportion

not applicable

scale of detail

robust, industrial

roof shapes and finishes

not applicable

activity and street interface

not applicable

flanks

not applicable OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

221

Character Area 3 Havre des Pas

DESCRIPTION

Built Heritage:

Context:

•

• • • • •

occupies low-lying, level coastal land; a large tidal range creates a deep beach at low tide studded with extensive ranges of rocky outcrops the coastline of the bay represents a significant edge between land and water the distinctive architecture and location of the Havre de Pas bathing pool makes it a major local landmark and focal point in the bay there are sweeping views across St Clement's Bay and southwards to the open sea views of the sea along key north-south streets bring a seaside flavour well inland

• • •

CHARACTER AREA OBJECTIVES

Grain / Scale / Texture:

•

• • •

a medium density built up area mostly comprised of terraces and semi-detached villas mixture of wide and narrow plot widths buildings are predominantly set back from the street with small gardens in front buildings are predominantly 21/2 - 31/2 storeys with a cluster of tall buildings on the water's edge and two high rise residential blocks

Use and Activity: • • •

uses are predominantly residential and tourism or leisure related the waterfront, beach and bathing pool are magnets for visitors and residents in the summertime the moderately dense residential population increases significantly during holiday periods

Spatial Issues: • • •

•

Havre de Pas is an identifiable, named neighbourhood it is part of the wider St Clement's Bay water's edge open space the public realm is predominantly simple and functional but with a characteristic promenade and "seaside town" treatment along the water's edge; there is an example of a contemporary themed 'pocket park' on the waterfront Howard Davis Park is a well-used formal public green space that has an additional role as a venue for events

222 |

this is a predominantly historic area with its origins in the early part of the 19th century there is a high proportion of High Victorian middle class residential buildings; there are numerous streets where there is a high proportion of original fabric that is extant there are several examples of BLI_RB and PSSI_RB registered buildings the decorative Victorian guesthouses and hotels on the waterfront give a particularly strong and identifiable character to the whole area

•

to retain and enhance this seaside suburb as a discrete and distinctive urban quarter to ensure the survival of the period feel and bohemian flavour of the area to maintain the predominantly residential character of the area but to accept that part of this is a diversity of use including garages, workshops, small shops, business space as well as tourism, cafes and bars

ST HELIER URBAN CHARACTER APPRAISAL

AREA DESIGN GUIDANCE: Character Area 3 - Havre des Pas

CHARACTERISTIC

CRITERIA

horizontal / vertical

vertical

turns the corner

opportunities for corner emphasis as shown

colour

waterfront palette

materials

concrete (in certain circumstances), glass, granite, stucco, slate

massing

generally 2.5 - 3.5 storeys (5.0 m to 7.0 m) or eaves no more than Âą 1m to neighbour

building line

should be consistent with street context and respect historic context and layout

coordination

match to street context - can be high or low levels of variety or conformity

frontage proportion

match to street context - existing large hotel plots trigger design briefs

scale of detail

robust, maritime at waterfront - intricate, residential to north

roof shapes and finishes

should protect historic context - avoid lumpen mansards - slate

activity and street interface

a consideration along seafront and around shops and focal points

flanks

minimise blank side elevations of seafront buildings OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

223

Character: Area 4 Fort Regent

Context:

Spatial Issues

•

• •

• • •

a large, steep-sided rocky outcrop, topped with historic fortifications and a 20th century modernist roof structure the rock outcrop creates a series of edges that are important in separating the main part of St Helier from the Havre de Pas area Fort Regent is an iconic landmark, it's silhouette being one of the most recognisable images of the town it is an important vantage point; 3600 views can be gained to the sea, St Aubin's and St Clement's Bays, into the town centre and north to the countryside beyond

Grain / Scale / Texture: •

a unique monolithic landmark structure covers the summit

Use and Activity •

•

Fort Regent is a major community leisure facility that acts as a significant draw; however, the limited and discreet nature of the access to the Fort means that very little visible activity is generated in surrounding areas a complex of Council offices and the Pier Road car park generate some street activity during business hours

224 |

Fort Regent is an identifiable and named 'place' it is a significant green feature in the town and an environmental resource; it accommodates a variety of recreational open spaces

Built Heritage •

it is a significant historical site; the fort is registered PSSI_RB

CHARACTER AREA OBJECTIVES: •

to protect and enhance the iconic nature of this important St Helier edifice

•

to promote architecture of distinction for the town’s most visible location

•

to promote better public access and a more vibrant range of uses

•

to protect the natural landform, greenery and outstanding views

•

to encourage business and cultural use

• •

to ensure conservation and interpretation of the historic fort retention of significant areas of public open space

•

to improve pedestrian access

ST HELIER URBAN CHARACTER APPRAISAL

AREA DESIGN GUIDANCE Character Area 4 Fort Regent

CHARACTERISTIC

CRITERIA

horizontal / vertical

vertical

turns the corner

not applicable

colour

topographical palette

materials

concrete, stucco, glass, steel, granite

massing

limit new build to areas a - 4 storeys max and b - 3 storeys max. Silhouette not to project above line of natural landform or the historic fort structure - when seen from harbour

building line

not applicable

coordination

not applicable

frontage proportion

areas a and b - take from context

scale of detail

robust, large

roof shapes and finishes

areas a and b - flat or pitched

activity and street interface

not applicable

flanks

not applicable OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

225

Character: Area 5 Old Harbours

Context:

Use and Activity

•

• • •

the harbours occupy the low-lying, level coastal land; there is a backdrop to the east of steeply rising ground the water's edge is now entirely manmade and represents a strong, indented edge defining the southern limits of the town; a major road now separates the harbours from the historic town edge and Esplanade a series of colourful, visually prominent new apartment blocks on the western edge of the old harbours act as major local landmarks views into and across the various harbour basins provide important visual reminders of the historic role of St Helier as a harbour town the Old Harbours have strong, if under-developed links with adjoining character areas, especially the Town Centre

• •

Spatial Issues •

the area has a distinctive identity as an historic harbour area

•

the harbour edges provide attractive informal public open space looking out over the boats moored in the water and to the sea beyond

•

the area also includes examples of contemporary public open space at Liberation Square and the Steam Clock

•

the harbour-side is a rich and attractive environment with distinctive qualities that arise from the use of especially robust materials, with traditional detailing and evident craftsmanship

Grain / Scale / Texture: • • • •

the area contains a strip of dense development set back from the harbour edges there are a significant number of broad plots containing large scale industrial or warehouse buildings frontages are always flush with the pavement the area is predominantly 21/2 - 31/2 storeys with taller buildings on the northern margins at the interface with the town centre and on the rising ground of South Hill

uses are mostly industrial, with some commercial activity and a small number of residential properties; the various harbours are used for both leisure and commercial purposes; the harbour edge itself is used for storing equipment and boat maintenance northern and eastern areas are busy public areas during working hours and there is a nightlife focus at the Weighbridge it has an active, colourful, living water's edge

Built Heritage • •

•

the piers and harbour structures originate from the early 19th century and retain much of their period detailing distinctive early 19th century maritime/industrial buildings have a strong presence, especially where they create an uninterrupted frontage along the east side of the harbour; the impact of this elevation is exaggerated in places by strong colour treatments the Maritime Museum is PSSI_RB registered

CHARACTER AREA OBJECTIVES: • • • • •

226 |

to maintain and enhance the area’s charm, grain, texture and authenticity to retain genuine maritime uses wherever practical to limit the over-commodification of the area by leisure uses and to ensure genuine mixed use to encourage animation of the water to recognise the large scale engineering set against the domestic scale of much of the architecture

ST HELIER URBAN CHARACTER APPRAISAL

AREA DESIGN GUIDANCE Character Area 5 Old Harbours

CHARACTERISTIC

CRITERIA

horizontal / vertical

vertical

turns the corner

limited opportunities but nevertheless important

colour

waterfront palette

materials

concrete, stucco, glass, steel, granite

massing

maximum 3 storeys except area a - max 6 storeys

building line

must adhere to existing street configuration or quayside setbacks

coordination

strong level of variety

frontage proportion

take from context

scale of detail

robust, large for engineering and new - domestic for infill of traditional environments

roof shapes and finishes

not important to exercise too much control over this

activity and street interface

very important along quaysides and links to town centre

flanks

important to ensure that blank side elevations are minimised for large new build OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

227

Character: Area 6 New Waterfront

DESCRIPTION Context:

Spatial Issues

•

• • •

the new waterfront occupies reclaimed land which has extended the low-lying, level coastal strip the realigned coastline has created a new edge that has widened the distance between the historic town and the water distinctive new buildings and open spaces have created a series of landmarks there are attractive views internally to the new marina but also externally to St Aubin's Bay/Elizabeth Castle and back to the elevation of the town facing the Esplanade

Grain / Scale / Texture: • • • •

the development and therefore the ultimate grain of the area is incomplete; completed buildings are relatively dispersed and await a uniting structure the plot width is not readily identifiable buildings tend to be set back from the street edge, often with planting between the road and the building buildings are 4-6 storeys tall

Use and Activity • • •

the area is focussed around a major new leisure development with pool, cinema and eating and drinking facilities; it is a focal point for night time activity activity is mostly internal to the leisure development although there is some walking and cycling along the water's edge and a focal point for young people at Les Jardins de Mer industrial and transport-related activities take place on the water's edge to the south around the ferry landing point

228 |

• • •

the new waterfront is distinguishable from the rest of the town by its contemporary architecture and street layout vacant areas remain but are intended to be developed there are examples of contemporary public open spaces at Les Jardins de Mer and adjacent to the pool extensive public areas are paved with palettes of manmade materials; this has established a unique streetscape character for the new waterfront

Built Heritage •

exclusively recent development

CHARACTER AREA OBJECTIVES • • • • • •

to raise the quality of development in the new waterfront area to establish a quality business district to build a network of connected streets and places that link easily to the traditional streets of the old town – no culs-de-sac, dead vehicle service areas or underused pedestrian areas to ensure mixed use within a human scale design framework to build on the distinctive St Helier character rather than importing alien street, waterfront and building forms from world cities to protect views to Elizabeth Castle

ST HELIER URBAN CHARACTER APPRAISAL

AREA DESIGN GUIDANCE Character Area 6 New Waterfront

CHARACTERISTIC

CRITERIA

horizontal / vertical

both

turns the corner

opportunities throughout development area

colour

waterfront palette

materials

concrete, stucco, glass, steel, granite

massing

subject to separate supplementary planning guidance

building line

create new street system build to it - contrast street and quayside setbacks

coordination

strong level of variety

frontage proportion

take from Esplanade - older examples

scale of detail

robust, large for engineering and small for residential development

roof shapes and finishes

not important to exercise too much control over this

activity and street interface

very important along quaysides and links to town centre

flanks

important to ensure that blank side elevations are minimised for large new build OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

229

Character Area 7 The Parade and Esplanade

DESCRIPTION Context:

Spatial Issues

• •

•

• •

situated on low-lying level land in the western part of the town the Esplanade represents an historic built edge that used to form the southern elevation of the town facing the sea the hospital acts as a major local landmark, both as a large scale and recognisable building but also as an important public facility; the Opera House is a minor local landmark there are attractive open views across the formal green space of the Parade

• • •

Grain / Scale / Texture: • • • •

the area around the park is densely built up on an historic street pattern it comprises a mix of narrow and wide plot widths frontages are virtually always flush with the pavement most buildings in the area are 21/2 - 31/2 storeys but there is a sizeable zone of 4-6 storey offices and civic buildings between the Parade and the Esplanade

Use and Activity • • •

the hospital is a key land use; it is surrounded by a mix of residential and commercial uses; business and office use predominates in the east the area is busy during working hours; small focal points for night time activity occur where there are clusters of restaurants or bars there is a relatively small but growing residential population

Built Heritage • • • •

parts of this area originated in the late 18th century and some of the original street and block pattern is retained the area includes some of the earliest St Helier buildings (SSI_ RB registered), many BLI_RB and several PSSI_RB registered buildings there is a mix of Victorian middle and working class residential buildings to the west and north with early 19thc maritime/ industrial buildings to the south there are significant areas of post-war redevelopment, especially between Gloucester Street and Kensington Place

CHARACTER AREA OBJECTIVES • • • • • •

23 0 |

the park represents an identifiable 'place' that lends its name to the wider area the Parade is the only significant public green space in the town centre the character of the park stems from the formal arrangements of street trees around areas of lawn, augmented with seasonal ornamental flower displays there is a hard paved space at the south, partially used for café terraces; several key town memorials are located within the park which gives it a civic and cultural significance

to create better links between the Parade, the Town Centre and the Esplanade to achieve a higher standard of new development - especially along the Esplanade to protect the street pattern of the area over time, to remedy the impact of uncoordinated overscaled architecture to support developments that foster mixed use, active frontages and that focus on the Parade as a high quality urban green space in the Peoples Park area, to manage the transition between urban character and the more open character of the coastal Character Area 1 at this important entry point to the town

ST HELIER URBAN CHARACTER APPRAISAL

AREA DESIGN GUIDANCE Character Area 7 Parade and Esplanade

CHARACTERISTIC

CRITERIA

horizontal / vertical

vertical

turns the corner

opportunities throughout character area - important sites trigger design brief

colour

central palette

materials

concrete, stucco, glass, steel, granite

massing

2.5 - 3.5 storeys except area a - maximum 6 storeys and area b maximum as existing

building line

retain existing street sytems and setbacks

coordination

more uniformity than variety

frontage proportion

take from context - historic proportions

scale of detail

small, intricate around Parade - can be larger scale on Esplanade

roof shapes and finishes

flat or pitched - minimise mansards

activity and street interface

very important along links to town centre, the Parade, Esplanade and linking streets

flanks

important to ensure that blank side elevations are minimised OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

231

Character Area 8 Town Centre

DESCRIPTION Context: • •

•

the town centre lies in the centre of the low-lying, bowl-shaped basin where St Helier originated the States Buildings, Parish Church and Central Market are all major civic landmarks; Wesley Church is a distinctive building that acts as a major local landmark and the Arts Centre is a more minor local landmark tightly framed views defined by narrow streets are typical; distant views to the east and south often terminate in the vegetated and partially built rising ground that surrounds the town there are examples of dramatic axial views terminating at landmark buildings, most notably: Halkett Place to Wesley Church and Beresford/Peter Street to the old Wesley Street Church

•

Built Heritage •

• •

Grain / Scale / Texture: • • •

the town centre core is the most densely built up part of town, some historic narrow plots remain but many have become amalgamated to create larger, more commercially valuable sites building frontages are virtually always flush with the pavement

•

• •

the northern part of the core area is consistently 2.5 - 3.5 storeys; areas of taller buildings lie between the retail core and the harbour area this is the town's retail core and includes key civic functions and commercial activities; it is therefore the primary focus of daytime activity and a vibrant, colourful place during business hours there is a small proportion of residential uses clusters of bars or restaurants attract people to localised parts of the town centre at night

Spatial Issues • • •

the town centre core contains a series of distinctive places that link to create an complex network of streets and spaces of varying scale and character this area incorporates the civic heart of St Helier which is focused around the main civic/ceremonial space of the town (Royal Square), the Parish Church and the States building the pedestrianised streets and other incidental spaces are

232 |

the town centre core is the historic heart of the town; many of the streets, spaces and block patterns were shaped during the earliest days of St Helier's development; these characteristics provide a visual consistency that overrides the diversity of architecture in the central area there are many BLI_RB, several PSSI_RB and SSI_RB registered buildings the historic buildings are predominantly Victorian and Edwardian commercial buildings but they now heavily interspersed with a wide variety of 20th century buildings

CHARACTER AREA OBJECTIVES: •

Use and Activity •

important components of the public open space of the town, being popular as places to pause, people-watch and socialise the public realm is of a relatively high quality throughout the area; local granite has historically been used for kerbs and footways; more recent decorative stonework in the pedestrianised areas has created a new and distinctive streetscape character for the central area

• • • • •

to maintain and create a revived, repopulated and distinctive urban core, with a lively mixed economy of shops, markets, cultural and entertainment venues; new workplaces; and city living apartments to reconnect the town centre with the waterfront to nurture the town’s distinctiveness and authenticity through conservation and new development to encourage diversity and cosmopolitanism to animate streets and public spaces to accommodate changing pressures for business and residential space

ST HELIER URBAN CHARACTER APPRAISAL

AREA DESIGN GUIDANCE Character Area 8 Town Centre

CHARACTERISTIC

CRITERIA

horizontal / vertical

vertical

turns the corner

opportunities throughout character area - important corner sites trigger design brief

colour

central palette

materials

concrete, stucco, glass, steel, granite

massing

up to 4 storeys

building line

retain existing street sytems and setbacks - but can be altered through design briefs or historic accuracy or historic green space

coordination

between varied and uniform - neutral

frontage proportion

take from context

scale of detail

small, intricate

roof shapes and finishes

generally pitched - eaves no more than Âą 1m to neighbour - consider appearance from above

activity and street interface

very important along ground floors and main streets including those linking to waterfront

flanks

important to ensure that blank side elevations are minimised

other

important setpiece views to be protected + important sites trigger design brief OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

233

Character Area 9 Town Centre North

DESCRIPTION Context: • • •

•

the town centre north area lies low-lying level land, defined to the north by the escarpment slopes the Ring Road represents a significant boundary or barrier around the area's northern flanks St Thomas's Church is an iconic landmark for St Helier; other significant landmarks include St Mark's Church, the gasometer, the Odeon Cinema, the brewery on Ann Street and the Masonic Temple on Stopford Road axial, framed views along streets laid out in an orthogonal pattern are common in this area; there are distant views to the west, north and east of the vegetated and partially built up slopes of the escarpment

Grain / Scale / Texture: • • •

•

this area is moderately densely built up there is a variety of plot widths but a relatively high proportion of narrow plot widths compared to adjacent areas frontages are predominantly flush with the pavement in southern parts of this character area; setbacks become more common further north - shallow hard or soft spaces between the road and building elevation are important features of certain key streets the area is predominantly 21/2 - 31/2 storeys with scattered small groups of taller buildings; there are three high rise residential blocks

Use and Activity • •

the area is predominantly residential in the north; there is a higher proportion of commercial and retail uses in the south there are scattered, isolated examples of leisure, civic and industrial uses

234 |

• •

street activity is generally minimal although Springfield Stadium becomes a major generator of activity during key events this area contains the highest density residential population in the town; it becomes less dense towards the margins

Spatial Issues • • •

notable 'places' include Springfield Stadium and 'Town Park' most open space is private; there is very little public open space besides the Stadium basic utilitarian materials are used for streetscape

Built Heritage • •

•

several streets comprise a high proportion of original fabric that is extant west of Bath Street Victorian working class residential buildings predominate; middle class Victorian residential buildings are more common in the east and Regency buildings are found in northern areas there are many BLI_RN and several PSSI_RB and SSI_RB registered buildings

CHARACTER AREA OBJECTIVES: • • • •

to maintain and enhance the residential scale and character of the area to ensure the retention of historic environments, buildings and artefacts together with the street pattern to accommodate a degree of mixed use which ensures the future use of a wide range of small to medium sized non-residential properties that contribute to the character of the area to accommodate potential for larger scale development in the Town Park / Gasworks area

ST HELIER URBAN CHARACTER APPRAISAL

AREA DESIGN GUIDANCE Character Area 9 Town Centre North

CHARACTERISTIC

CRITERIA

horizontal / vertical

vertical

turns the corner

opportunities throughout character area

colour

north central palette

materials

concrete, stucco, granite

massing

2.5 - 3.5 storeys unless specified in design brief

building line

generally, either smallsetback (1 - 2.5 m) or building line at heel of footway with no setback but more important to control by context and neighbouring developments

coordination

more uniformity than variety

frontage proportion

take from context

scale of detail

small, intricate, domestic generally

roof shapes and finishes

flat or pitched - eaves no more than Âą 1m to neighbour

activity and street interface

important at nodes and junctions

flanks

important to ensure that blank side elevations are minimised

other

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Character Area 10 Town Edges and Slopes

DESCRIPTION Context: • • • • •

this character area centres on the steep slopes curving around the north and eastern margins of the town the steeply sloping ground represents a significant boundary that defines the most densely built up part of the town several iconic landmark buildings perch on the slopes or the ridge above the town and are visible from over a wide area – eg Victoria College and Almorah and Victoria Crescents the rising ground forms an important green backdrop to many town centre street-scenes there are important views from the higher ground down to the town roofscape as well as to the coast and sea beyond

Grain / Scale / Texture: • • • •

the grain is more dispersed than in central areas; it comprises mostly villas or apartments set into gardens or other green space plots are generally larger and often encompass sizeable gardens buildings are usually set back from the pavement, often with significant front garden space most buildings are 21/2 - 31/2 storeys although there are scattered groups of taller buildings, including a number of conspicuous tall landmark structures

Use and Activity • •

this is a predominantly residential and low density area street activity is minimal except where public facilities (such as schools) draw large numbers of people at key times

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Spatial Issues • •

•

this character area contains few instantly recognisable 'places' there is little formal public open space; most open space is private or part of the landscape setting; some important semiprivate resident's gardens form part of the setting for formal building arrangements (eg Almorah and Victoria Crescents) there is important greenery and some distinctive statuesque trees on the sloping ground and ridge (although tree cover is becoming significantly eroded in places)

Built Heritage •

buildings are predominantly 20th century and often undistinguished; however, there are some examples of important registered buildings, including set-piece terraces such as Almorah and Victoria Crescents

CHARACTER AREA OBJECTIVES • • •

to protect the topographical frame of the town by maintaining and strengthening the landscape of the slopes as part of any new development proposals to ensure that the setting of landmark buildings is protected to ensure the improvement of some of St Helier’s important entry points

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AREA DESIGN GUIDANCE Character Area 10 Town Edges and Slopes

CHARACTERISTIC

CRITERIA

horizontal / vertical

both

turns the corner

opportunities throughout character area

colour

topographical palette

materials

concrete, stucco, granite, glass, steel - garden walls and property boundaries important

massing

maximum 6 storeys unless specified in design brief - no taller than a pine tree on ridge line

building line

use context

coordination

variety

frontage proportion

not applicable unless along established garden less streets

scale of detail

small, intricate, domestic generally

roof shapes and finishes

flat or pitched - not critical

activity and street interface

less important than in other areas

flanks

important to ensure that blank side elevations are minimised

other

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The Colour Palettes A photgraphic survey and analysis of the ten character areas revealed a wide variety of colours and colouring techniques throughout the town. The analysis suggests that while there is a general St Helier range of colours that are popular as well as approriate, the maintenance and enhancement of character throughout the town could be enhanced by limiting the scope of colour to particular palettes which relate to particular areas. Four palettes are proposed: •

waterfront palette - for all waterfront areas including Character Areas 1, 3, 5 and 6

•

topographical palette - for Fort Regent and the escarpment slopes which enclose the town

•

town centre - for the broader town centre including the Parade and Esplanade areas

•

town centre north - for the predominantly residential areas north of the central core

The adoption of these palettes is not to overly constrain the choice of colours that can be used but to maintain and enhance the character of the ten areas. These palettes have been divided up into general pastel colours for walls, and colours for smaller areas especially details such as timber work, doors, windows and decorative features. There is a tradition in the town of using two pastel colours to paint larger areas of walling and this generally to be encouraged. The British Standards Colour Range (BS) has been used as the basis for the palettes - the colours are general recommendations and could differ by shade. While the BS Colour range provides a degree of certainty, it is not necessarily the best solution in all circumstances - for example, specialist manufacturers produce ranges of heritage paints which offer degrees of subtlety that is absent from the BS range (for example Farrow and Ball, Paper and Paints, and Real Paint and Varnish Company). It is also noted that in the case of Registered Buildings, there is a case for proper research into the original range of paints used in the town. 238 |

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Waterfront Palette large areas

small areas

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Town Centre Palette large areas

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Town Centre North Palette large areas

small areas

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Topographical Palette large areas

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Design Brief Template This is a typical structure for a design brief but it is important to note that not all of the issues outlined below are relevant to any given site. In particular, when setting out the site-specific guidance the only topics that should be included are those that are considered to be essential to the eventual successful integration of the development. The amount of detailed guidance should be kept to a minimum so that critical design parameters are established early in the design process whilst still giving designers flexibility and opportunities for the creative resolution of the clientâ&#x20AC;&#x2122;s brief.

SECTION HEADINGS 1

Introduction Purpose of the brief Background Key background documents Description of the site Site boundary/extent Historical development Site sensitivity Planning context Relevant planning policies/objectives Environmental, heritage or landscape designations Planning history Consultations Bodies consulted Outcomes and implications of consultation General urban design objectives Key urban design challenges/objectives Vision for the site/area Short/medium/long term issues affecting the site/area Character area description

EXPLANATION

What characteristics of the site have triggered a design brief

In or near the site Where these have already taken place/if consultation is required

States of Jersey objectives for urban quality, for example Land use, planning or property dynamics, for example Relevant extract from the Urban Character Appraisal OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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Character area design guidance

Site-specific guidance

Relevant extract from the Urban Character Appraisal

Not all of the issues below will be important for every site but this list can be used as a checklist of potentially relevant topics views/visual issues  will the development be especially visible  if visible, does this requires a sensitive approach or should it be exploited

landscape

 are there existing views in or around the site that should be protected or exploited  are there natural features that should be protected

topography/levels

 is there a landscape type/character that should be maintained in the new development  will level changes affect the development

traffic/vehicle circulation/parking/servicing

 is there a preferred way of designing with the topography  what are existing traffic circulation arrangements  are there preferred arrangements for access and principal circulation

pedestrian circulation

 are there preferred arrangements for dealing with parking and servicing  are there rights of way/existing pedestrian access points  are there key desire lines that should be accommodated  is there a need for innovative traffic management techniques

public space

 is there a need to give particular consideration to people with special needs, the elderly or children  is there a specific requirement for open space on the site  what type of space is required, for what use/user group

public transport distinctiveness/diversity/integration vitality/animation

 is it public or private  is there a need to relate to public transport eg create pedestrian links to bus stops  should this development aim to integrate seamlessly into the adjacent context or can it stand out  is this development exclusively private or should it have public uses  are there preferred locations on the site for public uses  is there a particular requirement for active ground floor uses anywhere on the site

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boundaries/edges

horizontal/vertical corner treatments

colour materials massing and frontage proportions

building line scale of detail roofs/roofscape

 are any of the site boundaries especially sensitive  how should those boundaries be treated – open/enclosed, soft/ hard, large scale/low  is there a case for the development to have a vertical or horizontal emphasis to the elevation, or could either be justified  should the corner be celebrated as a landmark feature, kept simple and elegant, or could a case be made for either  if it is to be a landmark, is there a preference for how that might be done eg tower, setback, projection  is there a need to specify a certain palette or recommend an especially striking, subtle or contextual colour choice  is there a need to specify certain types or colours of materials to stand out or blend with the immediate context  is there a need to specify the height, width and bulk of the building envelope or main elevations  are there particular parts of the site where the scale of the development needs to be controlled  should the building adhere to a prescribed building line  should setbacks or projections be considered  are there specific issues about the richness of detail in surrounding buildings that should be taken into account  is the roofscape especially visible from above  is there a case for precluding a particular roof shape  is the height of eaves line a significant design issue  is there a case for recommending a specific material or colour

Next steps Submission requirements Approvals process

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conservation area policy Conservation Area Policy and Designations In the UK, the principle of Conservation Areas has been well established for over thirty-five years. Scotland now has more than 600 Conservation Areas, and in England there are over 9,000 ranging from small rural hamlets and village squares to the World Heritage Site of the city of Bath. Although in the UK individual buildings gained statutory protection from planning legislation in the immediate post war era, it was not until the Civic Amenities Act of 1967 that the wider townscape, including lesser structures and the public realm of historic districts, was earmarked for preservation and enhancement. Over the years, further legislation across the UK has developed the principle of protecting areas of distinctive quality and character, and perhaps most significantly have compelled local authorities to enact policies for the enhancement of designated Conservation Areas. In most cases, enhancement includes a targeting of financial assistance and other initiatives to improve the condition of elements of the historic townscape.

introduces a new level of statutory protection in Jersey. It states that: • •

•

a) respect the historical context in scale, form and layout b) use materials and colours that are appropriate and sympathetic to the site and its setting c) protect boundary features such as trees, hedges, walls and railing that contribute to the special character of the area d) protect and enhance views into and out of the area

Designating a Conservation Area Several important criteria are used to determine an area’s suitability for statutory protection: •

its special architectural and historic importance

•

its distinctive character

•

its uniqueness or value as a good example of an unusual local or regional type

•

its condition and scope for improvement and enhancement

Without doubt, St Helier’s historic areas have a special quality and character, a strong “sense of place,” and a feeling of continuity. In a period of comparatively rapid change, cherished buildings, streets or views are likely to become increasingly valued by residents; a high quality, well-maintained built heritage also attracts tourists, enhances small business opportunities and generally adds vitality to the town. Although the historic townscape of St Helier may appear robust, many valuable buildings and their surroundings are fragile and are prone to long term decline due to neglect and incremental change (eg loss of original architectural features or despoiling of settings).

Conservation Areas will be designated within the Plan period subject to a detailed appraisal of their conservation merits once designated as a Conservation Area, the Planning and Environment Committee will initiate the preparation of Conservation Management Plans for each area to inform their long term conservation and enhancement. development within or affecting the setting of a Conservation Area will only be permitted where it would conserve or enhance the architectural or historic character of the Conservation Area development proposals will be expected to be in accordance with all other principles and policies of the Plan and in particular should:

•

developments that area likely to have a harmful impact on the character and appearance of a Conservation Area will not normally be permitted

This policy was further elaborated upon in the Supplementary Planning Guidance — The Historic Environment (10/2003) which stated that “Conservation Areas will be areas of distinctive townscape quality and character, which include particular concentrations of historic buildings, and which would benefit from the formulation of specific enhancement strategies and their implementation through Conservation Management Plans.” It is important to determine a strategy for implementation of Conservation Areas that is tailored to the particular physical and political circumstances of St Helier. A judgment must be made as to whether a bold step or an incremental process is most likely to produce the appropriate result. The designation of Conservation Areas could be undertaken in phases or in a single initiative across the entire historic built-up area of the town:

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Comprehensive Initiative A single Conservation Area encompassing the historic built-up area of St Helier would provide the opportunity to protect and enhance the essence of the old town, that is, the traditional mix of high and low style architecture that provides St Helier with its character. St Helier’s finest buildings are distributed widely throughout the town, set within a matrix of more modest buildings. The more “ordinary” architecture is often, however, of a consistency and quality that means it still contributes in a significant way to the overall character of the town. As it defines the context or setting for St Helier’s most important buildings and townscape features, it is important in its own right and therefore worthy of protection. Any dilution of the character of these lesser historic buildings would diminish the amenity of the town as a whole.

It is a point worthy of debate, however, whether all the States’ energies should be concentrated on the commercial core of St Helier. There is a danger that, if the designation process is protracted, there may be a gradual decline in the architectural and townscape quality in the other important but un-designated parts of the town over the same time frame, this would be a particular concern in Havre-des-Pas and the north end of the town. These two important residential districts have concentrations of high quality historic architecture but there is the potential of continued erosion of the townscape without the protection offered by Conservation Area status.

The designation of a single St Helier/Havre-des-Pas Conservation Area is, however, an ambitious strategy and would require considerable political will from the authorities and a certain confidence that the community would support the initiative.

If these three Conservation Areas are designated in the first instance, and are deemed to be a success by both the States and the population at large, a secondary phase of designations can follow. This second phase could encompass further, smaller Conservation Areas, mainly in residential districts, either as independent Conservation Areas or as extensions of the existing three Conservation Areas. Potential examples include:

A Phased Approach Alternatively, a phased approach could be conceived, starting with selected areas of particular historic significance. There are three key areas that could be considered as “primary” areas of interest: • • •

Town Centre Havre-des-Pas St Helier north (a district incorporating upper David Place, Stopford Rd and St Mark’s Rd, across Val Plaisant to Midvale Rd, Clarendon St, Rouge Bouillon up the hill to Almorah)

The Island Plan has earmarked the Town Centre for designation, and as the historic heart of St Helier and the site of some of the town’s finest architecture it is entirely logical that it is considered to be the primary candidate for Conservation Area status. Certainly, a publicity campaign highlighting the benefits of designation might have particular success in the town’s retailing and leisure centre. As a predominately business area, however, there may be some more entrenched resistance to the concept of Conservation Area from commercial landlords and their tenants. Still, with a high density of Registered Buildings located in the Town Centre, it may also be the case that there is already a certain level of acceptance of conservation controls and thus property owners might be disposed to accept the new level of protection. 248 |

Further Extensions

•

Great Union Road

•

Queen’s Road

•

Peirson Road

•

West Park Avenue/Parade Road

•

St Saviour’s Road

•

Royal Crescent district

An incremental designation process could be continued across the town over a period of years until the ultimate objective of a comprehensive Conservation Area is complete.

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public realm strategy PUBLIC REALM STRATEGY St Helier’s public realm is made up of four main types of public space: • • • •

soft or green spaces the waterfront(s) hard spaces and squares the street network and connections

At present, this network provides a reasonable range of spaces of different scales and types but there are some notable weaknesses, with some parts of the network being not well-connected and certain types of open space under-represented. This strategy proposes a clarification of the role of the spaces and the reinforcement of parts of the network of links, through a range of physical interventions and improvements, as outlined below. GREEN SPACES The Parade, the proposed Town Park and Howard Davis Park should be the primary public green spaces of St Helier. They are all within 5 minutes walk of the town centre and complement one another in terms of the roles each could play. All of these spaces should remain predominantly soft and green but perform slightly different roles to accommodate a wide range of leisure and recreational activities, as follows: The Parade Role The Parade should be protected as a formal ‘green’ with a strong cultural/civic/memorial function. It should continue to serve as a place to relax and a green oasis close to the main business area. Character The historic, formal and largely passive character should be protected. The original open character and simple elegance should be restored. Recommendations (in order of priority) Refinements to management/support for existing policy: OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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 protection and reinforcement of the avenue planting  removal of accretions of unnecessary street furniture, ‘features’ and shrubbery Design project:  introduction of a more sophisticated palette of surface materials and more atmospheric lighting  redesign of particularly weak areas such as the environs of All Saints Church (which should appear to be placed within the park rather than encroaching onto it)  removal of the timber shelter facing onto Union Street (which unhelpfully divides the space and obscures important historic views to the Don monument and Cenotaph) Town Park Role This is presently an area of derelict ground that is designated for a public park. The area should become the main public park for people who live in the town centre – St Helier’s ‘Central Park’. It needs to be a versatile and genuinely social space with leisure opportunities for all age groups. Character Devising an appropriate character will be a central objective of the designer’s brief but it should develop from an understanding of the history of the town, its physical characteristics and the social and cultural traditions of the surrounding communities. Recommendations Design project:  continued promotion of the project to create the park and an ongoing dialogue with community and relevant stakeholders through the design and implementation process  investigation of potential for an early win to retain public confidence 252 |

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Howard Davis Park Role These are the ‘botanic gardens’ of St Helier, a formal and decorative show garden of great value and character. The park should be protected as such. There may be a role for integration of more art in the park, either as a venue for art events or exhibitions, or as a location for more public art. Character The formal, traditional and ornamental character of Howard Davis Park should be protected and its supplementary role as a decorous cultural venue should be supported. Recommendations Refinements to management/support for existing policy:  continued support for specialised horticultural activities and for arts/cultural events Design project or competition for a landmark structure:  upgrading/replacement of band shelter (potentially the introduction of a contemporary, iconic structure with integrated, state-of-the-art sound and lighting technology) Secondary spaces Other green spaces are important but in a secondary and more selective way; for example the Stadium is important specifically for its role as the town’s key sports facility and the Green Street Cemetery for its family history interest and ecological significance. They have important roles but should be secondary to the three main public parks in terms of priorities for investment. Recommendations Refinements to management/support for existing policy:  continued support for stadium as primary sports venue

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Public Realm Startegy: connecting places and spaces

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Design projects/gradual upgrading through existing maintenance programmes:  improvement to key pedestrian links and access points to sports grounds  improvements to environment at entrypoints to Green Street Cemetery  updating of heritage and natural history interpretive material  improvements to boundary treatments, especially along the car park edge WATERFRONT SPACES The three main areas of useable public waterfront should be seen as the essential building blocks of a waterside system of pedestrian priority areas, which in turn link seamlessly to the rest of the town’s public realm. Key spaces include: • • •

West Esplanade/St Aubin's Bay The Old Harbours Havre de Pas

West Esplanade/St Aubin’s Bay Role The West Esplanade should be retained as a traditional esplanade/ promenade edging St.Aubin’s Bay and linking St Helier with First Tower. Character The traditional and simple character of the promenade - with its robust stone quay wall, the broad pavement and poles strung with lights - should be retained.

 continued programme of upgrading/modernising shelters and kiosks  improvements to parking areas to ensure they match the character and quality of the higher quality, pedestrian parts of the promenade The Old Harbours Role The old harbours are an authentic remnant of the historic harbour town. They provide an attractive counterpoint to the contemporary waterfront further west. Character The chunky, historic, lively and slightly chaotic character of the old harbours should be protected. Recommendations Refinements to management/support for existing policy:  continued promotion of rich mix of uses  protection and enhancement of historic artefacts and features  potential improvement of pedestrian safety/amenity in a lighthanded manner(through, for example, removal of clutter and selective widening of footways) Havre de Pas Role

Recommendations

The Havre de Pas waterfront is a more intimate waterfront than those to the east. Local residents and holiday-makers should mingle here to enjoy the beach, pool and promenade. It should be a safe, relaxed, lively and fun place to bring a family.

Refinements to management/support for existing policy:

Character

 minimisation of encroaching parking areas  improvements to the key arrival point at Le Fregate to optimise first impressions (eg removal of clutter/ garish commercial signage) Design projects/gradual upgrading through existing maintenance programmes:

Havre de Pas has traditional seaside resort charm in abundance, although it is becoming shabby in places and needs updating and more intensive maintenance. Distinctive Victorian and early 20th century features should be protected and enhanced but ways should also be found to sensitively integrate contemporary elements.

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Recommendations

The Weighbridge

Refinements to management/support for existing policy:

Role

 continued support for the iconic tidal pool – as an architectural feature but also as a node of activity  active conservation of historical artefacts and features Design projects/gradual upgrading through existing maintenance programmes:  upgrading/modernisation of shelters and street furniture  investigation of potential to expand public pedestrian areas along the water's edge - potentially including the upgrading/ reconfiguration of the seaward garden/terrace areas (presently private and partitioned) HARD OPEN SPACES and URBAN SQUARES St Helier should have a clear hierarchy of spaces and squares. Two civic spaces should be pre-eminent: The Civic Heart Role The ‘civic heart’ encompasses an expanded space sequence around the States Building, Parish Church and Royal Square which takes in Broad Street, Bond Street, Mulcaster Street and Vine Street. This collection of spaces represents the cultural and political heart of the town. Character The spaces should be formal, hard urban spaces within which all manner of urban life is played out, but in particular, they should have a role as the stage set for important civic ceremonies and events. Recommendations Design project:  extending the current high quality treatment (eg in Royal Square) to adjoining streets and spaces (as identified above) to create a much larger, cohesive civic heart 256 |

The Weighbridge area is especially important to St Helier as it represents a vital link between the civic and retail core of the town and the waterfront. Character Proposals currently under consideration for the area are not based on the principles of sensitivity to context, the need to address issues of severance or what is required to cultivate a diverse and active range of uses. A more ambitious and robust approach would be to view the entire space between the buildings as a whole, and aim to develop it as a large, vibrant and active socialising and event space in the manner of a market square – a type of space that is presently absent from St Helier. Innovative alterations to the road system around the entrance to the tunnel and through the space are required, so that the design is based much more on the spatial qualities of the area and pedestrian needs rather than on traffic needs. Recommendations Design project:  promotion of highest urban design aspirations for the redesign of the space  ongoing promotion of ideas with community and relevant stakeholders through the design and implementation process Other hard open spaces Whilst the improvement of the main civic spaces is the priority at present, there is also a need to boost the number of small paved spaces throughout the town to create more choices of places to pause, meet, people-watch or set out café tables. Where opportunities for incidental spaces arise and where there is a clear purpose for the space, the formation of positive, useable spaces should be encouraged. Recommendations Refinements to management/support for existing policy:

ST HELIER URBAN CHARACTER APPRAISAL

 encouragement to cafes and shops to colonise pavement spaces (where space allows)  selective expansion of footways where demand arises  consideration given to temporary treatment of vacant/ underused ground to allow use as public space

•

CONNECTIONS

A number of secondary routes should also be improved, especially to link north-south, connecting the town centre to open spaces and particularly to the waterfront. Also, lanes and arcades provide an opportunity to build a more comprehensive network of minor links that give greater choice of route through the town and provide an interesting contrast in scale and character to the main streets.

Creating clearer connections between important parts of St Helier’s public realm will improve the legibility of the town, increase pedestrian use and benefit the residential and business community. It will increase the appetite of Jersey visitors for exploring the town and contribute to making St Helier a desirable place in which to live, work and play.

•

Secondary connections

Recommendations Refinements to management/support for existing policy:

Primary connections

•

The primary network includes: Green Space Connections:

•

• • •

Parade to Civic and Retail Core Howard Davis Park to Colomberie Town Park (proposed) to Civic and Retail Core

Waterfront Connections: • • • • • •

West Esplanade to the Parade West Esplanade to Elizabeth Castle (especially departure point) West Esplanade to Old Harbours Old Harbours to Havre des Pas Havre des Pas to Colomberie Fort Regent to Havre des Pas via Rope Walk and La Collette Gardens

Hard Open Spaces and Urban Squares: • • •

Civic Heart to Weighbridge Weighbridge to Old Harbours Snow Hill to Fort Regent

development of quality treatments, continuity and consistency across the primary network reduction of severance along key routes

•

promotion of new secondary routes during consideration of new building and street works formalisation of presently ambiguous secondary links (eg through car parks) promotion of 24 hour access along secondary routes (where feasible)

Design projects: • improvements to environmental quality and accessibility along existing secondary links Management There is one single overarching recommendation that applies to all the spaces and connections listed above and that is that there should be a particular emphasis on the stewardship of public space in St Helier. Spaces must be of a certain quality and designed to be ‘fit for purpose’ in order to be deemed “successful” but beyond that, upkeep is the most important characteristic that ensures that spaces are used and respected. Efforts to enhance the appearance of spaces or to embellish or ‘prettify’ are not as important as dedicated and meticulous cleansing and maintenance.

Recommendations Refinements to management/support for existing policy/design projects: • protection of, and additions to, the network of primary routes to be a consideration in all building and street works • promotion of pedestrian comfort and convenience on primary routes

At present, the quality of management and maintenance of St Helier spaces is patchy. A more consistent approach is required so that all streets and spaces are reliably, consistently and scrupulously maintained. This may require a rationalisation of management responsibilities, to address, for example, the existing difficulty in coordinating the various parties involved in improving and managing open space. OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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recommendations STRATEGIC ISSUES AND DIRECTIONS

Recommendations

This report sets out a wide range of ideas, policy directions, physical proposals and practical advice for maintaining and enhancing the environment of St Helier. One of our conclusions is that St Helier is a very special place with many of the assets and attributes of a large city. At the same time, the urban experience is patchy, disappointing, dull and old fashioned. St Helier has been described to us as ‘the fly in Jersey’s ointment’ and indeed many people have told us that the town is unattractive, crowded and expensive. There is a strong desire to redress these negative external impressions of St Helier by building a waterfront that will don the mantle of a World City – like Sydney, Cape Town or Boston. While something intelligent has to take place on the waterfront, it cannot be a substitute for a proper urban renaissance in St Helier. To achieve that, more people have to start liking St Helier, to be interested in it, to care about it and to want to live there – instead of in the countryside of Jersey. For that to happen, the following strategic matters must be dealt with:

To effectively and comprehensively deal with the strategic matters and to secure implementation the core recommendations are:

•

the dynamics of the town – making the most of the driving forces at work in the town, pressure on the waterfront, the island site, dealing with demand pressure on the residential market

•

transformational change – an effective urban design strategy delivering a world-class waterfront, a revived, repopulated and distinctive urban core, and a sweep of stylish civilised and sought-after suburbs

•

guiding principles – reconnecting, integrating, creating a sense of arrival, overcoming severance, nurturing distinctiveness and encouraging diversity, animating streets and public spaces

•

managing change – a comprehensive and integrated approach for St. Helier that successfully realises major regeneration opportunities such as the waterfront, the town park and Fort Regent

Strategy for St Helier It is recommended that the States accept and adopt the strategic objectives for St Helier and employ them to provide direction and guide projects in the town in support of the Island’s overall objectives. They should underpin the development of a comprehensive regeneration strategy for St Helier which includes not only the waterfront but the rest of the town. This needs to be developed within an integrated strategic and comprehensive framework that address the townwide issues of travel and transport and management and maintenance. It also needs to consider St Helier’s role as the heart of the Island’s economy and its role and function for the Island’s culture and visitor experience – and to critically review and consider what St Helier can and should contribute to these roles – within the town’s setting and character. The development of a strategy for St Helier should be considered within the context of a review of the Island Plan 2002.

Championing, engagement and implementation It is recommended that the regeneration of St Helier is championed at a high level and that sufficient public sector resource is directed to manage and facilitate the necessary development of strategy and the investment in implementation to realise these objectives. Partnerships and engagement with other stakeholders in the town should be an integral part of this process.

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of protecting and enhancing the character of the town in the process of development control. 1.

West Esplanade and Elizabeth Castle

La Collette

Havre des Pas

4. Development briefs and other supplementary planning guidance It is recommended that the Environment and Public Services Committee also develop supplementary planning guidance in the form of development briefs for key sites and policy or advice notes on key issues identified in the report so as to maintain and enhance the basis of local character, as identified in the key characteristics and objectives for each character area.

4. Fort Regent 5.

Old Harbours

6. New Waterfront 7.

Parade and Esplanade

Town Centre

9. Town Centre North

The development of briefs should be prioritised in accord with the objectives, timescales and resources identified in the strategy for St Helier. 5.

10. Town Edges and Slopes

It is recommended that a monitoring process be put in place to identify changes in development pressure, sensitivity or other changes which would materially affect the 10 character areas. These changes may be reflected in revised policy or guidance.

A range of policy directions, strategic initiatives, regeneration opportunities and physical interventions has been assembled for each character area. The aim is to maintain and enhance the character of each area, in some cases through major initiatives (which should be embraced by a strategic plan for St. Helier), but mostly through the small scale process of incremental change through the planning application process. Design guidance has been devised for each area based on 13 criteria including building line, massing, colour, materials, frontage proportion and scale of detail. The guidance creates a simple system for assessing planning applications and creates a new degree of certainty about what is acceptable and what is not, and what will maintain or enhance the character of each character area and what might be damaging to it.

Subject to the availability of resources, the consultant team should be invited to monitor the results of this process. A period of twelve months from the date of commencement of the guidance regime may be appropriate: this should be kept under review. 6. Action Areas It is also recommended that in the course of reviewing the Island Plan 2002 the Environment and Public Services Committee should replace the Action Area definition and policy identified in the Island Plan at Policy BE6 with the character area definition and any other associated policy and guidance.

Recommendations 3

Character Area Design Guidance It is recommended that the Environment and Public Services Committee endorse and adopt the design guidance set out in this report, to be employed as a means

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Monitoring and review

Promoting urban living It is recommended that the Environment and Public

ST HELIER URBAN CHARACTER APPRAISAL

Services Committee, in partnership with others, consider producing promotional material on the history, development and urban qualities of these areas as part of a campaign to increase interest in the town and urban living; CONSERVATION ISSUES These initiatives need to be accompanied by attitude change, particularly in relation to the quality of St Helier’s physical environment. We have documented at some length the historical development of St Helier and the rich heritage that is present across the town. We have also drawn attention to the ease with which that heritage can disappear in a gradual manner or more dramatically through amalgamation of small sites into larger developments which have little relationship with the grain of the town. We have pointed out the value of conservation to the local economy in earlier sections through increased cultural capital, costeffectiveness, promotion of tourism, a wider range of residential and business accommodation, sustainability and maintenance costs. Conservation has to be seen as the natural process through which St Helier will change for the better rather than simply a restriction to be overcome. Recommendations 8.

Designating Conservation Areas It is recommended that the Environment and Public Services Committee designate Conservation Areas in St Helier. This would involve the development and application of a stricter regulatory control of development to protect the declining architectural, historical and visual quality of the town. These could be introduced on a phased basis. The three key areas of primary interest are the Town Centre, Havre des Pas and St Helier North. This should be considered in parallel with the ongoing designation of SSIs and BLIs.

9. Enhanced grant aid It is recommended that the level of grant aid from the States for the conservation of historic buildings in Jersey be increased. To arrest the decline of historic physical fabric of St Helier greater focus and resources should be directed to the repair and retention of important features and buildings of historic, architectural and cultural importance in the town. Even in times of economic uncertainty, investing in heritage should be seen as an investment in Jersey’s infrastructure and of benefit to the local economy both indirectly and directly. 10. Promoting owner-occupation in the town It is also recommended that in addition to a greater level of public sector investment (through an enhanced grant aid programme for the repair of historic buildings) that the States should seek to explore mechanisms to enhance the level of owner-occupation – and hence investment in the maintenance and upkeep of the historic building stock – in the town. 11. Supplementary guidance It is recommended that the Environment and Public Services Committee, in partnership with others where appropriate, review and develop specific technical guidance to assist the maintenance and repair of the features and buildings of historic and architectural character in the town. 12. Celebration, education and awareness The Island rightly cherishes the quality of its coast and countryside but lesser value is placed on its urban environment and the buildings and spaces which contribute to it. It is recommended that the Environment and Public Services Committee, in partnership with others, develop and implement an educational campaign which promotes the value of older buildings to the economic, social and cultural benefit of St Helier. OCTOBER 2005 | WILLIE MILLER URBAN DESIGN|

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PUBLIC REALM St Helier’s public realm is made up of four main types of public space: • • • •

soft or green spaces the waterfront(s) hard spaces and squares the street network and connections

At present, this network of routes and places provides a reasonable range of spaces of different scales and types but there are some notable weaknesses, with some parts of the network being not wellconnected and certain types of open space under-represented. This strategy proposes a clarification of the role of the spaces and the reinforcement of parts of the network of links, through a range of physical interventions and improvements. Recommendations 13. The Environment and Public Services Committee, in partnership with other stakeholders, should adopt and develop the Public Realm Strategy as potentially the most productive set of physical interventions which could benefit the general environment of the town. Government support, in the form of funding and resources, should be provided to enable the development and implementation of this strategy, within the framework of the overall strategy for St Helier. Where appropriate, partnerships with the private sector should be developed to achieve improvements to the public realm. The implementation of the strategy should deliver physical improvements to the quality of St Helier’s public realm which should be sustained by the review and implementation of a sustainable, high quality maintenance regime. We hope that our own enthusiasm for the town has come over in this study. We immodestly think that this study follows in the tradition of the work carried out by C E B Brett (1977) and Melville Dunbar Associates (1984). Both Brett and Dunbar clearly thought St Helier was a great place. So do we. 262 |

States of Jersey

Willie Miller Urban Design 20 Victoria Crescent Road Glasgow G12 9DD t 0141 339 5228 f 0141 357 4642 mail@williemiller.com www.williemiller.com