Adaptive Reuse of Civic Buildings

Shabnam Yazdani Mehr. Author

Griffith University, Gold Coast, Australia
Sara Wilkinson. Co-Author
University of Technology Sydney, Sydney, Australia
Hooman Hassanpour. Co-Author
Azad University, Mashhad, Iran
Henry Skates & Gordon Holden. Co-Author
Griffith University, Gold Coast, Australia

ABSTRACT: Adaptive reuse of buildings is a growing field of activity and discussion within
the Adaptive Architecture and the sustainability debate. Much of this activity and debate relates
to private commercial buildings where economic performance is a strong driver for adaptation.
The literature provides little information about adaptive reuse of civic buildings, especially city
and town halls.
City halls are important landmarks which are significant culturally, helping to define the city
visually, socially and symbolically, whilst also providing functional services.
This paper discusses different types of adaptive reuse of buildings to position thinking about
suitable types which apply to city halls. Case studies add further understanding about approaches
taken in the adaption of city halls for contemporary purposes. Consideration is given to prioritiz-
ing between cultural considerations or functional change for new purposes and technical upgrade
of buildings.

1 INTRODUCTION

The best way to conserve a heritage building, structure or site is to use it…..adap-
tation links the past to the present and projects into the future.
(New South Wales Heritage Office, 2008)
Adaptive reuse has been defined by many authors and all of them agree it is a range of changes
from minor to major (Bullen & Love, 2011; Douglas, 2006; Langston, 2011; Plevoets & Van
Cleempoel, 2011; Wilkinson, 2011). Adaptive reuse is a spectrum of changes from maintaining a
building due to its values, to changing the whole function of a building for other uses/purposes
(Yazdani Mehr et al., 2017). According to Ellison and Sayce (2007) there are two types of adap-
tation including within-use adaptation and across-use adaptation. Through within-use adaptation,
a building will be reused based on its primary function. In across-use adaptation, a building will
be reused for other functions/purposes. This paper discuses city/town halls which have experience
both within-use and across-use adaptation during their lifecycle in order to provide comprehen-
sive knowledge on this type of civic building.
According to the Burra Charter (1999), cultural value includes historic value, scientific value,
social value, and aesthetic value for past, present, and future generations. A heritage place may
have one of these values or a combination of them (Pearson & Sullivan, 1995). Cultural values
have been defined by the Burra Charter (ICOMOS, 1999) as follows:
Historic value: Historic value is used as the base for many other values of heritage by present-
ing the background aspect of time. Generally, the historic value is united with cultural, social, and
archaeological values (Department of Planning Sydney, 1990). A building may have historic
value since it has been a place of an important event, phase, or activity (Pearson & Sullivan,
1995).
 Scientific value: Scientific value refers to a building’s ability to reveal information which will
influence the progress of research in one specific area or a variety of them. The scientific value
relies not only on the significance of the information and its quality, authenticity, and rarity, but
also on the level to which the building will add considerable information (Department of Planning
Sydney, 1990; Pearson & Sullivan, 1995).
Social value: Social value is related to items which depict social life including working condi-
tion and living status which are not only related to past times, but also to the present. Social value
includes the features which make an item a point of attention in terms of national, religious, po-
litical, municipal, or other cultural attitude for a majority or even a minority group (Department
of Planning Sydney, 1990; Pearson & Sullivan, 1995).
Aesthetic value: An item with aesthetic value explains significant innovative achievements
which influence or confront requirements of beauty or enhancement which is distinguished by a
cultural group, experts, or the local community (majority or minority). Aesthetic values are in
connection with a popular or professional taste at a certain time and may not always be a nice and
pleasing reminder or experience for the present local community (Department of Planning Syd-
ney, 1990). Aesthetic value includes scale, form, material, and color of the structure, along with
the sounds and smells which are connected to the place and its use (Pearson & Sullivan, 1995).
According to the Department of Planning Sydney (1995) there are more values which are part
of cultural and heritage values and need consideration such as:
Archaeological value: Archaeological value pertains to items which have capability to describe
and develop knowledge related to previous human activities, livelihood, and events within ar-
chaeological research. In this case, usually the structure or framework of an item, instead of any
historical records, is the necessary evidence. Items with archaeological value include durable
structures or ruins, archaeological remnants, and landscapes.
Architectural value: Architectural or technical value relates to items which are rare, remarka-
ble, representational, or early example of vernacular building, or as a specific style, age, details,
design, finishes, construction techniques, materials, or as an architect’s or engineer’s work. The
evaluation of architectural value is usually done by experts who have a background on architec-
tural history. They can pass a range of relative knowledge of designers, styles, and construction
to the evaluation procedure.
Moreover, heritage value is part of the structure and physical elements of a building, along with
the relationship between the building with its neighborhood, and including the building’s docu-
ments (Department of Planning Sydney, 1990). The heritage and cultural values of a building play
an important role in making decisions related to whether the building is applicable to be reused
(Roos, 2007). Furthermore, heritage and old buildings have a significant effect on keeping the
cultural and heritage values of a community, since these buildings are part of a future history of
a society. Although the preservation of cultural values of an old building is important, it is not
necessarily true for buildings which are in poor condition (Wilkinson et al., 2014). Therefore, it
will be somewhat difficult to preserve heritage buildings and their associated values without any
form of adaptive reuse (Yazdani Mehr et al., 2017).
Although city/town halls are significant buildings, this type of building has been overlooked in
research. Therefore, this paper aims to study adaptive reuse of city/town halls with regard to their
cultural values as well as their technical upgrades. Upgrading the technical features of heritage
buildings can include improvements in the current technical feature and/or replacement of current
technical elements with new and modern ones. It depends on the degree and level of the damage
to the original components of a heritage building.

2 THE IMPORTANCE OF CITY/TOWN HALLS

City/town halls are significant for both local government and society. City/town halls with
different designs and scales are landmarks of many cities, suburbs, shires, and towns throughout
the world such as Brisbane City Hall in Australia and Toronto’s Old City Hall in Canada, and
Porto City Hall in Portugal. These buildings are not only the focus of local government authority
and operations, but also important social places and hubs for societies (Fiddian, 1986). Plevoets
(2014) states that city/town halls are reused mainly for tourism, ceremonies, community services,
and the cultural uses of different associations because of their specific architectural, social and
cultural values. However, due to their open character and their location, which is usually in the
city center, city/town halls have the potential to be used for other city/town center purposes such
as retail and hotels.
City/town halls have altered as a result of the growth of cities, towns, municipalities, and shires.
Their characteristics according to diverse building types throughout the world, make them inter-
esting cases, since these buildings present a wide range of architectural features and urban con-
figurations. These buildings are common in one aspect which is the building type and its urban
background as a political power. City/town halls can play an important role in the local, political,
and municipal contexts and promote the feeling of civic pride throughout the community
(Chattopadhyay & White, 2014).
City/town halls have changed gradually over time and have experienced different types of
adaptive reuse during their lifecycle. This paper will discuss the adaptive reuse of city/town halls
by using case studies from different countries in order to show whether in the adaptation process
of this type of building, the focus is on preserving cultural values or upgrading the technical fea-
tures of a building.

3 TERMINOLOGY

Terms such as retrofit, renovation, refurbishment, conservation, restoration, remodeling,

and reconstruction have been used by many different authors. However, these terms often
overlap when describing different concepts.
Conservation consists of a range of procedures from “preservation” which means main-
taining the structure of a building in its current situation and slowing down its deterioration,
to “adaptation” which means making minor changes or considerably flexible changes. There
are other processes between these two processes including “restoration” which means return-
ing the current structure of a building to a known former condition without using new mate-
rials, and “reconstruction” which means returning a current state of a building to a known
former condition by using old or new materials (Department of Planning Sydney, 1995).
Almost all existing/old buildings will experience one of these applications during their lifecy-
cle. It may be small changes to the building in the form of renovation, refurbishment, and remod-
eling, or major changes to the building in the form of alteration, restoration, and change of use.

4 RESEARCH METHODOLOGY

Case study method helps to explore and understand complicated subjects. This method is an
important research method especially when there is a need for a complete in-depth study. Case
study method allows researcher to carefully study the facts through a particular setting (Zainal,
2007). Case study methodology includes comprehensive study of one or more subjects in order
to provide a detailed analysis of the subjects (Meyer, 2001). According to Gummesson (2000) a
main advantage of case study methodology is having a comprehensive understanding of the pro-
cedure. In the field of building adaptation, many authors have used case study methodology in
order to have an in-depth analysis of the number of cases (Ball, 2002; David, 2002; Remoy &
Van der Voordt, 2011; Wilkinson et al., 2014; Wilkinson & Remoy, 2011).
Three city halls have been selected as the case studies from three different countries with different
cultures in order to achieve the main aim of this paper and provide comprehensive information
on different city halls. In this case, South Brisbane Municipal Chambers in Brisbane is selected
as the first case study since the building has experienced seven times adaptation during its life
cycle, which is a good example of across-use adaptation. Toronto Old City Hall in Canada is
chosen as the second case study since the building is not only a significant landmark of Toronto,
but it is also a good example of within-use adaptation. However, this building will experience
across-use adaptation in the future after around 100 years. The third case study is Leeds Town
Hall, an important building and an iconic landmark in Leeds, UK. This building is a grade 1 listed
building and has experienced different time restorations and alterations. Therefore, it is a good
example of across-use adaptation.
4.1 First case study: South Brisbane Municipal Chambers (Brisbane, Australia)
The first case study is the South Brisbane Municipal Chambers, which is an important example
of adaptive reuse, ‘across-use’ adaptation, in Queensland, Australia, since the building has expe-
rienced seven different functions during its life cycle.
In 1889, the South Brisbane Municipal Council bought the site for the construction of a town
hall(The Queensland Government, 2016). During the 1890s, South Brisbane was one of the bus-
iest docks and one of the most prosperous and profitable trade regions in Brisbane. In 1891 the
population of the South Brisbane was around 22,849 people (The University of Queensland
Australia, 2015). Under such circumstances, to provide chambers for the council and to show the
success of the city, architects Hall and Son constructed new municipal chambers in 1891-92
(Brisbane City Council, 2013). This shows the historic and architectural values of the building.
The South Brisbane Municipal Chambers is a two storey red brick and stone building in the
free classical style (Italianate Classical Revival). In 1904, a clock was installed in the tower, which
was the first electrical clock throughout the country (The Queensland Government, 2016) (Figure
4.1). From the study of the South Brisbane Municipal Chambers, it has been observed that the
building has experienced seven adaptations during its life cycle.

Figure 4.1 South Brisbane Municipal Chambers (Source: Author, 2016)

As has been stated by the Queensland Government Heritage Register (The Queensland
Government, 2016), the South Brisbane Municipal Chambers is significant because the building
not only has a strong connection with a specific cultural group or society, but it also has a strong
connection with the work and life of specific groups, organizations and individuals in Queens-
land’s history. These features indicate the social value of the building. Furthermore, this building
is significant since it was designed by architect John S. Murdock. The building was a place for
the South Brisbane Municipal Council and during the Second World War the building was used
by the United States Army in Brisbane. After the war, the building changed to seven flats for
families of English engineers who were employed by the council (Somerville House Archives,
2006). In 1953, the City Council consented to sell the old South Brisbane Town Hall to the
State Government in order to establish a Conservatorium of Music (Brisbane City Council,
1954). The building again underwent major refurbishment in 1977, and it was occupied by
the South Brisbane Collage of Technical and Further Education (TAFE) in late 1979 (Bennett,
1991). In 1999, the contract was signed and Somerville House (a leading Brisbane girl’s
school) purchased the building. It is now used as a part of the school’s campus (Bottger,
2016). From the literature, which says important event/occupation of a building makes it signifi-
cant, the South Brisbane Municipal Chambers is an important building for both society and gov-
ernment. The cultural values of the building promote the adaptive reuse of it.
The South Brisbane Municipal Chambers is a rare example of the masonry chambers in Bris-
bane and is the first building which was designed in a free classical style (The University of
Queensland, 2014). The South Brisbane Municipal Chambers not only is an important landmark,
but it also has aesthetic features (The University of Queensland, 2014), which shows the building
has aesthetic value. This building is a piece of history and has essential architectural, historic,
social, and aesthetic value to both present and future generations.
This building not only is significant due to its aesthetic features, but it also shows a special and
unique feature of Queensland’s cultural heritage. It shows the fundamental features of a specific
group of cultural places in Queensland (The Queensland Government, 2016) in terms of aesthet-
ics, archaeological, and cultural values, which promote the adaptive reuse of the South Brisbane
Municipal Chambers. Furthermore, the South Brisbane Municipal Chambers has functional value
through its flexible plans for proposed functions, which make the building more adaptable.
Technical improvement and renovation of the building has always been considered at each
stage of its adaptation. However, when the technical upgrade of the building may compromise its
cultural values, the emphasis is on preserving cultural values, since the building is heritage listed.
As an example, according to Bottger (2016), air conditioning was introduced into a very old
building and this was complicated and difficult to achieve ‘invisibly’. This issue is related to the
comfort of the building’s residents which is a technical barrier for the adaptation of the building,
making it somewhat difficult to achieve user comfort inside the building. Therefore, for adaptive
reuse of the South Brisbane Municipal Chambers, the priority has been on preserving the cultural
values of the building through changing its function.

4.2 Second case study: Old City Hall (Toronto, Canada)

The Old City Hall in Toronto has experienced within-use adaptation during its life cycle, and
it will be the subject of across-use adaptation in five years’ time. Toronto’s third city hall, known
as “Old City Hall”, was constructed due to the needs of the larger division when the population
increased (Taylor, 2012). It took around three years (from 1886 to 1889) for Edward James Len-
nox, a successful Canadian architect, to design the City Hall in a Romanesque Revival style. The
construction of the building took over 11 years from 1889 to 1899 at a cost of more than CAD
$2.5 million. The Old City Hall was not only the largest building in the city, but also the largest
municipal building throughout North America (City of Toronto, 1998-2016) (Figure 4.2). This
shows that the building has both the architectural and historic values. The Old City Hall was used
as the Council Chambers, municipal and legal offices, and courtrooms. However, the building is
now used only as a courthouse for the Ontario Court of Justice (Ivanov, 2016).
Although the building was large in size, it could not meet the needs of Toronto’s growing
municipal government during the couple of decades after its completion (Toronto Star, 1899).
Under such circumstances, when the fourth (and present) Toronto City Hall was opened in 1965
the Old City Hall was in danger of demolition for the construction of the Eaton Centre, a com-
mercial complex. At this time, there was an objection from the “Friends of Old City Hall” who
persuaded the city to preserve the building as an important landmark. In 1989, the Old City Hall
was declared a National Historic Site (City of Toronto, 1998-2016). This shows the social and
cultural importance of the building for the community.
 Figure 4.2 Old City Hall (Source: www.commons.wikimedia.org, 2010)

During the short time after the completion of the Old City Hall, the building’s problems came
to light. During the 1920s, the building’s clay tile roof was removed in order to reduce frequent
maintenance inspections of the tiles. In 1938, less than a decade later, one gargoyle dropped and
made a hole in the roof. Therefore, four gargoyles were removed for public safety. During 1991,
the Ventin Group started restoration work on the building including the reconstruction of missing
roof ornaments and the installation of a new copper roof (Gagné, 2014).
The courthouse will vacate the building by 2021. In 2015 the city council asked for proposals
for further reuse of the Old City Hall. Although there was a suggestion for the building to be
reused as a 92-storey residential tower or even a mall, the city council preferred more public uses
for the building such as a museum. However, it was argued that there should have been some
shops or other spaces for rent in order to provide the money for both the operation and the mainte-
nance of the building (Rudin, 2016). It was proposed to reuse the building for a museum, which
would contribute to both Toronto’s cultural identity as well as Toronto’s civic life. Therefore,
there were considerations with regard to reusing the historic and iconic building for a range of
private, public, and civic functions, along with incorporating a museum into the building’s spaces
(Shamai & Nelischer, 2016). As can be seen, it is important to preserve all cultural values of the
building through its further adaptation.
For adaptive reuse of this building there are some challenges. The first challenge is the size of
the building, which is too big to be reused for only one function, along with the interior load-
bearing walls, which hinder expansion and alteration of the interior spaces. Furthermore, it is
heritage listed and it is expensive to maintain the heritage and cultural features of the building. It
is not only important to identify the distinctive architectural features of the building, but it is also
essential to confirm that the building continues to change and progress. Toronto Old City Hall
has the opportunity to be reused through merging varied uses, keeping public access, and con-
firming economic sustainability (Shamai & Nelischer, 2016).
The Old Town Hall has been preserved for more than 100 years as an iconic and important
landmark of Toronto city. For further adaptation of the building there are considerations for both
upgrading and improving it to modern requirements and preserving its cultural values for present
and future generations. This case study shows that the preservation of cultural values is somewhat
impossible without maintaining and upgrading the building. However, the priority will be on pre-
serving the heritage features of the building, since the Old Town Hall is part of Toronto history
and belongs to the community.

4.3 Third case study: Leeds Town Hall (West Yorkshire, England)
In 1852 there was a competition for designing a new town hall, which was won by Cuthbert
Brodrick. The building was designed in the Victorian style to show the wealth and power of the
time, which presents the historic, social, and architectural values of the building. However, in
1858 as a result of rapid growth of the city, the new town hall was opened (Gosciniak, 2005)
(Figure 4.3). Four main functions were proposed for the first town hall including the council
chambers and other council officials, courthouse, police station, and a hall for both musical con-
certs as well as civic functions (Leeds City Council, 2003).

Figure 4.3 Leeds Town Hall (Source: www.commons.wikimedia.org, 2006)

The building has experienced several restorations. As an example in 1890, the balcony located
in the Victoria Hall was changed to a larger structure. In 1895, the Victoria Hall was renovated.
In 1933, a new civic hall was opened in Leeds, which accommodated a new council chamber
along with other Town Hall functions. Under such circumstances, the Leeds Town Hall was used
as a Crown Court until a new Court House was opened. In 1978, the Victoria Hall was closed for
restoration since the ceiling was in a dangerous condition. The Victoria Hall was reopened one
year later in 1979. Apart from the council function, the Leeds Town Hall has been continuously
used for public purposes such as concerts and ceremonies. The building is still used for different
functions including a bar, a catering facility, and various conferences (Gosciniak, 2005).
Although the building has experienced across-use adaptation during its life span and its original
function has changed for other purposes, there are still some old features of the Town Hall such
as the old division courtroom, which has remained intact, with timber seats and stairs. The prison
in the basement, which is known as the Bridewell, has changed into a storage area; however, the
cells under the stairs have remained intact (Leeds City Council, 2003).
In the future, the Leeds Town Hall will use around £10.5 million for restoration and alteration,
consisting of necessary repairs along with main restorations. The restoration of the building in-
cludes repainting the roof which has been repaired throughout its lifespan. The building needs to
be re-roofed and water tight for safety reasons. The alteration of the building will create more
space in the Town Hall and improve facilities, which will enable more events to be held there.
Therefore, the potential income of the building will increase and in the future there should not be
the need for tax payer funding (Turner, 2016).
Leeds Town Hall is an important building since it is a grade one (1) listed building and has
three (3) impressive manual organs which are the largest in Europe (Leeds City Council, 2014).
The Leeds Town Hall is a significant part of the city’s cultural contribution. The building has
around 10,000 visitors annually since it is an impressive iconic Leeds landmark. Under such cir-
cumstances, the building needs constant repairs, improvements, and refurbishments in order to
keep it safe for both present and future generations (Turner, 2016).
As can be observed from this case study, any technical upgrade of the building has been in line
with preserving its cultural value. As stated by Turner (2016), the council not only plans to up-
grade and restore the building in order to protect it, but also to uncover and preserve its heritage
value, which at the same time making the building sustainable economically by providing more
spaces. The Leeds Town Hall is a good example which shows how a building can be reused for
other functions based on modern requirements with regard to the preservation of its cultural val-
ues. It can be concluded that for adaptive reuse of the Leeds Town Hall, the technical upgrade of
the building is as important as the preservation of heritage values.

5 CONCLUSION

City/town halls may be seen as significant landmarks which show changes in social and eco-
nomic history, or they can be cultural icons which represent their city or town. However, most of
the city/town halls are conventional buildings which are significant for their local community and
government (Chattopadhyay & White, 2014). City/town halls are mainly heritage listed. Heritage
buildings which signify cultural history belong to the past and need preservation for future gen-
erations. In this case, conservation of heritage buildings not only helps to describe the past, but
also presents a sense of belonging and continuity to the building. Under such circumstances, adap-
tive reuse is a potential method for conserving a heritage building (Prihatmanti & Bahauddin,
2014). This shows the importance of adaptive reuse as a possible strategy for preservation of
heritage buildings. Therefore, the adaptation and maintenance of city/town halls play an important
role in preserving the building itself along with its cultural and heritage values.
This paper has identified that city/town halls are capable to be reused through two types of within-
use and across-use adaptation. From these three case studies (South Brisbane Municipal Cham-
bers, Toronto Old Town Hall, and Leeds Town Hall) it can be concluded that for adaptive reuse
of city/town halls the emphasis is on preserving their cultural values. However, technical upgrade
of the building should not be underestimated since according to Wilkinson et al (2014) technical
factors are related to a building’s age, thus these factors are important with regard to the continu-
ous lifecycle of a building. Therefore, technical upgrade of a building helps to increase its lifecy-
cle. All three case studies in this paper are heritage listed. For heritage buildings technical upgrade
of the building should be in compliance with preserving heritage values of the building. In this
case, there should not be any conflict between preserving cultural values and upgrading technical
features of heritage buildings for any further adaptation.
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