Outline Planning Permission

COMMITTEE DATE: 21/05/2003

APPLICATION No. 02/02419/C DATE RECEIVED: 31/10/2002

ED: CATHAYS

APP: TYPE: Outline Planning Permission

APPLICANT: Land Securities & Capital Shopping Centres plc - The St David's Partnership LOCATION: Redevelopment, Land bounded by Queen Street, The Hayes and Morgan Street, Cathays/Adamsdown, Cardiff PROPOSAL: REDEVELOPMENT INCLUDING DEMOLITION WORKS TO PROVIDE MIXED-USE DEVELOPMENT

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RECOMMENDATION 1: The decision notice records that the Council is satisfied that the Environment Statement contains sufficient information and has taken account of the Environmental Statement and accompanying information in making its decision on application 02/2419C.

RECOMMENDATION 2: That the application be referred to the National Assembly for Wales under the Town and Country Planning (Shopping Direction) (England & Wales) no. 2. Direction 1993 and the Town and Country Planning (Development Plans and Consultation) Departures) Directions 1999 and be advised of the Council's intention to grant outline planning permission.

RECOMMENDATION 3: Provided that the National Assembly for Wales does not wish to intervene in the determination of the application (02/2419C) and subject to persons having relevant interest in the application site entering into a binding planning obligation in agreement with the Council under section 106 of the Town and Country Planning Act 1990 encompassing the matters referred to in section 9 of this report, outline planning permission be granted subject to the following conditions:

1. Standard Outline

1a Approval of the details of the siting, design and external appearance of the building(s), and the landscaping of the site (hereinafter called "the reserved matters") shall be obtained from the Local Planning Authority in writing before any development is commenced.

1b Plans and particulars of the reserved matters referred to in condition 1A above, relating to the siting, design and external appearance of any buildings to be erected, and the landscaping of site, shall be submitted in writing to the Local Planning Authority and shall be carried out as approved.

1 1c Application for approval of the reserved matters may be submitted on a phased basis and shall be made to the Local Planning Authority before the expiration of five years from the date of this permission.

1d The development hereby permitted shall be begun either before the expiration of five years from the date of this permission or before the expiration of two years from the date of the last of the reserved matters to be approved, whichever is the later.

Reasons: In accordance with the provisions of Article (3)1 of the Town and Country Planning (General Development Procedure) Order 1995 in accordance with the provisions of Section 92 of the Town and Country Planning Act 1990.

2. The external walls and roofs of any building shall be constructed and finished in accordance with a schedule of materials and finishes which shall be submitted to and approved by the Local Planning Authority prior to the commencement of development of the relevant phase. Reason: To ensure that the finished appearance of the development is in keeping with existing buildings in the area.

3. No development shall take place of the 'relevant phase' until plans showing details of the proposed floor levels of any building in relation to the existing ground level and the finished levels of the site shall be submitted to and approved in writing by the local planning authority. The development shall be constructed and completed in accordance with the approved details. Reason: These details are not included with the application and are required to ensure an orderly form of development.

4. C2N Drainage details

5. No development of the relevant phase shall take place until details showing the provision of cycle parking spaces have been submitted to and approved in writing by the local planning authority. The approved details shall be implemented prior to the development being put into beneficial use. Thereafter the cycle parking spaces shall be maintained and shall not be used for any other purpose. Reason: To ensure that adequate provision is made for the secure parking of cycles.

6. No development shall take place until details of access and facilities for disabled persons, including disabled parking, lift, ramp / level access and WC's of the respective phase, have been submitted to and approved in writing by the local planning authority; the development phase shall not be brought into use until the approved scheme has been completed. Reason: To ensure adequate facilities are available for disabled persons.

2 7. The consent relates to the application as amended by the revised plans received on 25 April 2003, 20 May 2003 and 21 May 2003 attached to and forming part of this planning application including plan ref: 010001- B-028G, HED\B\002 Rev.L, 010001-B-173 B, D101318\004 1 to 4 and D101318\004-B. Reason: The plans amend and form part of the application.

8. This consent relates to the application as supplemented by the information contained in the letter from the agent dated 25 April 2003, 16 May 2003 and 20 May 2003. Reason: The information provided forms part of the application.

9. No part of the relevant phase of the development hereby permitted shall be commenced until a scheme detailing the measures necessary for the purpose of monitoring gases generated on the site or land adjoining thereto and for any measures necessary to protect the development has been submitted to and approved in writing by the Local Planning Authority. Any such scheme shall provide details of measures that are required to ensure the safe and inoffensive dispersal or management of gases and to prevent lateral migration of gases into or from land surrounding the application site. Gases include landfill gases, vapours from contaminated land sites, and naturally occurring methane and carbon dioxide, but does not include radon gas. All measures specified in the above scheme shall (unless otherwise agreed in writing) be undertaken and completed prior to any development commencing or in accordance with a timetable as shall be previously agreed in writing with the Local Planning Authority and the measures shall be retained and maintained until such time as the Local Planning Authority agree in writing. Reason: To ensure that the safety of future occupiers is not prejudiced.

10. No part of the relevant phase of the development hereby permitted shall be commenced until a scheme detailing the measures necessary for the purposes of identifying chemical and other contaminants on the site and to ensure that the land is suitable for the proposed development has been submitted to and approved in writing by the Local Planning Authority. Any such scheme shall include details of any measures necessary to protect future occupiers/users of the land from chemical and other contaminants. All measures in the approved scheme shall be undertaken in accordance with a timetable, which shall be agreed in writing with the Local Planning Authority. Reason: To ensure that the safety of future occupiers is not prejudiced.

11. Unless otherwise agreed with the Local Planning Authority in writing, details submitted in pursuance of condition 1 shall accord with the Master Plan Principles and Master Plan dated 20 May 2003 or such other Master Plan as may be agreed. Reason: To secure an orderly form of development and provide for a satisfactory urban design and appearance.

3 12. The disposition of uses for the application site shall accord with the details submitted within the application and the Master Plan principles and plan dated 20 May 2003 or such other Master Plan principles as agreed with the Local Planning Authority in writing. Reason: To secure a mix of uses consistent with the Master Plan principles and in the interests of urban design.

13. The gross lettable floor space hereby consented shall not exceed 163,220m² of which the specific Use Classes shall not exceed, unless otherwise agreed with the Local Planning Authority in writing, the following maximum figures: (i) Class A1 - 84,950m² (of which there is no more than 40,419m² net floor space for additional comparison goods) (ii) Class A3 - 3,250m² (iii) Class B1 - 54,000m² (iv) Class C1 - 17,000m² (v) Class C3 - 73,400m² (vi) Class D1 - 2,350m² Reason: To ensure the development accords with the submitted plans and environmental assessment.

14. Insofar as the permission relates to Class A3 Uses all fumes from the food preparation area(s) shall be mechanically extracted to a point agreed with the Local Planning Authority. The extraction system shall be provided with a deodorising filter; all fans and pumps shall be so mounted and installed so as not to give rise to any noise nuisance. Details of the above equipment shall be submitted to and approved by the Local Planning Authority and the equipment installed prior to the use for the cooking of food commencing. The equipment shall thereafter be maintained to the satisfaction of the Local Planning Authority in accordance with the manufacturers' guidelines, such guidelines having previously been agreed by the local planning authority in writing. Reason: To ensure that the amenities of adjoining and nearby occupiers are not prejudiced.

15. Prior to the commencement of development, a waste management strategy for the development including the construction period shall be submitted to and agreed with the Local Planning Authority and shall include for details of refuse storage, separate storage and collection of waste for reuse and recycling within the respective building. Thereafter the approved strategy shall be implemented prior to beneficial use and operated in accordance with the agreed details. Reason: To provide for satisfactory facilities for refuse storage, reuse and recycling of waste and safeguard the amenity of the area.

16. No shutter or grill shall be placed in front of or within 1 metre behind the ground floor window of any building fronting a highway or a public realm without the prior consent of the Local Planning Authority. Reason: In the interests of visual amenity.

17. A shop front and shop sign design guide (including temporary hoardings) for the frontages onto any street, arcade or public realm shall be submitted to and approved by the Local Planning Authority prior to the fit out of the shop and implemented in accordance with the approved details prior to beneficial occupation of the relevant shop unit. Reason: To ensure a satisfactory design.

18. Prior to the commencement of development, a detailed tree survey of the site and recommended works shall be undertaken identifying the trees to be retained and shall be submitted to and agreed by the Local Planning Authority. Thereafter the trees to be retained shall be protected during the construction programme in accordance with details submitted to and agreed with the Local Planning Authority. Reason: In the interests of visual amenity.

19. Details submitted in pursuance of condition 1 in respect of 'landscaping', shall accord with the principles contained with the Master Plan drawings, dated 20 May 2003, and drawing number HED\B\002 Rev.L and include for temporary landscaping during the construction period. Reason: In the interests of amenity.

20. Prior to the commencement of each phase of the development, details of a comprehensive public realm treatment shall be submitted to and agreed with the Local Planning Authority. The details shall accord with the Master Plan principles and Master Plan drawing number HED\B\002 Rev.L and include for the following elements as may be relevant: i) Surfacing ii) Street Lighting iii) Seating iv) Comprehensive Signage Arrangements and Mapping System v) Tree Planting and Soft Landscape, including Artificial Irrigation Systems and Plant Containers vi) Litter Bins vii) Other Street Furniture as may be relevant including Barriers, Bollards, Vehicle Access System, Tree Grills, cycle stands and motorcycle parking facilities viii) Water Feature Ix) Kiosks Facilities (St. John Street and The Hayes only) Thereafter the approved details shall be implemented in accordance with the timetable agreed in condition 21. Reason: To secure the benefits of the Master Plan.

21. Prior to the commencement of development a comprehensive phasing plan for the development shall be submitted to and agreed with the Local Planning Authority. The phasing plan shall identify and describe the phases of construction of development, including the relevant public realm, landscaping, and infrastructure elements of the Master

5 Plan, and shall ensure for the safe and convenient pedestrian and vehicular access throughout the site for those plots not under construction. The development shall be carried out in accordance with the provision of the approved phasing plan and / or any subsequent amendment to it approved by the Local Planning Authority in writing. Reason: To ensure an orderly form of development and to ensure satisfactory access and environment within the site.

22. Unless otherwise agreed with the Local Planning Authority in writing details submitted in pursuance of condition 20 and 21 shall ensure a scheme of works for the treatment of Working Street, Trinity Street and St. John Street is implemented in the 1st phase of development. Reason: To make provision for the satisfactory public amenity and to mitigate the adverse effects of the construction of the whole development, and to secure a comprehensive public realm treatment with adjacent improvements to Queen Street.

23. Prior to the commencement of development a comprehensive public art strategy shall be submitted to and approved by the Local Planning Authority, which accords with the Master Plan document. The strategy shall make provision for a range of commissions which are visibly accessible to the public and enhance the character and legibility of the development and has particular regard to the public realm areas identified in the Master Plan, and make provision for future maintenance of the art works. The approved strategy shall be implemented in accordance with the approved phasing plan submitted and agreed under conditions 20 and 21. Reason: In the interests of visual amenity.

24. Prior to the commencement of development of the relevant phase a construction management plan shall be submitted and approved by the Local Planning Authority and shall include for details of demolition, site hoarding (incorporating anti graffiti and public art), site security, wheel washing facilities, access and egress, construction routes, signage, noise and dust mitigation measures, community liaison, site compounds, construction parking and hours of operation. The approved plan shall thereafter be implemented throughout the construction period. Reason: To safeguard the amenities of adjacent occupiers and users of the city centre.

25. Unless otherwise agreed with the Local Planning Authority in writing no demolition of buildings identified within Phase 2a, 2b and 3 on plan reference App 17.B xvi (Appendix 17) shall be undertaken without an approval of reserved matters application or such other detailed application, having first been approved for the redevelopment of the site and a contract let for the construction of the said detailed approval which includes an unconditional arrangement for contractors to enter the site and carry out its comprehensive redevelopment on completion of the demolition.

6 Reason: To secure an orderly form of development and to maintain the vitality and vibrancy of the city centre.

26. Details submitted in pursuance of condition 1 in respect of siting, design and external appearance should unless otherwise agreed with the Local Planning Authority conform to the Master Plan principles.

The submitted details shall also have regard where appropriate to the following particular elements: (i) The provision of a comprehensive network of sheltered or covered pedestrian walkways through out the scheme. (ii) The elevational treatment and layout of the department store avoiding large areas on unrelieved cladding/walls and maximum active ground and first floor frontages onto Hayes Bridge Road and Bute Terrace including entrance onto Bute Terrace. (iii) The layout of the multi-storey car parks maximising active ground floor uses onto the street and public realm frontages, and the use of external materials and elevational treatment, which avoid unrelieved and monotonous frontages. (iv) The rooflines of the buildings creating clear and well-defined silhouette onto the skyline, which avoid intrusion of ad hoc roof plant and external machinery. (v) The high level links between the existing St David’s development and the proposed development protecting the vista along Hill Street. (vi) The design of the internal covered arcades creating a clear distinctive character that is appropriate to the city centre, having regard to the design of the shop frontages, proportions, natural and artificial lighting and materials.

Reason: In the interests of visual amenity and urban design.

27. Prior to commencement of the relevant phase of development, details of a sustainability strategy shall be submitted to and approved by the Local Planning Authority. The submitted details shall have regard to the principles outlined in the sustainability statement submitted by the agents on the 25 April 2003 and include details for recycling used materials from the site. The development shall thereafter be implemented in accordance with the approved strategy. Reason: To secure sustainable development.

28. Unless otherwise agreed with the Local Planning Authority in writing, no development shall take place until a Schedule of Works and plans for the extension of the existing library facility into the adjacent existing units and for the recladding and remodelling of the library entrance area have been submitted to and agreed by the Local Planning Authority. The approved works shall be implemented in accordance with the phasing details agreed in Condition 21.

7 29. Unless otherwise agreed with the Local Planning Authority in writing details submitted in pursuance of Condition 21 and 25 shall ensure that the existing post office unit within the site is not demolished until such time as a replacement site has been submitted to and agreed with the Local Planning Authority and available for beneficial exceptions in accordance with a timetable to be agreed with the Local Planning Authority prior to any demolition of the existing post office unit. Reason: To secure the use of a post office facility within the city centre and in the public interest.

30. Notwithstanding the submitted plans, prior to the commencement of each relevant phase of development a comprehensive servicing strategy including taxis, coaches and disabled parking, shall be submitted to and agreed with the Local Planning Authority, which shall demonstrate the areas of vehicular servicing of all business premises within the application site, including the existing St David's Shopping Centre service ramp, and such other adjacent business premises which currently rely on service access through the application site. Thereafter the strategy shall be implemented in accordance with the approved scheme. Reason: To facilitate an orderly form of development and to ensure service access to the existing premises.

31. Details submitted in pursuance of condition 21 shall include for a scheme of improvement and enhancement works for the existing Hill Street Colonnade and Cathedral Walk frontage and recladding of the existing service ramp. Thereafter the applicant shall use reasonable endeavours to implement the approved scheme in accordance with the timetable submitted and agreed within condition 21. Reason: In the interest of visual amenity.

32. Notwithstanding the provisions of the Town & Country Planning (General Permitted Development) Order 1995 (or any Order revoking and/or re-enacting that Order), details of any external plant, equipment, antennae and telecommunication equipment shall be submitted to and agreed with the Local Planning Authority prior to its installation on site. Reason: In the interests of visual amenity.

33. A comprehensive scheme for the provision of bus shelters and stops and associated real time information displays and bus boarders shall be submitted to and agreed by the Local Planning Authority prior to commencement of each phase of development and also implemented in accordance with a timetable also to be agreed with the Local Planning Authority prior to commencement of development. Reason: To facilitate the use of the public transport and accord with the Local Plan Policy 14.

34. Details submitted in pursuance of condition 1 in regard to any multi- storey car park shall include for the provision of a car park layout design (internal) which accords with 'best practice' in respect of

8 lighting, disabled parking, parent child parking, signage including VMS, pedestrian movement, the provision of CCTV, lift design and internal finishes. Thereafter the scheme shall be implemented in accordance with the approved design prior to beneficial use. Reason: In the interests of amenity, safety and correct pedestrian and vehicle access.

35. No multi-storey car park shall be demolished until such time as a detailed scheme has been submitted to and approved by the Local Planning Authority for replacement car parking and facilities (including provision of a shop mobility facility) of such capacity and operation as may be agreed with the Local Planning Authority in writing. Reason: To make provision for the continued operation and vitality of the city centre.

36. Notwithstanding the submitted plans prior to the commencement of development full details of works to the relevant existing highway shall be submitted to and agreed with the Local Planning Authority. Such details shall include for road alignments, surfaces, construction details, street furniture, signs, pedestrian/cycle crossings, disabled parking, cycle and motorcycle facilities and other such infrastructure elements. Thereafter the approved scheme shall be implemented in accordance the phasing timetable plan outlined in condition 21. Reason: To make provision for the safe, convenient and satisfactory management of traffic to and through the site.

37. No development shall take place within the area indicated on plan reference 010001B-028F (Appendix 6C) until the applicant or their agents or successors in title has secured the implementation of a programme of archaeological work in accordance with a written scheme of investigation, which has been submitted by the applicant in writing by the Local Planning Authority. Reason: To identify and record any features of archaeological interest discovered during the works in order to mitigate the impact of the works on the archaeological resource.

38. Prior to commencement of development of any residential units a scheme shall be submitted to and approved in writing by the Local Planning Authority to provide that all habitable rooms exposed to external railway noise in excess of 66 dBA Leq 16 hour (free field) during the day (07.00 to 23.00 hours) or 59 dBA Leq 8 hour (free field) at night (23.00 to 07.00 hours) shall be subject to sound insulation measures to ensure that all such rooms achieve an internal noise level of 40 dBA Leq 16 hour during the day and 35 dBA Leq 8 hour at night. The submitted scheme shall ensure that habitable rooms subject to sound insulation measures shall be provided with acoustically treated active ventilation units. Each ventilation unit (with air filter in position), by itself or with an integral air supply duct and cowl (or grille), shall be capable of giving variable rates ranging from - 1) an upper rate not less than 37 litres per second against a back

9 pressure of 10 newtons per square metre 2) a lower rate of between 10 and 17 litres per second against zero back pressure. No habitable room shall be occupied until the approved sound insulation and ventilation measures have been installed in that room. Unless otherwise agreed with the Local Planning Authority in writing, gardens shall be designed to provide an area which is at least 50% of the garden area for sitting out where the maximum day time noise level does not exceed 55 dBA Leq 16 hour [free field]. Reason: To ensure that the amenities of future occupiers are protected.

39. Unless otherwise agreed with the Local Planning Authority in writing, no construction of the proposed new access road between Mill Lane and Hayes Bridge Road shall be commenced until, a detailed application for the 'landmark building' and replacement hotel car park have been submitted to and approved by the Local Planning Authority. The submitted scheme shall unless otherwise agreed with the Local Planning Authority in writing, accord with the principles contained within the Master Plan and appendix 5B (Public Realm Re. 2) and shall include for new access and egress to the hotel site pedestrian links, hard and soft landscape works and works to the northern entrances of the hotel and timetable for the implementation of an approved scheme. Reason: To secure an orderly form of development and achieve the planning transportation and urban design benefits of the Master Plan proposals.

40. Details submitted in pursuance of condition 1 in respect of the site south of Adam Street shall ensure for a comprehensive mixed-use development in accordance with the Master Plan. The submitted scheme shall make provision for improved links to the existing footbridge and for on site landscape and open space works identified in the Master Plan. The development shall not be brought into beneficial use until the upgraded pedestrian crossing on Bute Terrace and the proposed light controlled junction on Adam Street (identified on plan ref. D101318/004B) have been implemented to the satisfaction of the Local Planning Authority. Reason: To secure comprehensive development and achieve the planning, transportation and urban design benefits of the Master Plan and in the interest of highway safety.

41. Notwithstanding the submitted plans, details of the proposed road network around the existing Marriott Hotel shall be submitted to and approved by the Local Planning Authority prior to commencement of development; such details shall make provision for bus stops and shelters, access / egress details to the existing hotel and proposed car park, associated public realm details, ‘access to the landmark building site’ and traffic managements measures. The approved details shall be implemented in accordance with the phasing works under condition 21. Reason: To secure a satisfactory access arrangements for the hotel,

10 public transport facilities and to secure the benefits of the Master Plan.

42. No development shall commence until, details of the proposed 'break out' area for St David's Hall, the art gallery display area and police accommodation have been submitted to and agreed with the Local Planning Authority and thereafter implemented in accordance with a timetable to be agreed with the Local Planning Authority at the time of submission. Reason: To secure the benefits of the approved Master Plan and mixed uses.

43. Prior to commencement of the relevant phase of residential development a scheme shall be submitted to and approved in writing by the Local Planning Authority to provide that all habitable rooms exposed to external road traffic noise in excess of 63 dBA Leq 16 hour [free field] during the day [07.00 to 23.00 hours] or 57 dBA Leq 8 hour [free field] at night [23.00 to 07.00 hours] shall be subject to sound insulation measures to ensure that all such rooms achieve an internal noise level of 40 dBA Leq 16 hour during the day and 35 dBA Leq 8 hour at night. The submitted scheme shall ensure that habitable rooms subject to sound insulation measures shall be provided with acoustically treated active ventilation units. Each ventilation unit (with air filter in position), by itself or with an integral air supply duct and cowl (or grille), shall be capable of giving variable ventilation rates ranging from - 1) an upper rate of not less than 37 litres per second against a back pressure of 10 newtons per square metre and not less than 31 litres per second against a back pressure of 30 newtons per square metre, to 2) a lower rate of between 10 and 17 litres per second against zero back pressure. No habitable room shall be occupied until the approved sound insulation and ventilation measures have been installed in that room. Unless otherwise agreed with the Local Planning Authority in writing, gardens shall be designed to provide an area which is at least 50% of the garden area for sitting out where the maximum day time noise level does not exceed 55 dBA Leq 16 hour [free field]. Reason: To ensure that the amenities of future occupiers are protected.

44. Prior to commencement of the relevant phase of development a scheme shall be submitted to and approved in writing by the Local Planning Authority to provide that the dwellings are designed and constructed so as to ensure that vibration dose values do not exceed 0.4m/s1.75 between 07.00 and 23.00 hours, and 0.26m/s1.75 between 23.00 and 07.00 hours, as calculated in accordance with BS 6472:1992, entitled “Guide to Evaluation of Human Exposure to Vibration in Buildings”, [1Hz to 80Hz]. The dwellings shall be constructed in accordance with the approved scheme.

11 Reason: To ensure that the amenities of future occupiers are protected.

45. H7G Plant Noise

46. Insofar as the permission relates to any Class A3 Use, details of the hours of operation and sound insulation measures shall, be submitted to and approved by the Local Planning Authority in writing and thereafter implemented in accordance with the approved details prior to beneficial use. Reason: To preserve the amenities of possible nearby residential occupiers.

47. No works shall commence in Hill Street or the Open Market site until a scheme for new or replacement market stalls have been submitted to and agreed by the Local Planning Authority. The approved scheme shall therefore be implemented in accordance with the approved phasing details under condition 21. Reason: To secure the benefits of the Master Plan.

48. Unless otherwise agreed with the Local Planning Authority in writing details submitted in pursuance of 1 in respect to the proposed Department Store and ‘landmark building’ identified within the Master Plan shall ensure the siting of the proposed development has regard to maintaining a vista through Hayes Bridge Road. Reason: In the interests of urban design.

49. Details submitted in pursuance of condition 1 shall in respect of the proposed development immediately east of, and adjoining the existing Library site, shall unless otherwise agreed with the Local Planning Authority accord with the principles contained in the Master Plan, and implemented in accordance with the phasing details under condition 21. Reason: To secure the benefits of the Master Plan.

50. Unless otherwise agreed with the Local Planning Authority in writing, details submitted in pursuance of condition 1 in respect to the design of City Block 2, the scale, form, massing and height shall not exceed that indicated in Figure 17 of the Master Plan. Reason: To ensure a satisfactory form and scale of development appropriate to the existing development on the western side of The Hayes within the St Mary Street Conservation Area.

RECOMMENDATION 4: To protect the amenities of occupiers of other premises in the vicinity attention is drawn to the provisions of Section 60 of the Control of Pollution Act 1974 in relation to the control of noise from demolition and construction activities. Further to this the applicant is advised that no noise audible outside the site boundary adjacent to the curtilage of residential property shall be created by construction activities in respect of the implementation of this consent outside the hours of 0800-1800 hours

12 Mondays to Fridays and 0800 - 1300 hours on Saturdays or at any time on Sunday or public holidays. The applicant is also advised to seek approval for any proposed piling operations.

RECOMMENDATION 5: This development falls within

a] a radon affected area and may require full radon protective measures,

b] an area which has a geological predisposition to radon and will require basic radon protective measures,

as recommended for the purposes of the Building Regulations 1991. Should you have any queries in this matter I would suggest you consult with my Building Control Division

RECOMMENDATION 6: The applicant be advised that the Local Planning Authority would wish to see a variety of separate architectural design commissions for the detailed design of parts of the development in order to secure a variety of architectural solutions and in the interests of visual amenity.

RECOMMENDATION 7: The applicant be requested to explore potential temporary uses of new shop units until such time as the units are let on a more permanent basis.

RECOMMENDATION 8: The applicant be requested to liase with the St David's Hall Management regarding the construction operation of the development with a view to ensuring minimal disruption to the operation of St David's Hall and ensure the efficient and convenient operation of the hall.

RECOMMENDATION 9: The applicant be advised of the need to secure a section 278 Agreement under the Highways Act 1980 for the relevant highway works associated with the proposal.

1. DESCRIPTION OF PROPOSED DEVELOPMENT

1.1 An outline planning application with all matters except means of access reserved for subsequent approval.

1.2 The proposals identify a mixed-use development including new shopping and leisure facilities together with commercial, hotels and residential uses. The proposals also include the refurbishment and improvement of the existing Cardiff Central Library, creation of new streets and public squares, enhancement of the environment of The Hayes, public realm improvements across the site, and comprehensive transportation proposals in respect of provision for pedestrians, cars, public transport, cyclists, coaches, taxis, servicing and emergency vehicles, and the mobility impaired.

13 1.3 The overall scheme includes for a total of 205,720 sq.m. gross floor space, comprising 84,150 sq.m. gross of new retail floor space including A2 uses, convenience shopping, and a department store (of up to 25,000 sq.m. gross floor space). The proposals also include two new multi-storey car parks within the eastern part of the site (total of 2500 spaces) and 800 spaces at the Adam Street site, office space provision (up to 57,250 sq.m. gross), leisure (up to 1800 sq.m. gross), and residential (between 80 to 750 units).

1.4 In order to facilitate the development the following buildings will be demolished: Oxford Arcade, Bridge Street / Tredegar Street / David Street multi-storey car parks, Toys R Us, and the Ice Rink.

1.5 The proposals identify the following:

1.5.1 Uses

At the outline planning application stage the exact combination of uses is not specified other than within a maximum and minimum floor space range for each use in order to ensure flexibility and adaptability within the scheme and to enable a range of combinations of uses to be considered.

(i) Retailing - Of the 84,150 sq.m. of gross retail floor space proposed, approximately 63,174 sq.m. will be additional gross A1 floor space with 57,742 sq.m. additional gross comparison retail floor space and additional net non- food (comparison) retail floor space of 40,419 sq.m.; - The proposals envisage a new department store at the southern end of the site (on the site of the existing Ice Rink / Toys R Us), seven new major shop units (of between 700-2,500 sq.m.), 100 shop units of 110- 359 sq.m., and a number of small single storey shop units and stand- alone kiosks; - The majority of the shops will be on the proposed north-south Grand Arcade, fronting The Hayes, and facing Hill’s Street and Tredegar Street with smaller shop units along the east-west Bridge Street Arcade and kiosks located around The Hayes area. It is also identified that a number of retail units could be accommodated on the Adam Street site (up to 2000 sq.m. total retail floor space); - Restaurants and cafe / catering uses (up to 3250 sq.m.) (Class A3) are also identified.

(ii) Residential - The main city centre development site has potential for between 80 to 450 units, these would be located on the upper levels of St. David’s 2 and Cathedral Walk / St. David’s Open Market; - An additional 300 units (maximum) is proposed on the Adam Street site; - It is envisaged that 20% affordable housing will be provided on-site provided Welsh Assembly grant funding is available, reducing to 12% affordable housing should grant funding not be provided;

14 (iii) Offices - A maximum of 57,250 sq.m. of office floor space could be provided on the upper floors of St. David’s 2 and on the Adam Street site;

(iv) Leisure - Up to 1800 sq.m. of leisure space could be provided this would be on an upper level within St. David’s 2.

(v) Hotel - Opportunities are identified within the main city centre development and on Adam Street as having potential for hotels development of up to 17,000 sq.m.

(vi) Cardiff Central Library - The library will be retained in its current location though the building will be refurbished and improved to include ground floor remodelling to provide an improved library entrance together with the introduction of active frontages to Bridge Street and Hill’s Street, such as shops and cafes; - The proposals also include a new building (of potentially 7 storeys) to the east of the library (adjacent to the refurbished open market) which is identified for library usage on the ground floor with residential / offices / hotel above. The building will also extend across the entrance to the existing ramped servicing access to the St. David’s Centre.

(vii) Prayer Room / Crèche / Shopmobility / Police Unit - Non-denominational prayer room of up to 50 sq.m. and crèche of up to 500 sq.m. within the main shopping area development; - Shopmobility Centre within the main multi-storey car park and integrated into the main shopping area. Lifts would be provided to access all car park levels from the unit. - A police information unit (of approximately 70 sq.m.) is identified within the main shopping centre area. (Refer to Condition 42)

(vii) Art Gallery / Break-out Space - An area of approximately 1,800 sq.m. gross is identified on an upper floor of the main development, around Hill’s Street, with potential to accommodate these public facilities. It is suggested that the breakout space would be linked to St. David’s Hall. (Refer to Condition 42)

(viii) New Landmark Building, Hayes Place - A new building of 5 storeys is proposed on the corner of Mill Lane and Hayes Bridge Road to the north of the Marriott hotel building (on an existing surface parking area for the hotel). This building would serve as a termination of the views southwards along The Hayes and would also enclose the proposed Hayes Place open space; - It is envisaged that the building would include 1-2 floor of retailing with residential / hotel / office uses possible above.

1.5.2 Scale and Massing of Buildings

Whilst it is noted that the design, scale, massing, and precise siting of buildings is a reserved matter some analysis has been undertaken of the potential scale and massing of buildings across the development site and identifies that the development will be broken down into individual blocks marked by variable roof lines and designed to reflect the scale and rhythm of the existing street scene.

(i) Fronting The Hayes: Buildings varying between 3 to 8 storeys towards the northern end rising up to 12 storeys to its junction with the proposed 24-hour pedestrianised Tredegar Street. It is envisaged that these buildings will vary in scale and form (Refer to Condition 50); (ii) Fronting Hill’s Street: Buildings of 3 to 8 storeys with a landmark building on the corner of Hill’s Street and The Hayes; (iii) Area North of the proposed Tredegar Street / Grand Arcade / Bridge Street Arcade: Up to 6 storeys; (iv) Redeveloped David Street Car Park: Up to 7 storeys and incorporating a high-level vehicle bridge across Mary Ann Street linking into the main multi-storey car park; (v) Proposed Department Store: Up to 4 storeys and designed to be a landmark building when viewed from the south; (vi) Adam Street: Up to 17 storeys incorporating 3/4 storeys of parking with three tall building blocks above which reduce in scale and massing towards the TA Centre and being of greatest height adjacent to Pellett Street.

1.5.3 Alterations to the Highway Network

(i) Partial closure / truncation of Bridge Street to create an east-west covered pedestrian arcade (Bridge Street Arcade); (ii) Closure of the western extent of Tredegar Street to create a 24-hour pedestrianised street; (iii) Partial pedestrianisation of the northern section of Mill Lane together with restrictions upon traffic movement along the rest of its length to allow access only for buses, taxis, traffic accessing the Marriott hotel, and out of hours servicing traffic; (iv) Traffic restrictions along The Hayes and the northern part of Hayes Bridge Road to extend the area of pedestrian priority. Only limited servicing access during specified hours will be permitted; (v) Pedestrianisation of Pellett Street and creation of a single access / egress on the southern side of Adam Street to serve the redeveloped site; (vi) New and modified pedestrian crossings at existing signal controlled junction: - Guildford Street / Bridge Street / Churchill Way; - Mary Ann Street / Bridge Street; - Mary Ann Street / Bute Terrace; - Bute Terrace / Hayes Bridge Road / Customhouse Street; (vii) Introduction of a signal controlled junction at Churchill Way / Bute Terrace;

16 (viii) Further pedestrian crossings on Adam Street and Mary Ann Street.

1.5.4 Public Realm Improvements

(i) Creation of New Public Open Spaces

- Hayes Place (southern end of The Hayes): Key major public space, possible water feature and public art framed by a proposed landmark building (see 1.5.1 (viii)); - Hill’s Street / Market Square (pedestrianised Hill’s Street): A 24-hour open pedestrianised street with central market area (possibly a flower market) and tree planting; - Victoria Place (Hayes Island to Duke Street): Upgrading and enhancing of the pedestrianised area with high quality paving, street furniture, lighting and seating and introduction of cafe kiosks; - Library Place / Square (adjacent to Cardiff Central Library): Improved setting for Cardiff Central Library with seating and tree planting; - Open Market (area around St. David’s open market including existing Job Centre car park): Upgrading of the street market with new stalls and creation of a formal pedestrianised route, including screen walling to the rear of properties in Charles Street and to the existing service ramp, gateway artwork feature at its junction with Bridge Street, tree planting; - Cathedral Square (area between Marks and Spencer and St. David’s Cathedral Church): Repaving, seating, planting; - Grand Arcade Square (junction of the department store and Grand Arcade); - Pellett Street / Adam Street: Pedestrianisation and tree planting.

(ii) Improved Pedestrian Environment - Creation of a covered 18-hour north-south arcade (Grand Arcade); - Improvements to the pedestrian environment of Hill’s Street (see 1.5.4(i) above) together with a first floor pedestrian bridge link from the existing St. David’s Centre; - Creation of a 24-hour east-west pedestrianised route along Tredegar Street; - Creation of an 18-hour east-west covered arcade within the central part of the main shopping area (Bridge Street Arcade); - Pedestrian priority along The Hayes with restricted vehicle access, and tree planting and landscaping. This pedestrianised street will include a central zone of cafes, with an adjacent ‘promenade’ area for walking, and a ‘browse zone’ adjacent to shop frontages; - Improved pedestrian facilities along Mary Ann Street and Bridge Street and enhancement of the pedestrian area around the CIA (Arena Plaza); - Tree planting and improved pedestrian facilities along Bute Terrace, Custom House Street and Hayes Bridge Road; - Improvements to the pedestrian environment to the rear of Jury’s hotel, which will link into the pedestrianised Tredegar Street east-west route;

17 - Introduction of public art; quality robust paving and street furniture; lighting; tree planting within pedestrianised areas and along public streets; - Public toilets will be incorporated across the development.

1.5.5 Car Parking

(i) Main City Centre Development Site - The proposals include the demolition of the existing car parks on Bridge Street, David Street and Tredegar Street (1894 spaces). These will be replaced by a new multi-storey car park of 1500 spaces integrated into the main shopping centre, 500 space multi-storey car park on the site of the existing David Street car park, and a basement car park for the department store of 500 spaces. Vehicular access to the two multi- storey car parks will be from Mary Ann Street and Bridge Street, with access to the department store car park from Hayes Bridge Road; - Decked two-storey car park of 100 spaces for the Marriott hotel (sited to the south-west of the main hotel building) to replace parking provision displaced by the Hayes Place landmark building.

(ii) Adam Street Site - Temporary public multi-storey car parking provision of 1000 spaces on the Adam Street site to partly mitigate the loss of parking provision within the city centre during the construction period, with 200 spaces removed following completion of the replacement parking provision, to result in a 800 space permanent car park on the Adam Street site (500 spaces will act as a ‘satellite’ shoppers car park for the city centre, with 300 spaces for the proposed residential / office / retail uses on the site itself). The deletion of the 200 spaces will be achieved by removing the upper decks of the car park, which will then be converted to private open space associated with the future uses of the site.

(iii) Overall Parking Provision - A total of 3,400 parking spaces will be provided within the development site, this will incorporate 3000 public shoppers spaces (main multi- storey car park, department store car park, Adam Street site, former David Street NCP site). The remainder of provision (400 spaces) is related to the Marriott hotel and Adam Street uses. - A net increase in parking provision of 1,106 spaces will result. - Disabled and Shopmobility parking spaces will be provided within the proposed public car parking provision.

1.5.6 Public Transport

(i) New bus stops will be provided at the following locations: - Hayes Bridge Road and Bute Terrace (adjacent to the proposed department store); - Bridge Street and Mary Ann Street (eastern side of the main development area);

18 - Northern side of Customhouse Street (adjacent to the Marriott hotel); and, - Southern side of Adam Street (related to the proposed redevelopment of the Adam Street site). (ii) Bus priority measures / improvements to bus infrastructure: - Bus routes will continue to operate along Mill Lane with a new bus route created in front of the Marriott hotel to join Hayes Bridge Road; - Introduction of a two-way bus-only flow along Custom House Street; - Bus-only lane introduced along part of Bute Terrace. (iii) Improved pedestrian environment and pedestrian crossing facilities linking to Queen Street rail station and Cardiff Central Station.

1.5.7 Cycling / Servicing / Taxis / Coaches (i) Cycling - new cycle parking areas on the edge of the pedestrian priority areas. Secure cycle storage area within the redeveloped David Street car park. (ii) Servicing - segregated physically from pedestrians and by time restrictions. Out of hours servicing to the western side of the Hayes will operate south-north up Mill Lane / The Hayes / Working Street / St. John Street and joining on to Duke Street, with the servicing route along Church Street / Trinity Street / Wharton Street retained. Access to both the main retail area and department store basement servicing areas will be from Bute Terrace. The existing rooftop service area and ramped access to the St. David’s Centre will remain. Servicing of the Adam Street uses will be via Morgan Street into Taff Street. (iii) Taxis - new ranks on Tredegar Street and Mill Lane; (iv) Coaches - 20 minute set-down / pick-up coach facilities along the southern part of Churchill Way.

1.5.8 Environmental Statement The outline planning application is accompanied by a formal Environmental Statement prepared pursuant to the Town and Country Planning (Environmental Impact Assessment) Regulations 1999 and in accordance with Schedule 4 of the Environmental Impact Assessment Regulations 1999. The Environmental Statement provides a comprehensive assessment of the proposal and evaluates issues including retailing, traffic / transportation issues, urban design, public realm, justification for the development, environmental issues (ecology, air quality, ground conditions, noise and vibration), as well as phasing and construction assessments.

2. DESCRIPTION OF SITE

2.1 The application relates to an area of 16.4 hectares of land within the city centre (refer to site location plan). The site is bounded by Queen Street to the north, Cathedral Walk / Barrack Lane / Churchill Way to the east, Bute Terrace and Customhouse Street to the south and Mill Lane / The Hayes / Trinity Street / St. John Street to the west. The site also includes land to the south of Adam Street bounded by Morgan Street to the east, Pellett Street to the west and the railway line to the south.

2.2 The site comprises a variety of uses including the existing St. David’s Centre, Oxford Arcade, St. David’s Link, Marriott and Jury’s hotels, Cardiff Central Library, Toys R Us, Ice Rink, and David Street and Bridge Street multi-storey car parks with mixed business, storage and light industrial uses at the Adam Street site. It is noted that St. John the Baptist Church, the churchyard, Old Library, and the CIA lie outside the application site.

2.3 The existing floor space for all uses within the site comprises 178,466 sq.m. gross of which 72,886 sq.m. gross is retail floor space. There are 1894 existing car parking spaces within the site.

2.4 It is noted that the St. Mary Street and Queen Street Conservation Areas extend partly into application site. A number of listed buildings also lie within the site including the Habitat premises, Hayes Island Snack Bar, and the ‘Golden Cross’ public house.

3. SITE HISTORY

3.1 Various planning applications have been received over the years for individual premises, land parcels or groups of properties within the application site boundary.

4. POLICY FRAMEWORK

4.1 Adopted City of Cardiff Local Plan (January 1996):

Policy 3 (Development in Conservation Areas) Policy 11 (Design and Aesthetic Quality) Policy 12 (Energy Efficient Design) Policy 14 (Facilities for Public Transport Services) Policy 16 (Traffic Calming) Policy 17 (Parking and Servicing Facilities) Policy 18 (Provision for Cyclists) Policy 19 (Provision for Pedestrians) Policy 20 (Provision for Special Needs Groups) Policy 24 (Affordable and Special Needs Housing) Policy 25 (Affordable Housing within the Built-up Area) Policy 31 (Residential Open Space Requirement) Policy 33 (Land for Business, Industry and Warehousing) Policy 35 (City Centre Principal Business Area) Policy 36 (Alternative Use of Business, Industrial and Warehousing Land) Policy 39 (Older Industrial and Commercial Areas) Policy 43 (Enhancement of Existing Open Space) Policy 45 (Sport, Recreation and Leisure Facilities) Policy 46 (Hotel Development) Policy 47 (City Centre Principal Shopping Area) Policy 50 (Retail Development)

4.2 South Glamorgan Replacement Structure Plan 1991-2011: EV 2 (Urban Regeneration); E1 (Business and Industrial and Warehousing); E3 (Protection of Business and Industrial Land); H1 (New Dwelling Requirement); H4 (Special Housing Provision); H5 (Affordable Housing); H6 (Community Facilities) R1 (Regional Shopping Centre) R4 (Out of Centre Retail Development) T1 (Tourism and Recreational Developments) E5 (Office Development)

4.3 City Centre Strategy 1998-2002 and 2003-2006 (Consultation Draft)

4.4 City Centre Fringe Area Planning Brief (CBDC February 1990)

4.5 City Centre Design Guide (September 1994)

4.6 Supplementary Planning Guidance ‘Open Space’ (June 2000)

4.7 ‘Refuse Storage’ Draft Supplementary Planning Guidance

4.8.1 Supplementary Planning Guidance ‘ Premises for Eating, Drinking and Entertainment in the City Centre’ (September 2000) and ‘Restaurant, Takeaways and other Food and Drink Uses’ (June 1996)).

4.9 Planning Policy Wales (March 2002)

4.10 Planning Guidance (Wales) Technical Advice Note 2: ‘Planning and Affordable Housing’ Planning Guidance (Wales) Technical Advice Note 4: ‘Retailing and Town Centres’ Planning Guidance (Wales) Technical Advice Note 11: ‘Noise’ Planning Guidance (Wales) Technical Advice Note 12: ‘Design’ Planning Guidance (Wales) Technical Advice Note 13: ‘Tourism’ Planning Guidance (Wales) Technical Advice Note 18: ‘Transport’

4.11 Strategic Planning Guidance for South East Wales (January 2000)

4.12 Cardiff Strategic Tourism Growth Area Action Plan

4.13 Part IV of the Environment Act 1995; St Mary Street Air Quality Management Area (AQMA); Local Air Quality Management Policy Guidance.

4.14 ‘Access For All’ Supplementary Planning Guidance (May 1993)

4.15 Draft ‘Walking and Cycling Strategy for Wales’ (Welsh Assembly, February 2003); Traffic Advisory Leaflet 9/93 ‘ Cycling in Pedestrian Areas’ (Dept. of

21 Transport, 1993); National Cycling Strategy; Cardiff County Council’s ‘Local Cycling Strategy’ and ‘Strategic Cycle Route Network’.

4.16 In terms of the emerging Unitary Development Plan context for this outline planning application, the Cardiff UDP (1996-2016) Outline Proposals for Consultation document was published in May 2001 and it is planned to formally place the UDP on Deposit in September 2003.

5.0 INTERNAL CONSULTEE RESPONSES (Comments on the amended proposals are in italics)

It is noted that round-the-table meetings were held with this Council’s Service Areas in October 2002 (prior to the submission of the planning application), December 2002 (following the submission of the application), and in May 2003 (after the submission of the amended proposals). These meetings invited Service Areas to attend and comment on the proposals in addition to submitting formal written responses.

5.1.1 The Chief Traffic and Transportation Officer’s comments have been incorporated into the ‘Analysis’ section of the Committee Report (refer to para. 8.7). The following issues are covered in his comments: - Trip Generation and Distribution; Parking Standards; Servicing; Cyclist Facilities; Motorbike Facilities; Coach Parking; Event Day Scenarios; Construction Phasing; Disabled Parking Provision and Shopmobility; Safety and Security in Car Parks; Bus Infrastructure; Highway Access within the Site; Taxi Provision; Event Days; General Comments; Section 106 Contributions sought (VMS / Park and Ride Bus Links / Junction Improvements / Cycle Review / Traffic Orders / Car Park Management / Review Mechanism / Car Park Claw Back on Adam Street / Landscaping and Highway Maintenance).

(Refer to Conditions 5, 30, 33, 34, 35, 36 and 41, Recommendation 9, and Section 9 of this Report (Section 106 Agreement)).

5.2 The Head of Strategic Planning’s comments have been incorporated into the ‘Analysis’ section of the Committee Report (refer to para’s 8.8, 8.9, 8.10, 8.11, 8.14, and 8.20.8). The following issues are covered in his comments: - Examination of the need for additional retail facilities in the city centre; Whether a sequential approach to site selection has been adopted; Analysis of the impact of St. David’s 2 upon other shopping centres and shopping strategies in the development plan; Acceptability of retailing on the Adam Street site; - Response to the comments of ‘Planning Perspectives’ in respect of the retailing justification (refer to para. 7.11); - Acceptability of residential development; Affordable housing provision within the site; Adequacy of public open space provision within the site; - Acceptability of the loss of existing office accommodation and creation of new office floor space within the City Centre Principal Business Area;

22 - Acceptability of the loss of business, industrial and warehousing land at Adam Street; - Suitability of office development within the Principal Business Area; - Acceptability of the proposed public realm improvements; - Recycling of demolition materials.

(Refer to Conditions 12, 13 and 27).

5.3 The Head of Environmental and Public Protection (Pollution Control) comments as follows: (Also refer to para. 8.13 of the ‘Analysis’) (i) General Noise: The development proposes both A3 uses and residential accommodation and he is concerned that future residents will be disturbed by noise from the commercial uses and smells and noise from the proposed A3 uses. Consideration should therefore be given to the siting of residential accommodation, which should be away from delivery bays etc., and A3 uses. It is recommended that details of all proposed residential units, their location and the locations of any plant and equipment are submitted prior to the commencement of construction; (ii) Railway Noise: A condition is recommended in respect of restricting the exposure of habitable rooms to external railway noise within any residential development sited close to the railway line, together with the need for sound insulation and ventilation measures to habitable rooms. The condition should also refer to designing gardens which do not exceed certain noise levels where located close to the railway line; (iii) Ground Gas Protection: A condition is recommended to require a scheme detailing the measures for monitoring gases generated on site or on adjacent land; (iv) Contaminated Land Measures: A condition is recommended requiring a scheme detailing the measures necessary for the purposes of identifying chemical and other contaminants on the site; (v) Radon Gas Protection: Basic radon protective measures will be required.

Amended Proposals:

Noise The scale of development may cause significant detriment to local businesses during the construction period and therefore a scheme of mitigation measures for each phase of the development is recommended prior to their commencement, such measures should include noise and dust suppression.

23 residential amenity concerns can be addressed by limiting servicing hours, restricting the hours of operation of A3 uses, and requiring sound insulation or noise mitigation measures. Appropriate conditions on these issues are recommended.

Appropriate conditions in respect of railway noise and vibration are also recommended with regard to any residential development at the Adam Street site.

Air Quality The Air Quality Assessment is agreed with in that, once operational, the impact of the development upon local air quality is unlikely to be of great detrimental significance.

It is recommended that construction site traffic is prevented from accessing or exiting the site via roads which lead to or from High Street and St. Mary Street in order to protect the air quality of this area which already experiences high pollution levels and is a designated Air Quality Management Area.

Data referred to in the Environmental Statement in respect of NO2 diffusion tube measurements over-reading by 50% was based on data supplied by the National Air Quality Information Archive: this data was in error. Monitoring data from February 2002 to January 2003 shows an over-reading by just 10%. Therefore the Air Quality Management Area declaration will not be amended in the future as suggested by the Statement’ s Air Quality Assessment.

Air Pollution The various commitments to control potential emissions of nuisance to dust at source are welcomed.

The greatest number of complaints of nuisance dust arising from construction works is usually due to vehicle movements on-site. He therefore considers the assessment of ‘moderate’ risk assigned to this activity should instead be ‘high’ risk. Therefore this aspect of dust control should have more emphasis.

Contaminated Land: Reiterates his previous comments.

(Refer to Conditions 9, 10, 14, 24, 38, 43, 44, 45, Recommendation 4, and Recommendation 5)

5.4 The Chief Highways and Parks Officer (Drainage) has no observations though notes that Hyder Consulting may wish to take the opportunity to re- sewer part/all of the redeveloped area and he suggests that they are consulted on the proposals.

Amended Proposals:

(i) All surface water does not flow to a combined storm and foul water sewer as stated. There is also a separate surface water sewer on a

24 separate system basis, which is not taken into account. This surface water sewer currently drains part of the area to be redeveloped to the Harrowby Street pumping station. Under extreme weather conditions any contaminants in this system could be pumped out into Cardiff Bay. These issues should be discussed with Hyder who is the Sewerage Management Contractor on behalf of Welsh Water Plc. and the Environment Agency; (ii) The existing public combined sewerage system is designed to surcharge under certain conditions and the developer must ensure that any basement or underground facilities which may connect to this system are protected from the possible effects of this surcharging; (iii) No mention is made of the existing combined sewerage system surcharging and acting as storage under certain conditions. The replacement of any loss of storage in this system due to sewer abandonment / closure is not evaluated; (iv) The phasing programme only shows the Phase 1A (Sewers) site works – Bridge Street sewer diversions; (v) Various drainage / sewer works are referred to in the construction programmed though are not indicated on the Overall Strategy Programme.

(Refer to Condition 4)

5.5 The Chief Highways and Parks Officer (Waste Management) states the following:

(i) All retailers must have adequate storage facilities for refuse and recycling containers for licensed use; (ii) Where there are road closures (e.g. The Hayes), adequate access and pull-ins are required for the provision of commercial waste collections from the fronts of properties where no rear/underground collections are possible. The surfaces must also be to highway standards and payloads with all paving materials of a suitable standard for cleansing; (iii) Underground collection facilities will be required for the new development areas, which also accommodate skips for recycling of commercial packaging. Access heights, turning circles etc. must be suitable for vehicle types; (iv) A separate area controlled as a recycling centre for all shop occupiers to use as a central facility for recycling is preferred (a ‘commercial recycling bring site’) so that staff of premises from both within and outside St. David’s 2 can use it to drop off items; (v) Street furniture should include ‘on street’ recycling bins for the public which separate plastic drinks bottles, cans and glass. Separate ‘litter’ bins should also be provided at high frequencies particularly near fast food outlets, bus stops and seating areas. Street furniture should avoid corners / niches which would attract litter accumulations and grime. Separate bins / facilities should be provided for cigarettes; (vi) Any residential units must be adequately provided for weekly refuse collections and recycling collections;

25 (vii) Supplementary Planning Guidance is being prepared on Waste Collection and Storage Facilities and the developer should be made aware of this guidance in the design of the development.

(Refer to Conditions 15, 27 and 30)

5.6 The Chief Highways and Parks Officer (Highway Operations) has been consulted in respect of the originally submitted plans and the amended proposals and any comments will be reported to Planning Committee.

5.7 The Chief Highways and Parks Officer (Street Operations) has been consulted on the amended proposals and any comments will be reported to Planning Committee.

5.8 The Head of Parks and Bereavement (Parks) welcomes the proposals in so far as they create a range of opportunities to create new areas of public realm, upgrade the existing public realm, introduce new, interesting and potentially innovative elements into the landscape, and develop all these elements in a co-ordinated and integrated fashion.

The following specific comments are made:

(i) Trees: The proposals identify the removal of 91 trees out of an existing total of 108 trees, however, the proposals indicate the re-planting of significantly more trees than are lost as part of an integrated landscape strategy. Monitoring and assessment of the proposals will be required to prevent unnecessary tree loss and that new planting is appropriate and commensurate with the scale of development and the public realm available.

In developing a tree planting programme, technical issues such as underground services, planting specifications, and means of watering will need to be considered as well as aesthetic aspects such as species selection, form, groupings. Full consultation with his Service Area on all aspects of the tree planting strategy will therefore be expected, particularly if it is anticipated that his Service Area will be responsible for the management / maintenance of these trees.

(ii) Maintenance of Tree Planting: He anticipates that new tree planting on the adopted highways will be included within the terms of the relevant Highway Agreement which will provide a mechanism for securing the payment of commuted sums for maintenance. Should the developers wish to appoint / set up a private management company to maintain the trees, planters, and general landscaping on private and Council- controlled land he has no objection subject to: - the contractor complying with all health and safety and operational requirements; - landscaping works conforming to a rigorous and detailed specification;

26 - a commitment to contribute to the Council’s ‘Cardiff In Bloom’ competition and other events or initiatives; - liaison with the Parks Services to ensure co-ordination of seasonal planting with other planting schemes; - provision of a mechanism to enable the Council to take remedial action and recover costs should the developer/contractor fail in their responsibilities to maintain the landscaped areas to the approved specification. The Council should have provision for sufficient resources to take over maintenance if the developer is unable to meet its commitments.

(iii) Soft Landscaping: The Parks Service should be closely involved in approving the landscaping proposals particularly in areas of adopted highway and where the Council will undertake maintenance / management. Manual handling and access issues with planters and their design and location will need scrutiny. Automatic irrigation is also essential.

Consideration should be given to external floral decorations, which forms part of a Council policy of introducing floral displays into the city centre, together with their aftercare and management and provision of the necessary infrastructure.

Internal spaces should be welcoming and attractive with floral displays introduced.

(iv) Public Art: Any programme for the provision of public art must be accompanied by a clear, agreed and adequately resourced strategy for maintaining the structures.

(v) Policy 31 of the Local Plan (New Open Space on Residential Developments): No active recreational open space is proposed and it is recommended that the Council seeks off-site financial contributions to improve existing open spaces in the locality secured by way of a Section 106 Agreement.

(vi) St. John’s Churchyard: This area is excluded from the boundary of the application site though it is understood that discussions are taking place with the developer to secure improvements to this area and he advises that the involvement of the Parks Service is sought in such proposals to ensure that the mature trees are safeguarded and that no level changes are introduced which could affect the trees. As the area is a burial ground any proposals require caution.

Amended Proposals:

The Head of Parks and Bereavement reiterates his previous comments. He also identifies that it is vitally important that the necessary foundations are put in place to support the long-term management, maintenance and improvement of the extensive public realm provision in terms of the right

27 infrastructure, e.g. irrigation, the right management regimes to ensure the public realm looks its best at all times, and sufficient funding to implement high quality maintenance.

He considers that a default mechanism must be built into any arrangement with the developer enabling the Council to take over the management / maintenance of any elements should the developer fail to deliver the necessary services and standards.

The responsibility for maintaining the temporary landscaping must also be clearly identified and properly resourced with a default mechanism built in.

The following specific points are raised:

(i) The Gingko tree on the corner of Hill’s Street and The Hayes should be retained, as it is a relatively uncommon tree in Cardiff; (ii) Planting of the central reservation of Bute Terrace could incur substantial maintenance costs by the developer; (iii) Underground services in Hill’s Street are identified, it is also noted that extensive servicing exists in Bridge Street and Bute Terrace, which would constrain tree planting; (iv) The name ’Hayes Island’ is familiar to the people of Cardiff, its renaming ‘Victoria Place’ would be sensitive and caution is advised in renaming well-known places; (v) Little further potential exists to prune trees at Hayes Island; (vi) The proposed water feature at Hayes Place raises practical and management issues, which require careful consideration; (vii) Any proposals for St John Street / Churchyard should be mindful of the listed railings, large trees, and levels within the site; (viii) The siting of kiosks must not result in congestion in the pedestrian areas; (ix) Signage should be co-ordinated with the Council’s signage strategy for the city centre.

In respect of St. David’s Partnership’s intention to meet the provisions of Policy 31 (Residential Open Space Requirement) of the Local Plan and the ‘Open Space’ SPG through the form public realm improvements within the site the Head of Parks and Bereavement comments:

The areas indicated by St. David’s Partnership as being open space do not constitute recreational open space as intended by the SPG. Whilst he is in favour of applying the SPG with a degree of flexibility in response to changing trends in lifestyles and acknowledges that the St. David’s 2 proposals are a relatively unique development within a city centre location, he does not consider that improvements to St. John’s Churchyard will provide an extra 0.1 ha’s of public open space as this is existing open space. Furthermore, he does not regard improvements to the trafficked highways as being the equivalent of improving or providing open space; therefore the figure for ‘other open space’ (which corresponds to highway accessible to traffic) should be excluded from the open space contribution.

On balance, he considers that if the number of residential units increases above a given point, the development should make a financial contribution towards the improvement of open space off-site as he notes that there will always be a role for well-managed, good quality green open spaces. This given point would be equivalent to the number of units required to generate an open space requirement corresponding to the combined areas of the non- trafficked (by motor vehicles) and publicly accessible public realm sites.

He also reiterates that the developer should provide the necessary additional resources to maintain, to the appropriate standards, new and enhanced areas of landscape.

(Refer to Conditions 18, 19, 20 and 23, specifically and Section 9 of this Report (Section 106 Agreement)). (Refer to para. 8.10.4 of the ‘Analysis’, which responds to the above comments in respect of a financial contribution towards off-site open space improvements.)

5.9 The Head of Building Control comments as follows:

(i) The existing St. David’s Centre is a ‘fire engineered building’ and consideration must be given to the control of smoke and means of escape from both the existing and proposed development. Ease of access to all areas for fire fighting and other emergency services must be considered; (ii) Sound transmission guidance may affect the position of windows within the development and may restrict the use of lightweight construction, i.e. curtain walling; (iii) Consideration should be given to the location of ventilation plant and discharge of extract ducts in terms of their impact on adjacent premises and noise/smell emissions; (iv) Refuse storage and ease of collection / times must be considered; (v) The design should have regard to use of buildings by children; (vi) Provision must be made to limit heat loss and reduce solar gain; (vii) Ease of access to all parts of the development will be required, including those with limited walking ability, wheelchair bound, and visual or hearing impaired persons.

The above issues should be considered early on in the design stage as they could have a significant impact upon the layout / elevational design of the development. The early involvement of the Council’s Building Control Service is suggested to ensure that the scheme satisfies building regulations guidelines.

Amended Proposals:

As a phased development the following issues will recur through the scheme:

(i) Demolition and site security – maintaining public health and safety;

29 (ii) Accessibility and facilities for the disabled – these should not be a ‘bolt- on’ feature at a later date; (iii) Access and facilities for fire service vehicles and personnel – assist means of escape in the case of fire and adequate water supplies; (iv) Environmental impact assessment – to minimise energy consumption and ensure best use of materials; (v) Ground contaminants – need effective containment / disposal so as not to adversely affect the completed structures; (vi) Presence of existing features – e.g. tunnel, may impose restraints upon the elements of structural design; (vii) Structures outside building regulations control – e.g. open market stalls, should be adequately designed with respect to wind loads.

He advises that the comprehensive ‘Sunlight and Daylight’ analysis (Appendix 12 of the Environmental Statement) should be utilised in the final design when considering solar gain for areas of the new development.

(Refer to Conditions 6, 14, 15, 24, 27 and 32)

5.10 The Head of Development and European Affairs comments that 40,000 sq.ft. of new quality offices have been provided at No.1 Bridge Street and occupies a prominent position. This office space provides an efficient and flexible modern office environment with large floorplates and on-site car parking. The type of projects which could be attracted to the building do provide better quality employment opportunities consistent with the objectives of the Economic Development Strategy / Plan.

He notes that Cardiff’s office lettings have remained relatively stable over the last 6 years and has one of the highest take-up rates in UK cities (take-up peaked in 2001 totalling 690,000 sq.ft.). Although demand for office space is beginning to slow, prime city centre units continue to let.

He therefore requests that if 40,000 sq.ft. of new offices are to be lost as part of St. David’s 2, a similar quality of offices should be catered for somewhere within the overall scheme.

5.11 The Head of Neighbourhood Renewal (Housing Strategy) has been involved in discussions regarding the provision of affordable housing within the development. Need for affordable housing has been demonstrated together with the provision of 20% on-site affordable housing (reducing to 12% provision if grant assistance is not available) has been agreed. The procurement of affordable housing will be included within the Section 106 Agreement.

(Refer to Section 9 of this Report (Section 106 Agreement)). (Refer to para 8.10.3 of the ‘Analysis’).

5.12 The Head of Marketing and Tourism (Marketing and Visitor Services) supports the proposal and its revitalisation of the ‘Cardiff offer’. The proposals appear to retain and enhance the character of Cardiff rather than re-create it.

30 Overall, the development appears well-thought and comprehensive and with a good approach on design and impact as well as positive about the potentials of the scheme by recognising the relevance of the tourist trade and the attraction that St. David’s 2 could become. In particular, the strength of the scheme on improving connectivity in the city is identified, including working towards better city centre / Bay links.

The following specific comments are made:

(i) St. David’s 2 offers synergy with the Cardiff Strategic Tourism Growth Area Action Plan which covers the whole visitor environment, e.g. hotels, visitor markets, signage, walking, cycling, coach facilities, events infrastructure etc.; (ii) The scheme recognises the dangers of St David’s 2 drawing too much pedestrian flow from elsewhere; (iii) The move to pedestrianisation is welcomed as the centre has the potential to provide a superb shopping environment. Improved crossings and through-flow from the stations are essential as well as attention to the Castle Street/High Street and Duke Street/Queen Street junctions which are not covered by the plans; (iv) Cardiff Council Events Team should be consulted on the potential use of the new spaces proposed and infrastructure adaptations which could improve their use for events/activities; (v) No mention is made of the re-siting of the Ice Rink and it’s phasing. This should be an important element of the planned phasing of the scheme; (vi) Coach access is only covered in the appendix text and is a major opportunity though has the potential to be a major problem. An integrated approach is required which identifies improved coach facilities; (vii) The proposals should tie in with the proposed new walks (City Walk, Heritage Trail) with signage / waymarking as well as signage for the existing Heritage Trail; (viii) The signage strategy should include welcome and 24-hour information for all visitors/tourists, clear signage to attractions/zones, and directional car park signs; (viii) Details of an Information Point should be identified; (ix) There is a need for a ‘boutique-style’ hotel within Cardiff; (x) Arcade entrance improvements are required and should complement the quality of the environment created by St. David’s 2; (xi) Research is taking place on conference facilities and their Service Area would welcome more involvement as plans for linkages to St. David’s Hall are developed.

Amended Proposals:

(i) No substantial objections and the principle of the proposals are supported. It is noted that the public realm scheme is enhanced particularly in the area of The Hayes, which is welcomed, though it

31 appears that the lighting scheme to St. John’s Church is omitted from the revised Master plan; (ii) It is queried whether sufficient provision has been made for coaches particularly coach borne shopping visits; (iii) A better understanding is needed of the impacts of the scheme upon the operation of St. David’s Hall and the provision of additional breakout space requires more detail; (iv) A clearer understanding is required of late night pedestrian routes from St. David’s Hall and how cross cutting pedestrian flows will work at night particularly relating to safety issues; (v) The Council is developing and implementing a signage and visitor information strategy for the city. The signage / information strategy for St. David’s 2 should be integrated into this.

(Refer to Condition 20, 42 and Recommendation 8).

5.13 The Head of Marketing and Tourism (Venues) has been consulted on the originally submitted and amended proposals and any comments will be reported to Planning Committee.

5.14 The Head of Marketing and Tourism (St. David’s Hall) has been consulted on the originally submitted and amended proposals and has been involved in discussions with the applicant. Any formal comments will be reported to Planning Committee.

(Refer to Condition 42 and Recommendation 8)

5.15 The Head of Leisure and Lifelong Learning has been consulted particularly with regard to the proposals for Cardiff Central Library. It is noted that the originally submitted proposals identified a new library building on the corner of Mill Lane / The Hayes (on part of the existing car park to the north of the Marriott Hotel building). The amended proposals identify the refurbishment, extension and improvement of the existing library at Frederick Street.

Discussions have taken place during the consideration of the planning application between the St. David’s Partnership and the Leisure and Lifelong Learning Service to ensure that the proposals for the city’s library meets the aspirations of Cardiff County Council.

In respect of the originally submitted proposal (for a new library building) the Head of Leisure and Lifelong Learning commented:

(i) He is pleased that the planned redevelopment of the southern section of the city centre includes a building that is earmarked for public library use, though there are some reservations regarding the location and area of space allocated for library use. The proposals suggest a loss of library floor space (of 2372 sq.m.) in comparison with the existing library (of 8872 sq.m. total floor space) at Frederick Street with inadequate space identified for add-on services such as meeting rooms, toilets and ICT suites etc.;

32 (ii) The lack of floor space identified for the new library would result in the need to identify alternative accommodation for support services and some of the current stacks collection. The demand for older stock in a library the size of Cardiff Central, and for old periodicals, newspapers and local studies collections, creates a need for an accessible, manageable stacks area; (iii) The positive aspects of the new library are: excellent focal point location, good transport links (bus stops and taxi ranks), creation of an aspirational landmark building, and the proposal to include as Phase 1 of the redevelopment with no break/closure in library service planned; (iv) The negative aspects of the new library are: inadequate ground floor presence, no dedicated loading/goods/service area, no dedicated disabled parking spaces, inadequate library use floor space.

He concludes that whilst the proposed space allocation and ground/first floor presence for the library is disappointing, the overall size and location of the building is regarded as excellent for a library development. The Library Service would ideally seek sole occupation of the building, or if some ground floor space must be given over to retail, then a minimum of one extra library- related floor be provided to accommodate support services.

Any comments in respect of the amended proposals will be reported to Planning Committee.

(Refer to Condition 28)

5.16 The Head of Legal Services (Property and Development) has made comments on the proposed conditions attached to the outline planning permission and his comments are reflected in the wording of these conditions.

5.17 The Head of Strategic Planning and Neighbourhood Renewal (Local Training and Enterprise) has requested that 10% of the workforce is provided with training / apprenticeships for the duration of the construction period and that 10% of the workforce be local labour (Cardiff area).

(Refer to Section 9 of this Report (Section 106 Agreement)).

5.18 The Head of Schools Services (Education) has been consulted on the amended proposals and any comments will be reported to Planning Committee.

6. EXTERNAL CONSULTEE RESPONSES (Comments on the amended proposals are in italics)

6.1 Cardiff Bus: Amended Proposals:

33 (i) Cardiff Bus has been involved with detailed discussions with the developers and the Council in respect of transportation issues arising from this proposal; (ii) The principle of increasing parking in the central area will make existing heavy traffic congestion problems worse and possibly create gridlock at times which will further disrupt bus services. The proposals should therefore incorporate Park and Ride provision at the periphery of the city with Express Park and Ride buses in priority bus lanes to the new development funded by Section 106 arrangements; (iii) The road layout and intensity of development could cause the road and bus network to be gridlocked at certain times; (iv) The proposed road layout and traffic management does not provide continuous bus priority instead buses are directed into areas where queues for car parks will tail back onto the network which could gridlock the public transport operations; (v) Good practice for bus priorities are not sufficiently considered and do not adequately separate car traffic approaching car parks from buses; (vi) The plans do not provide a replacement area for The Hayes bus terminus, which is heavily used by buses and passengers. The Central Bus Station does not have the capacity to accommodate any displaced buses from The Hayes. Cardiff Bus will therefore look for the Council to provide additional bus departure stands in St. Mary Street or its immediate environs to replace the facility lost at The Hayes; (vii) Bus stopping arrangements in Bridge Street and Mary Ann Street cannot accommodate the number of buses likely to use this area, which is likely to be more than 50 buses per hour; (viii) Provision for coach parking is remote, not undercover and has no appropriate passenger waiting or other facilities, this could result in coaches attempting to pick up from bus stops on Bridge Street and Mary Ann Street; (ix) The transportation arrangements fail to fully recognise the importance of public transport where over 50% of city centre shoppers do not arrive by car; (x) Footways should be fully integrated into the surrounding city centre with a covered foot route to the Central Station interchange; (xi) The transportation layout could result in increased air pollution.

(Refer to Conditions 33 and 41 and Section 9 of this Report (Section 106 Agreement)). (Refer to the comments of the Chief Traffic and Transportation Officer in para 8.7.10 of the ‘Analysis’)

6.2 Design Commission for Wales: Prior to the submission of the planning application, the Design Commission received a presentation of the St David’s 2 proposals from the St. David’s Partnership. The Commission provided some initial comments on the proposals at this stage.

Subsequent to the submission of the outline application the Design Commission has expressed the following comments:

34 (i) 24-Hour Streets – Hill’s Street and Tredegar Street - These streets must be 24-hour and lined with active frontages. The Commission is keen to see substantial improvements to Hill’s Street, which must include major improvements to the north side (removal of arcading and widening of the street is desirable) and masking of the service bridge. - Issues of poor delighting must be addressed in both streets. - The department store should also respond imaginatively to Tredegar Street to ensure its vitality with the liveliest uses opening on to this street. (ii) East-West Arcade - There is an opportunity to re-interpret a traditional Cardiff arcade in a modern style with small-scale units and a more intimate scale. The Commission is pleased to see that this is being considered by the St. David’s Partnership. They concede 16-hour opening for the Grand Arcade. - It is preferred that the main North-South arcade is treated as a fine architectural interior rather than ‘themed’ with Welsh heritage, though this is a matter of detail. (iii) East Side Streets, Spaces and Facades (Cathedral Walk, Mary Ann Street) - This is of concern with the east side appearing to be forbidding and not creating the opportunities to open up and regenerate the southeast corner of the city centre. It is considered that an unsafe and unattractive public realm would be created. - Car parking and its access is unsatisfactory, especially the retention of car parking on the David Street NCP site and proposed heavy planting suggests that the design fails in a potentially heavily used area. - Redevelopment of the Rapport site, in conjunction with the David Street NCP site, offers the possibility of a more elegant and efficient solution. - The junction of Bridge Street and Mary Ann Street has potential for conflicts between service vehicles, public transport and pedestrians, and the removal of all cars from this area is supported. - The restoration of a civilized street on the east side should be sought, unobscured by a car park bridge, and with active ground floor uses. - The redevelopment of Jury’s Hotel would resolve the car park access and egress and should be pursued. - Concern is expressed that two exit lanes from the car park will be inadequate and the complexity of the layout is a liability. - It is hoped that a quality public realm can be created with enclosed, civilized streets in Bridge Street, Mary Ann Street, Tredegar Street and David Street, though at the moment these seem to be sacrificed to servicing and access. (iv) Barrack Lane and Cathedral Square (St. David’s Market) - A proper street should be created out of Barrack Lane and the impact of the service yard entrance could be minimised with clever design of the street and facades.

35 - Housing on the west side of Barrack Lane is welcomed with the retention of the market stalls. - The east side should be intelligently remodelled to have new frontages that address and enclose the street. - This is an area for a mini brief to remove the constriction of the Barrack Lane / Hill’s Street junction and to appropriately enhance the edges of the Conservation Area. - The developers suggested a square for this area but the three sides of this are unresolved. - Debenhams and Marks and Spencer premises should respond properly to Cathedral Square and should not turn its back on the Cathedral and Hill’s Street. - Improvements to Cathedral Square and Hill’s Street and consideration of pedestrian links into Churchill Way are key; the use of CPOs to improve the public realm and resolve deficiencies in pedestrian circulation and safety may be necessary. (iv) Architectural Diversity - The use of separate design teams for the various parts of the site is applauded; the potential also exists for limited design competitions. - The proposed new library should be imaginatively thought through to include other cultural facilities and to create a building that is ‘always open’ to the public. A landmark public building of architectural distinction is supported together with keeping bus and taxi traffic to the south. (v) Sustainable Building - Energy efficiency, naturally ventilated malls, use of local and renewable materials, and green roofing should be sought. - Planting of any roof amenity spaces and on building facades is encouraged. (vi) Other Issues - The increase in housing is supported and the way this fronts The Hayes and Barrack Lane. - Any hotel on The Hayes will have to forgo car access so as not to prejudice pedestrianisation. - It is queried whether access, support and breakout facilities for St. David’s Hall will be improved. - 1,100 additional parking spaces seems modest given the additional retail floor space.

Further consideration should therefore be given to Barrack Lane, Cathedral Square and connections eastwards, as well as Mary Ann Street and Tredegar Street to deliver the proposed new squares. The east side of the scheme should create safe, attractive and lively streets and walkways and positively open up this side of the city to encourage the south-east side of the city centre to regenerate organically assisted by increased pedestrian flows, better managed traffic, and a greatly improved urban environment.

Following consideration of the above comments the Design Commission has met with this Council and St. David’s Partnership to discuss the amendments to the proposals.

In respect of the amended plans, the Design Commission comment:

(i) 24-Hour Streets - The decision not to obstruct Tredegar Way or Hills Street is supported; - The need for (transparent) pedestrian bridges for the upper level mall along Hill’s Street and Tredegar Street is acknowledged and the inclusion of small shop units with entrances on to these streets is of benefit to the scheme; - Concern is expressed that the north side of Hill’s Street, and the whole perimeter of St David’s 1, will not be improved in conjunction with this development; - The retention of the Library will improve sunlight to Hill’s Street though this is considered to be the only advantage in urban design terms from the retention of the library in its existing location. (ii) East-West Arcade - The western half of the main east-west arcade includes small units and a fine grain which is supported, however, the eastern half of the site still seems to act as the back door of the scheme without small retail units, and with a series of service uses including toilets, police station and crèche. This may have resulted from the retention of the library. It is not considered that these uses around Library Square will create an attractive public space. - The eastern half of the arcade should be treated in the same way as the western side and an alternative location for the public toilets should be sought so that they do not occupy so much arcade frontage. (iii) Eastern Edge (Cathedral Square to Mary Ann Street) - The amendments to this part of the development are not considered to improve design quality and could prejudice future regeneration of the southeastern part of the city centre. - While there has been some widening of the access to the Open Market area from the south, there is still a blank wall of the service ramp this is in part due to the retention of the existing library building. - The new residential building over the southern part of the ramp helps to detract from the service ramp, though it does not extend north to the corner of Hill’s Street. - The commitment to restricting servicing times over this ramp and the reduced traffic around the corner to the east of Library Square is acknowledged together with the provision for bus stops. - The relocation of the service access to the new centre to Bute Terrace is supported as this will assist in reducing traffic along Mary Ann Street, however the car parking access and egress along this street is still considered unsatisfactory. - The proposed replacement car park on the David Street NCP site still creates a poor pedestrian environment on all side, restricting the attractiveness of the open space adjacent to the CIA and prejudicing the redevelopment of the Rapport site and the area to

37 the south. It is also considered that ground floor kiosks on the Bridge Street side may be difficult to achieve. - Concern is expressed with regard to bridging across Mary Ann Street. - The revised drawings have not resolved the key design issues on the east side. The spaces and streets on the east side of the scheme appear unattractive, service-oriented, and mainly fronted by blank walls, car parks or the backs of other properties. - No improvements are proposed for St. David’s 1, which prejudices Cathedral Walk and Hill’s Street while the service access, detracts from the public realm. - It is considered that good access to Charles Street and spaces south of the Cathedral should be focused on rather than the creation of the ‘Open Market’ space. - ‘Library Place’ should be supported by ground floor uses with the ramp to St David’s 1 moved eastwards. - Pedestrian movement, comfort and safety around the Cathedral should be improved as part of the proposals. (iv) Library - Disappointment is expressed that the Library is retained in its current location as this compromises a number of aspects of the design. (v) The Hayes and West Side - The design developments on the west side are generally supported. - The narrowing of views southwards along Hayes Bridge Road is not supported instead an attractive street should be created with an active, pedestrian friendly department store and an extension to the Marriott which contributes to the street. - Full pedestrianisation of The Hayes is supported. (vi) Architectural Diversity - Reiterate their comments on the desire for separate design teams for the various buildings, which make up the development. (vii) Adam Street Site - The urban design of the site is questioned and its viability for residential use. Any proposals should improve the important pedestrian route across the railway and any public space defined. (viii) Sustainable Building - Reiterate the importance of developing a sustainability strategy for the development as a whole encompassing land use diversity, social engagement, environmental impact, and energy efficiency. - The developer must aspire to meet or exceed current EU best practice standards in terms of day lighting, carbon fixing measures (including green roofs) and ventilation (minimising the use of air conditioning). (ix) Public Art Strategy - No public art strategy has been viewed. Opportunities to appoint internationally recognised artists to the existing design team and to make early arrangements for a cohesive, integrated strategy for the whole of the scheme should be promoted.

38 The Design Commission’s main concerns relate to the retention of the library and the design amendments it brings and the public realm of the east side of the scheme / Open Market area.

Concern is also expressed that there appears to be no clear environmental strategy or commitment to achieve current best practice in terms of sustainable design.

(Refer to Conditions 17, 20, 23, 26, 27, 28, 30, 31, 39, 40, 48, 49, and 50; Recommendation 6; and Section 9 of this Report (Section 106 Agreement)).

6.3 Glamorgan Gwent Archaeological Trust: The Environmental Statement includes a desk-based archaeological assessment of the area. It is unlikely that the proposed development area was occupied until the medieval period when the northwestern part was included inside the curtilage of the defences of the town. The proposal will therefore only have an impact in the northwestern part of the site. The desk-based assessment does not provide sufficient information on the archaeological resource, usually the applicant is advised to commission an archaeological evaluation (trial excavation) of the area, however, due to there being no suitable sites available for the developer to undertake such evaluation work GGAT have carried out their own analysis to determine whether or not it is likely that an archaeological site / monument of sufficient importance exists within the application site.

Medieval Cardiff was laid out on an irregular grid of streets enclosed by defences. The application site is set back from the medieval streets and buildings and therefore it is unlikely that an archaeological site of national importance exists within the site. Furthermore, later redevelopment is likely to have caused significant damage to any archaeological sites.

However, any archaeological resource found within the site is likely to be of regional significance. A condition is therefore recommended to ensure that a programme of archaeological investigation during the redevelopment of the site is undertaken to ensure that the archaeological features are fully recorded prior to any damage occurring.

(Refer to Condition 37)

6.4 Environment Agency: The Agency acknowledges the need to redevelop the area and supports the proposal, which will remediate the site from previous activities, which may have caused contamination. The following specific comments are made:

(i) The sewerage undertaker should be consulted and requested to demonstrate that sewerage and sewage disposal systems serving the development have sufficient capacity to accommodate the additional flows generated as a result of the development; (ii) Parking facilities generate contaminated surface water. As no details concerning the drainage of these facilities has been provided a

39 condition is advised to require surface water drainage from the parking areas / hard standings pass through an oil interceptor; (iii) The use of source control techniques, e.g. permeable surfaces and soakaways for the disposal of surface water is advocated; (iv) The developer should consider ‘Sustainable Drainage Systems’ to reduce the negative impact of surface water discharges (by limiting run-off and reducing low level pollution) generated by impermeable surfaces, e.g. pavements, roads; (v) The Agency broadly agree with the general conclusions of the Environmental Statement regarding geology, hydrogeology and contamination issues. Whilst a detailed investigation will be undertaken to assess soil and groundwater conditions the scope of this investigation is not provided. A condition is recommended to protect the quality of controlled waters as the development may cross- contaminated land; (vi) The Agency only consider the potential risk to controlled waters and the Council’s Environmental Health Service should be consulted with regard to any risk to human health from disturbing contaminants; (vii) A culverted section of the dock feeder is within the eastern part of the site and is maintained by ABP who should be consulted if the proposals have any impact upon this feature; (viii) The construction phase poses the greatest risk to controlled waters in terms of affecting its quality and quantity, particularly the dock feeder. A condition is advised for each construction phase to require a detailed method statement of the works to be undertaken and details of pollution prevention measures; (ix) Any dewatering operations will be controlled by the Water Resources Act 1990; (x) All foul drainage must prevent discharge to boreholes, wells, springs, soakaways or watercourse; (xi) The terms of the Water Resources Act 1991 are brought to the attention of the developer; (xii) Appropriate pollution control measures should be adopted with waste excavation material or building waste disposed of satisfactorily.

(Refer to Conditions 4, 9, 10 and 24)

6.5 Dwr Cymru / Welsh Water: Details are provided of water apparatus within the vicinity of the application site.

No objection has been raised to the amended proposals, subject to conditions in respect of the submission of details of the proposed drainage of the site and provision of a suitable grease trap to prevent entry into the sewerage system.

It is also noted that a public sewer crosses the site and the developer should contact the Network Development Consultants prior to the commencement of any site work.

40 A water supply can be made available to serve the development however; the developer may be required to contribute towards the provision of new off-site and / or on-site water mains.

(Refer to Condition 4)

6.6 Cardiff City Retail Partnership: Support the proposals which will enhance the profile of the city centre and enable the local and surrounding population to participate in one of the most prestigious shopping destinations in the country. Furthermore, the proposals will provide new offices, leisure, hotel, restaurants, cafes and bars and create up to 3000 new jobs. The proposals also include new open spaces and a European style boulevard through The Hayes, which is welcomed.

6.7 Cardiff Initiative Limited: Cardiff Initiative has been fully involved in the consultation process undertaken by St. David’s Partnership and support the principle or the proposals and welcome this major investment in the City Centre. It is considered that further work is required to develop the transportation proposals to make the scheme work though they are confident that a package of solutions can be developed to address the transport needs of the scheme.

6.8 South Wales Police (Architectural Liaison): Due to the scale and nature of the proposals, the developers have been offered crime reduction advice and a meeting has been requested to discuss these issues.

The proposals will have licensing and resource implications for policing the area and details of the proposals have been forwarded onto the Licensing Division.

6.9 Railtrack: No objection in principle to the proposed development where only the Adam Street site appears to affect the railway. Guidance is provided in respect of the safe operation of the railway and the protection of Railtrack’s adjoining land, which should be considered at the detailed planning stage.

6.10 Network Rail: No objections in principle. The comments of Railtrack (refer to para. 6.9) are reiterated.

6.11 Countryside Council for Wales: No comments. (No comments on the amended proposals).

6.12 Hyder Consulting: They have been requested by Cardiff Shopmobility to write with regard to the St. David’s 2 development. Whilst they are pleased that the developers had initial discussions with Cardiff Shopmobility it is requested what conditions or clauses of any legal agreement will protect the service offered by Cardiff Shopmobility as there are over 6000 users p.a.

(Refer to Condition 35)

41 6.13 BT: The scale and budgetary estimates of the diversionary works required as a consequence of the development is being determined. Further surveys and detailed specifications will need to be agreed prior to the commencement of on-site works.

7. REPRESENTATIONS (Comments on the amended proposals are in italics).

In addition to the statutory consultations undertaken by Cardiff County Council, the St. David’s Partnership commissioned an independent research company to undertake consultations to input into the proposals for the St. David’s 2 development. The consultation process was overseen by an Advisory Group and representatives from a range of interests across Cardiff, these interests included Cardiff County Council, Cardiff Chamber of Commerce, Cardiff Bus, Cardiff Civic Society, tenants associations, local ethnic communities, Welsh Development Agency and Cardiff and Vale Coalition for Disabled. The consultations focused on the general public and stakeholders within and around Cardiff. The feedback from this process was subsequently incorporated into the application submission.

Both occupiers within the application site and adjacent to the boundary of the site have been consulted on the proposals by Cardiff County Council. Furthermore, any interest groups, organisations, individuals or consultants acting on behalf of premises within the city centre and who commented on the originally submitted proposals have also been consulted on the amended proposals.

In addition to this Council’s consultation procedure, the St. David’s Partnership produced feedback forms together with a newsletter in January 2003 seeking comments from members of the public on the St. David’s 2 proposals. A public exhibition of the proposals was also displayed at City Hall and within the St. David’s Shopping Centre at the time of the submission of the planning application (October 2002). A St. David’s 2 consultation website has also been set up. Over 500 responses were received in relation to this feedback procedure established by the Partnership, of which 65% of responses were in support of the proposals. The file of these responses will be available for members of Planning Committee to view.

7.1 St. John the Baptist Church (Rev. Keith Kimber and Central Cardiff Team Ministry):

It is noted that, since the receipt of the Church’s initial comments, St. David’s Partnership has been in discussions with representatives of the Central Cardiff Team Ministry to discuss improvements to the public realm around St. John the Baptist Church. Furthermore, a meeting was held in March 2003 with the Ministry, the Reverend of the Church, representatives from the County Council, and St. David’s Partnership to progress these discussions.

42 (i) It is noted that the architects are London-based and not as conversant with the local situation as South Wales-based practices; (ii) The pattern of church life has already changed considerably due to de- population of the city centre; this is unlikely to be reversed by the re- introduction of housing which tends to be vacated at weekends by city workers; (iii) Pedestrianisation of the city centre has affected people wishing to attend Sunday worship due to the inefficiency of the public transport system, its lack of availability and lack of proximity to the church, penalising the elderly and infirm from attending the church; (iv) The city centre feels insecure after dark with loud music and noise creating an unfavourable environment for quieter evening activities and reducing the social potential of the church; (v) The church’s role has moved towards ministering to city centre workers, visitors and shoppers throughout the week. The impact of St. David’s 2 upon the church’s role in the service of the city’s people must therefore be evaluated by church members and leaders; (vi) The use of the church building must be optimised for church and related charitable events, keeping the building open for worship, visits and social events seven day a week and making the church a ‘shop window’ for church-related organisations and schools to inform the public and develop fresh links; (vii) Concern is expressed with regard to the opening up of the church and churchyard, which would increase the vulnerability of the church and its graves. The boundary wall on the north side protects the church from damage from large commercial vehicles. The opening up of the south side would require extra protection against vandalism and break-ins. An open sided piazza style social area will reduce security for those who use the churchyard to eat or sit. Any proposals to remove the railings and walling around the church and churchyard to create a landscaped area are objected to; (viii) There are no proposals to address or make provision for the city centre’s poor and homeless; (ix) Orderly use must be made of public spaces around the church; (x) Noisy and boisterous activities should be zoned; (xi) The area around the church should be an accessible tranquil part of the city; (xii) It is hoped that the proposals will enhance the potential, which church members and workers are seeking to realise.

(Refer to Condition 22 and Section 9 of this Report (Section 106 Agreement))

7.2 Llandaff Diocesan Advisory Committee for the Care of Churches: There is no objection in principle to the amended proposals in relation to the area around St. John the Baptist Church. It is noted that the only significant change to this area is the addition of a footpath to be constructed on the south side of the churchyard parallel to the Old Library.

The railings around the churchyard are separately listed and any alterations / removal will require listed building consent.

‘Master plan 1’ identifies new café kiosks close to St. John the Baptist Church. This is not supported, as permanent kiosks set against the railings would have a detrimental visual effect. It is also considered that external noise levels from cafes and bars is distracting and measures should be taken to minimise this nuisance close to the church.

7.3 Welsh National Ice Rink (Reds (Wales) Properties Ltd): Object on the following grounds: (i) In negotiating the terms of the present lease with the Council the tenure of the new lease of the ice rink was limited to five years to co- ordinate with the Sports Village development. The take over of the Cardiff Devils ice hockey team and the decision to enter into a new lease was contingent upon the agreement of the Council to relocate their business into any new ice rink in the Sports Village. It is suggested that the Council has misrepresented the position with regard to any commitment for any new facility in the Sports Village; (ii) Concern is expressed that the ice rink may be closed without any statement of assurance that the loss of this existing facility will be timed to coincide with the opening of a new ice facility in the Sports Village; (iii) The closure of the ice rink would have a terminal effect on individuals, employees and businesses dependent on the continuation of the ice rink, in effect ‘killing off’ all skating and ice hockey within Cardiff; (iv) The ice rink brings benefits to the city in the form of the provision of skating facilities for young people; (v) A meeting is requested to discuss the above concerns.

7.4 Cardiff Cycling Campaign: Object to the amended proposals for the following reasons: (i) The proposals will not improve the movement of cyclists but instead create barriers and hazards to cyclists. Current through routes should be added to / improved and not restricted; (ii) The plans should show cycle movements through the site, connecting these with existing cycle routes and access points; (iii) A safety / risk assessment is required to prevent cyclists being put at jeopardy, particularly at traffic junctions; (iv) The documents do not indicate an understanding of the various relevant cycling strategies and fail to include cycling as a primary mode of transport; (v) Further cycling impediments to through cycle routes will result which will discourage cycling’s contribution towards the modal split; (vi) An assessment of the impact of the scheme on cycling is necessary; (vii) A speed limit of 10 m.p.h. should be introduced for all motorised vehicles; (viii) There is a need for safety in all forms of movement within the site; however, the conflict suggested between pedestrians and cyclists is overstated. Good quality design would reduce interaction between cyclists and other users; (ix) ‘Continental-style boulevards’ are referred to, in Europe these are designed so that cyclists and other users co-exist;

44 (x) The proposals should enhance permeability for cyclists as well as pedestrians; (xi) ‘Pedestrian priority zones’ are identified, instead vehicle-restricted areas and planning for appropriate access by the disabled, cycles, taxis and delivery vehicles should be advocated; (xii) The partial closure of Bridge Street and Hayes Bridge Road is opposed in the absence of any safe and convenient alternatives; (xiii) The development suggests blanket segregation of cyclists and pedestrians and would result in greater congestion and conflict between cyclists and vehicles.

(Refer to Conditions 5, 20 and 36 and Section 9 of this Report (Section 106 Agreement)). (Refer to the comments of the Chief Traffic and Transportation Officer in para. 8.7.16 of the ‘Analysis’)

7.5 Sustrans: Object to the amended proposals. The following issues are raised: (i) The revised road layout, particularly around the Bridge Street area, severely restricts access to cyclists and no alternative provision is made. The road layout therefore presents an unsafe route for cyclists who would forces more people to use cars; (ii) The Welsh Assembly ‘Draft Walking and Cycling Strategy’ encourages local authorities to provide safe facilities for cyclists and to recognise and respond to the problems of poor facilities for cyclists on the road network. This document also encourages the sharing of pedestrian space with cyclists; (iii) The development increases parking provision, which is contrary to the Council’s, and the Assembly’s strategic aims of reducing traffic levels; (iv) The redevelopment of such a wide area presents an opportunity to contribute to high quality provision for cyclists and pedestrians which would add to the overall amenity of the area whilst reducing any potential increase in city centre traffic; (v) The proposals do not adequately integrate cycling access within the development and it is queried where cycling will be permitted within the development, with cycle stands only proposed at the entrances to the pedestrianised areas, this will discourage cycling within the development site; (vi) Shared use of pedestrianised areas should be encouraged and can be successfully combined and is compatible if the shared areas are designed at the outset and are well managed. The Dept. of Transport’s Traffic Advisory Leaflet 9/93 similarly encourages shared pedestrian / cyclist areas;

Sustrans therefore comments that cycling must be promoted within the scheme as a primary mode of transport, which can reduce traffic congestion and delays on roads.

(Refer to Conditions 5, 20 and 36 and Section 9 of this Report (Section 106 Agreement)).

45 (Refer to the comments of the Chief Traffic and Transportation Officer in para. 8.7.16 of the ‘Analysis’)

7.6 Marriott Hotel (represented by Gerald Eve):

The Marriott is a major landholder within the St. David’s 2 site and, in principle, express support for the development proposals for the city centre. The Marriott has its own aspirations for its land and it expresses concern with regard to some of the proposals within the vicinity of their site:

(i) A reduction in the size of the Marriott site will affect the aspirations of the hotel to extend to include further bedrooms, extensions to the conference / banqueting / functions facilities, and improvements to the bar area and leisure club; (ii) The proposed multi-storey ‘book-end’ building is identified as a library and would be sited on land heavily used by the hotel as a surface car park. The acquisition of the land will inhibit the Marriott’s future development, restrict available hotel parking, and the siting of the building will detract from the overall prominence of the hotel and it’s setting; (iii) The replacement of the lost parking spaces within the northern car park is not adequate. The Marriott has 180 bedrooms and needs to cater for functions with over 80% of guests arriving by car. A minimum of 200 parking spaces will therefore be required if the acquisition of the northern car park proceeds. The two-storey car park identified is therefore insufficient to meet the hotel’s parking needs. (iv) The proposed right turn access from Mill Lane into the retained car park area is considered to be dangerous and confusing given that the entrance to the hotel is beyond the car park. It is suggested that traffic flow is reversed so that cars can drop off at the entrance and then move into the car park; (v) The principle of a library use to the north of the Marriott is, in principle, supported due to this use being a ‘quiet occupier’ however, any proposals for a pub / restaurant / nightclub would be objected to due to the close proximity of hotel bedrooms and conference rooms to the proposed building. Furthermore, careful consideration should be given to the design of the rear of any building given its proximity to views from the hotel.

In response to the above comments this Council met with representatives from the Marriott and the leaseholders and operators of the Marriott, Whitbread Hotel Company, in January 2003 and also with their consultant engineers in March 2003 to discuss the implications of the St. David’s 2 proposals upon the aspirations of the Marriott and its intentions for its land.

The following comments are in respect of the amended proposals:

In principle, the general plan to regenerate and revitalise the city centre is supported, however, the following specific objections are noted:

46 (i) The development of a landmark building at the southern end of The Hayes is of extreme concern due to the uses proposed for this building being for private enterprise, including a hotel; (ii) The Marriott is viewed as an existing landmark building and is therefore the logical landmark to the southern end of The Hayes, thus there is no justification for proposing another building between the hotel and The Hayes or a road link across their site as one of the principle purposes of this road is to service the landmark building; (iii) The Marriott requires the flexibility to expand; this ability will be lost due to the lack of necessary on-site parking provision. It is essential that the level of car parking be maintained to maintain the current levels of trading of the hotel; (iv) The detailed public realm drawing of Mill Lane identifies a ‘gateway landscaped area with groups specimen tree species to create parkland environment’. The hotel has identified this area for an extension to provide additional banqueting facilities. The proposals therefore could prejudice the hotel’s aspirations to expand; (v) The proposals for the Marriott / Mill Lane area are therefore ill conceived and do not properly understand the needs of a long- established and highly regarded business in the city centre. Amendments to the proposals should therefore be sought.

[It is noted that a meeting has been arranged between this Council and representatives of the Marriott Hotel to discuss their comments in respect of the amended plans prior to Planning Committee on 11th June 2003].

(Refer to Conditions 39 and 41) (Refer to para. 8.15 of the ‘Analysis’)

7.7 Primark (Hartnell Taylor Cook acting on their behalf): No contact has been received from St. David’s Partnership in respect of the proposals. Concern is expressed with regard to their intentions towards the Primark store and its effect on the company’s trading and the continued employment of its staff.

7.8 Primark (White Young Green acting on their behalf): The proposals will have a detrimental impact upon the store. The following points are noted:

(i) The store is trading successfully and its loss would have a major impact upon the business and on the livelihoods of their staff unless its retention through relocation is secured; (ii) Even if the store were relocated there would be a loss of business while the redevelopment works were underway; (iii) The development has not been designed to meet local needs. The proposals should not just provide elitist cafes and shops and high profile stores; (iv) Risks to the city centre could result from retailers in existing prime areas of the city, e.g. Queen Street, relocating to the new units and resulting in an increase in vacant units and a decline in the quality, vitality and future shopping role of these older parts of the city centre.

47 The development could therefore result in purely a structural shift in the patterns of use in parts of the city centre; (v) The retail expenditure estimates seem highly optimistic and the retail implications need to be carefully considered given the potential harm that could arise if they are incorrect; (vi) It is considered that the applicants have over-stated the need for further comparison floor space and investment within the city having regard to its current overall strength and robustness.

Amended Proposals: Reiterate their previous comments and consider that only minor amendments have been made to the proposals.

7.9 Queens Arcade Shopping Centre (King Sturge acting as managing agents for the landlords of the shopping centre): (i) Due to the increase in the amount of additional retail floor space and consumer footfall the scheme will generate, they expect to see strong links and permeability between this development and Queens Arcade Shopping Centre; (ii) Plans for the refurbishment of the St. David’s Centre should go hand in hand with the new development; (iii) Existing trade within Queens Arcade must not be adversely affected during the construction period; (iv) The completed development should benefit overall trade within Queens Arcade.

7.10 Toys R Us: Object to the proposal for the following reasons: (i) The proposals will severely disrupt / extinguish their business and will affect the levels of employment they offer to local residents; (ii) The scheme will be detrimental to all businesses within the city centre, with disruption anticipated during construction, together with the consequent downturn in business and the termination of a very successful business resulting in a major loss to Cardiff.

The company reiterates its comments in respect of the amended proposals.

7.11 Capitol Centre and Andrews Buildings, Queen Street (‘Planning Perspectives’ planning consultants instructed by Scottish Widows Investment Partnership (SWIP) who own the Capitol Centre and Andrews Buildings):

Support is expressed with regard to the improvement / upgrading of retail facilities within Cardiff as befits a capital city and the importance of nurturing the city centre is acknowledged. Investment in refurbishing the Capitol Centre and Andrews Buildings has been committed by SWIP; however, concern is expressed with regard to the scale of development, which it considered has not been fully justified in planning terms.

‘Planning Policy Wales’ states that local authorities should take account of the need for the development and the impact on existing centres. The developer’s seek to address these issues in the Environmental Statement,

48 however the following concerns are raised with regard to their approach and other policy requirements as follows:

(i) Need / Scale of Development - The proposed development equates to more than ¾ the size of Cardiff’s existing retail area. The net increase of retail floor space is estimated at almost a quarter of the size of the existing retail offer in the city centre and even more in the context of the prime retail area. The retail element represents a significant increase in retail floor space in the prime retail area. It is not considered that the applicant has justified ‘need’ for this scale of development in planning terms. The development appears to be led by the economics and financial objectives of the developer.

(ii) Need / Quantitative Need - There is no indication that the proposals respond to a plan-led need for new retail floor space and it does not appear that the Council has sought to quantify need in expenditure terms. - The size of the household interview survey accounts for less than 1% of households within the catchment area and concerns are expressed with regard to the use of the survey results to quantify need. - There is no justification regarding the inflow of expenditure; - It is assumed that Cardiff will retain its existing floor space over the period 2001-2011 and does not consider alternative sites with potential to accommodate additional retail floor space or alternative retail proposals within Cardiff. - The existing sales density figure and investment yields for Cardiff do not appear to be correct with the sales density figure for new floor space potentially an underestimate. - The effect of existing commitments and proposals in nearby centres needs to be considered, e.g. Swansea and Newport. The assumption that Cardiff will continue to attract expenditure from these areas is questioned. - The retail element of the scheme appears to exceed the capacity forecasted by the consultants, this could adversely affect the performance of existing retail developments elsewhere in the city.

(iii) Need / Retailer Demand - There is no certainty that a department store operator will be attracted to Cardiff; - The list of potential retailers includes those already represented in the city. The applicant may have therefore over-estimated the level of retailer demand. - The relocation of existing retailers in Cardiff could have potential adverse implications for existing retail centres.

(iv) Impact / Local - The development could result in the loss of retailers from existing prime areas as a result of relocation to the new development and a

49 structural shift in the pattern of usage of parts of the city centre resulting in some areas suffering a loss of sales from declining pedestrian flows and an increase in shop vacancies. - The proposals will strengthen the north-south axis of the city centre to the detriment of the east-west axis along Queen Street. The applicant has not fully assessed the likely change in pedestrian movement within the centre as a result of the proposals. - The department store will shift the pattern of retailing to the detriment of the east and west of Queen Street. - It is considered that once shoppers have changed their shopping patterns to move towards St. David’s 2 other areas will find it difficult to win back customers.

(v) Impact / Wider Area - There is a lack of information on the likely effect of the development on nearby centres. The performance of nearby centres should be assessed and retail proposals or commitments, which could alter Cardiff’s market share. - The proposals could prejudice the development of retail schemes in other centres and the benefits that could flow from such schemes.

(vi) Land Use / Mix of Uses - Whilst the range of uses accords with planning policy guidance and will positively contribute to Cardiff’s status, however, there is a lack of information in respect of the scale of development, notable the wide range in residential and office provision stated. This will create uncertainty regarding deliverability of the development and suggests vagueness and lack of precision in the scheme.

(vii) Land Use / Transport - No indication is given as to whether the total car parking spaces are also to be used by the office and residential elements and what the net effect of the parking provision will be. - Assurances should be given that the proposals will not result in a loss of parking. - Delays at junctions are likely, particularly at Bute Terrace / Churchill Way and Newport Road / Station Terrace, this will add to congestion and deter shoppers from using the Capitol Centre and its car park and so reduce pedestrian activity and retail activity in these parts of the city centre.

(viii) Deliverability - There is no guarantee that the scale of development can be delivered; this will create uncertainty for the future of retailing in Cardiff and the risk of blight and delay in investment decision taking. - There will be implications if an appropriate department store operator is not secured in terms of deliverability of the scheme.

(ix) Timing

50 - The impact of construction, length of disruption, and proposals for phased development must be carefully managed to minimise disruption to existing businesses and to maintain the centre’s attraction as a retail destination to ensure that the programme of works do not adversely affect the attraction of the centre relative to the availability of alternative out-of-town shopping destinations in the local area and beyond.

Amended Proposals:

Retail Impact on Competing Centres The external retail impact of the development is evaluated on the basis of a qualitative assessment as opposed to a quantitative impact analysis. This approach does not fully address the impact criterion required at a national and local level. It does not provide any indication as to the trading performance of competing centres, trade draw or likely impact. The credibility of the applicant’s conclusions is therefore queried.

Public Realm There is little or no reference to enhancing the public realm of Queen Street. Every effort should be made to mitigate the internal impact of the development and there is an urgent need to further enhance the Queen Street area to ensure continuity with the development proposals. It is therefore requested that the Council ensures that the public realm works which form part of St. David’s 2 extend along Queen Street to achieve a co-ordinated and recognisable scheme for the whole of Cardiff City Centre. These works should be co-ordinated with the opening of St. David’s 2 to encourage shoppers to circulate the whole of the city centre and to minimise the internal effect of St. David’s 2 to secure Cardiff’s regional status. [N.B. Public realm improvements are currently being implemented along Queen Street by this Council].

(Refer to Condition13) (Refer to the comments of the Head of Strategic Planning in the ‘Analysis’ para. 8.8.9)

7.12 Co-operative Insurance Society (CIS) (hold property investments in the city centre): The CIS support the comments of ‘Planning Perspectives’ consultants. It is stated that CIS hold property investments with a value of over £40 mn in the city centre.

Concern is expressed that St. David’s 2 will be detrimental to the primary retail area on Queen Street. A central part of the Council’s retail strategy should focus on maintaining Queen Street as the primary retail location for the city centre.

CIS has monitored retailers’ demand for units in the city centre and questions whether demand exists for the amount of retail space proposed. The proposals will also result in some retailers moving from Queen Street and weakening the retail offer along this important street.

Concerns are therefore raised in respect of the impact of St. David’s 2 upon the city centre.

(Refer to Condition13) (Refer to the comments of the Head of Strategic Planning in the ‘Analysis’ para. 8.8.9)

7.13 Habitat (Castlebrook Holdings Ltd. – Freehold Owners.): The building is Grade II listed and the impact of the proposals upon this landmark-listed building should be considered. Servicing of Habitat is from Hill’s Street, whilst the basement restaurant and transformer chambers of Western Power are serviced from the rear. This arrangement must be maintained. It is also noted that the property extends under a significant part of Hill’s Street and therefore no structural works should be undertaken within this part of the road.

The above points are reiterated in respect of the amended proposals.

7.14 White Consultants, Mill Lane: Concerns are raised: (i) Developing the site in one go is risky and has implications for public access / permeability with the accessible ‘public’ realm shifting towards private control. The emphasis should be on improving and increasing the accessible public realm however, the size of the blocks is too large to facilitate this; (ii) There is no clear strategy for what public routes run through the site and connect through to other parts of the city. Accessibility is therefore compromised. A well-connected public realm should be sought; (iii) The consultation process is a public relations exercise and should be a wider ranging process.

(Refer to Condition 20 and Section 9 of this Report (Section 106 Agreement)).

7.15 Hayes Post Office (Represented by Atkins planning consultants): The proposals will directly affect the Hayes Post Office branch. It is understood that a condition will be attached to any planning permission granted to ensure a constant Post Office presence at the Hayes throughout the development period. It is trusted that the operational and service provision requirements of the Hayes Post Office will be fully taken into account in the determination of the application.

Careful consideration must be given to minimising disruption to this facility during the phasing to maintain an un-interrupted quality service. It is estimated that around 81% of footfall from the former Churchill Way Post Office will migrate to the Hayes and the Hayes will see a 65% increase in usage. The Hayes Post Office has seen the installation of two new positions and it is estimated that the Branch will require an additional 2/3 positions in the future.

The Hayes Post Office includes 13 counter positions, giro and bureau de change facilities, parcel facilities and large shop with potential for further

52 growth. Relocating such a sizeable operation to a temporary, interim facility should be avoided as this would be disruptive and an un-interrupted service should be maintained.

Any new premises must be fitted out before closure of the existing post office to ensure a seamless transfer. The developer should meet the costs of relocation and fitting out of any new post office.

The Post Office Limited would strongly oppose the introduction of a landlord’s development break clause in its renewal lease in the current Court proceedings owing to these concerns.

(Refer to Condition 29)

7.16 Grassroots City Centre Youth Project: It is queried what consultation has taken place with young people and how the needs of young people have been designed into the proposals.

7.17 Yan’s Heel Bar, Oxford Arcade: Object to the proposals, as they will lose their livelihood and the business they have built up. The Hayes is attractive and the Oxford Arcade has only recently been refurbished. It is queried whether Cardiff needs more designer stores which push out small businesses. It is also queried where people will park, and what will happen to the open-air market and the ice rink. The demolition and rebuild of the library is also of concern.

7.18 Job Centre, Charles Street: It is unclear whether the development will result in the loss of their car park.

7.19 The Marcol Suite, Ivor House, Bridge Street: 7no. letters of objection to the proposals received from business premises within Ivor House.

7.20 Cardiff Waste Forum: The following is noted: (i) Integrating sustainable waste management issues with purpose-built recycling facilities and services should be considered; (ii) Purpose built ‘bring’ site facilities should be considered in the basement of residential blocks, such as on Adam Street, as well as composting facilities for food waste; (iii) Adequate provision should be made for the collection of office and retail waste, recycling, and composting of catering waste; (iv) The proposed Green Travel Plan and Cycle Facilities Centre are commended.

(Refer to Conditions 15 and 30)

7.21 Metropolis Bar and Restaurant, 60 Charles Street The Exit Club, 48 Charles Street Skyline Properties Ltd, 42 Charles Street Minskys Show Bar, Cathedral Walk

53 The proposals are supported. It is noted that the rear of their properties lead directly on to Barrack Lane and it is requested that they are kept fully informed of the progress of the application.

7.22 R. M. Brett and Co. Solicitors, 62 Charles Street: The development must ensure that there is adequate parking over the Easter and Christmas periods. It is considered that the removal of car parks in Bridge Street will have an adverse effect for both office occupation and shoppers who would visit / use the development.

7.23 Golley Slater, Wharton Place: Strongly object for the following reasons: (i) Loss of existing jobs; (ii) Loss of Toys R Us, Ice Rink, Central Library, CIA, cinemas, hotel, shops and offices; [N.B.: Central Library, CIA, UGC Cinema or any hotels within the application site will not be demolished as part of the proposals] (iii) The transport infrastructure (roads, bus services, car parks) cannot cope at present with the number of people coming to the city centre; (iv) The proposed department store / new shops should be located on currently vacant sites, e.g. the old ROF site in Llanishen or Ely Paper Mill site rather than to redevelop city centre sites. These other sites are considered more accessible; (v) An out of town shopping centre should be constructed to take the pressure off the city centre.

7.24 Cardiff Shopmobility: The developers promised to establish a dialogue with themselves in respect of the relocation of the Shopmobility unit from its current location in Bridge Street, however, this has not materialised. A strong objection is raised as no discussions have taken place and the proposals identify a first floor location to the Shopmobility unit, which is not ideal for a wheelchair hire scheme. Ground floor access to the Shopmobility unit is required with adjacent dedicated parking spaces. The current location is ideal and concern is expressed in respect of any relocation to the periphery of the central area.

(Refer to Condition 35)

7.25 The following responses have been received from residents within Cardiff: 4B, Colum Road, Cathays: The city centre needs better quality cafes and restaurants which stay open late. A better range of shops is also required. There should also be more lifts within shops and public buildings, e.g. St. David’s Hall, together with more public toilets, which are open, later. 21 Lady Mary Road, Roath Park: Traffic queues along most roads into the city centre exist, particularly at Christmas, as well as queues to car parks. St. David’s 2 will increase numbers of commuters and visitors to the city centre. A radical review of the city’s infrastructure is required this should involve significant park and ride facilities and better bus, train and tram / light railway services.

54 36 Rowan Way, Lisvane: Concern is raised that Central Library and the Ice Rink will be demolished which are both relatively modern buildings, the latter taking away an important facility for young people. 7 Beda Road, Canton: A number of issues need addressing prior to any planning permission including: - Transport: No significant solutions are proposed to improve access to and from the city centre. The existing infrastructure will not be able to cope. Access from the east is poor, the Eastern PDR should be completed, new car parks to the south of the railway line should be included, and the traffic implications of other developments, e.g. Ikea, should be considered. The scale of the development will have knock-on effects across the city and could result in gridlock. Detailed analysis of traffic flows as a result of St. David’s 2 is needed; - Design: High quality design is needed (good architecture and materials) and well-designed open spaces; - Mix of Uses: How will retail and residential co-exist? What will be the effect of additional retail development on the existing retail stock and upon St. Mary Street and Queen Street? - Culture: Will there be provision for cultural activities, e.g. galleries? - Public Art: Artworks should be included within the development; - Access: 24-hour east-west access across the centre should be provided. 79 Ely Road, Llandaff: Clarification is required in respect of the nature of the proposed prayer room. 56 Millrace Close, Lisvane: Any proposals should ensure that cyclists are no worse off than at present. The scheme does not indicate through-routes for cyclists or east-west or north-south routes through the city centre. The alternative routes are along busy, dangerous, polluted roads which are unsuitable for cyclists and these roads will worsen as a result of St. David’s 2. The scheme would create a further impediment to cycle routes contrary to the City Centre Strategy 2002-2006. Reports of pedestrian-cyclists conflicts are exaggerated; in Europe cyclists and pedestrians share the same space without problems. It is therefore considered that the proposals do not include adequate provision for cyclists.

7.26 Councillor Greta Hunt: E-mail correspondence from Cllr Hunt to the St. David’s Partnership states that she has been involved in meetings with the Grassroots Project on Charles Street. Cllr Hunt comments that the public spaces should be flexible with power points and water supplied to ensure spaces are multi-functional. Appropriate areas / facilities to accommodate skateboarding should also be considered.

7.27 Central Area Conservation Group: Although the application site does not physically fall within a specified Conservation Area, the Group anticipate that any new development must be sympathetic to the surrounding St. Mary Street, Charles Street, Churchill Way and Queen Street Conservation Areas. The Group raised the following specific comments in respect of the proposals: (i) An assessment is required of the implications of the development upon traffic generation (and bus routes / stops) in key areas, e.g. St. Mary Street and Duke Street;

55 (ii) Scale and massing issues, particularly in The Hayes, will require careful examination once detailed design drawings area available; (iii) An appropriate aesthetic and co-ordinated public realm, particularly in St. John Street and adjacent to the Castle and High Street Arcades, should be treated with high priority; (iv) The timely provision of alternative ‘local facilities’, e.g. the library, ice rink and post office, is vital if Cardiff is to achieve its City Centre Living aspirations; (v) Clarification is required on the level of new tree planting and other soft landscaping; (vi) A comprehensive assessment of the effects of St. David’s 2 on the economic prospects of the business occupants of, and therefore the character of, the units in Castle Arcade, High Street Arcade and other arcades should be undertaken; (vii) More detailed information on proposals for public transport provision is required; (viii) Thought should be given to the linkage with the affected Conservation Areas in terms of lighting, paving and soft landscaping; (ix) Effective access for the disabled to all new development is needed; (x) The city centre should not just become a functional commercial metropolis and should recognise people’s other needs; (xi) The potential adverse affect of the relocation of bus facilities on the ability of the elderly to use the city centre facilities, e.g. Central Market and post office, should be considered; (xii) St. John the Baptist Church should not be marginalised by any development proposals.

The Conservation Group raise no objection to the amended proposals, though the following specific issues are identified: (i) It is requested that adequate park and ride services be introduced to stop cars coming into the city centre; (ii) Shoppers who use the Central Market may have a relatively long walk to the nearest bus stop unless the routes were moved to St. Mary Street; (iii) The proposed works to St. John the Baptist churchyard should be linked to the current proposals through a Section 106 legal agreement to ensure that the improvements are implemented.

8. ANALYSIS

8.1 Following the submission of the outline planning application in October 2002, extensive discussions have taken place between the applicant, St David’s Partnership, their appointed highway / master planning / urban design consultants, and the Council’s Regulatory Service, the Head of Strategic Planning, and the Traffic and Transportation Service. In addition, individual Service Areas of the Council have liased with St. David’s Partnership in respect of various aspects / elements of the scheme, e.g. the Leisure and Lifelong Learning Service with regard to the future requirements / aspirations of Cardiff Central Library.

Discussions have also taken place between St. David’s Partnership, this Council, and representatives from the Marriott hotel and St. John the Baptist Church in order to progress the public realm and design principles of these key areas, as well as with the Design Commission for Wales in terms of the general urban design / public realm issues of the development.

8.2 Amendments to the Proposals

Amended proposals were submitted in April 2003 these respond to discussions with the Service Areas of this Council, the Design Commission for Wales (refer to para. 6.2 above) and responses received from the initial consultation process.

The principal amendments to the submission are: (i) Retention of Cardiff Central Library in its current location with corresponding improvements to the public realm around the library (creation of Library Place - refer to para. 1.5.4) and refurbishment of the ground floor to create an active frontage on to Hill’s Street and Bridge Street. The proposals will also include internal and external improvements to the library building; (ii) Introduction of a building (currently identified for residential / office / hotel use) adjoining the Central Library and adjacent to the entrance to the open market. This building will incorporate within its design the entrance to the existing service ramp to the St. David’s Centre; (iii) Retention of a landmark building at the southern end of The Hayes (formerly identified for a new library). Possible residential or hotel use is suggested with ground floor retail / A3 uses. A high quality landmark design is identified for this building; (iv) Improvements to the public realm of Hill’s Street, the pedestrianised area of Bridge Street, the proposed Open Market area (St. David’s open market), and the creation of a more defined open space adjacent to the CIA; (v) Relocation of the principal service access to St. David’s 2 from Mary Ann Street to Bute Terrace; (vi) Redesign of the car park and highway layout to reduce pedestrian and vehicle conflict particularly around Bridge Street and Mary Ann Street; (vii) Inclusion of additional uses within the scheme - art gallery and breakout space for St. David’s Hall, police unit.

The amended proposals are supported by the following revised documents and plans:

(i) ‘Masterplan Principles’ - setting out the aims / principles of the development; (ii) ‘Masterplan 1’ - establishing the masterplan process for the site. The proposed access infrastructure, mix of uses, and public realm masterplan concept is considered; (iii) Environmental Statement / Appendices / Non-technical Summary - These documents cover the scoping opinion agreed with this Council in

57 July 2002. The documents include a Transport Assessment and Retail Assessment. The following are also considered: urban design and visual impact of the development, socio-economic issues, noise and vibration considerations, evaluation of the impact of the development upon air quality and daylight / sunlight, archaeological and ground conditions, impact upon services and infrastructure, and impact / disruption upon the city centre during construction; (iv) Public Realm Appendix to the Environmental Statement - Illustrating the potential public realm creation around the development site focusing on key new spaces and pedestrian routes created and individual elements of the public realm ,e.g. paving, landscaping, street furniture, lighting, signage; (v) Urban Design Appendix to the Environmental Statement - Evaluation of the existing urban design of the city centre, and analysis of the development concept of the proposals; (vi) Statement of Sustainability Opportunities - Sets out the potential for sustainable development to be incorporated within the development, e.g. in building design, materials, waste management, energy use; (vii) Context Masterplan drawing - identifies the building blocks and highway layout of the development site in relation to the wider city centre; (viii) Public Realm Masterplan drawing - showing the proposed infrastructure works to lay out new streets and access arrangements; (ix) Highway and Car Park Access Layout - identifying alterations to the public highway, bus provision (bus lanes / bus stops), junction alterations, car park / servicing access / egress arrangements, pedestrian crossings, advance cycle stops at junctions.

Further amendments have been submitted in May 2003 in respect of the conceptual design of the Adam Street development site, together with a reduction in the final parking provision (of 200 spaces) on this site. The Environmental Statement has also been amended to refer to TAN 18: ‘Transport’, include further analysis of the development upon sunlight and daylight, and to ensure consistency throughout the Statement in the proposed floor space figures. The amended Environmental Statement has been advertised on site and in the press. The expiry date for representations is 10th June 2003.

(Refer to Conditions 7 and 8)

The following documents have therefore been amended: Masterplan 1, Environmental Statement / Appendices / Non-Technical Summary, Public Realm and Urban Design Appendices to the Environmental Statement, Public Realm Masterplan drawing, the Context Masterplan drawing, and Highway and Car Park Access Layout drawing.

8.3 Required Procedures in relation to the Determination of the Outline Planning Application

58 Referral to the Welsh Assembly: Due to the scale of new retail floor space proposed, the outline planning application is to be referred to the Welsh Assembly for consideration.

Advertising of the Proposed Development: The original submission, the subsequent amendments to the outline planning application, and the revisions to the Environmental Statement have been advertised on site and in the local press. The proposals have been advertised due to the scheme constituting a major development proposal; the submission of an Environmental Statement accompanying the application (under the Environmental Impact Assessment Regulations 1999); and the potential impact of the development upon the St. Mary Street and Queen Street Conservation Areas and the setting of listed buildings.

The application has also been advertised as a departure on account of the retail proposals extending outside the City Centre Principal Shopping Area and in respect of the proposed land uses for the Adam Street site.

(Refer to Recommendation 2)

8.4 The Master planning Approach

The master planning approach has been adopted by the agents and the masterplan process is submitted for approval by the Local Planning Authority. The masterplan will be used for the whole site as the basis from which to develop the site and establishes the principles upon which the various parts of the development will be progressed. Six key principles are identified: (i) Urban regeneration and mixed uses; (ii) Placemaking through a network of attractive streets and squares; (iii) Accessibility with reduced traffic impact; (iv) City scale buildings and design; (v) Sustainable development; (vi) A managed / phased development process.

The masterplan approach is considered acceptable by this Council and the key principles of the proposed development are acknowledged and agreed with.

8.4.1 Recommended Conditions Condition 11 (Masterplan Principles and Masterplan)

8.5 Justification of the Extent of the Application Site Boundary

The application site extends to 16.4 hectares. It is considered that the size of the site will ensure that a comprehensive redevelopment of this part of the city centre is achieved with a mix of uses; this supports the principles of sustainable development. The extent of the site will also facilitate effective and integrated linkages into adjacent parts of the city centre and the creation of new pedestrian routes / streets and new open spaces / squares. The site’s size will enable a comprehensive transport approach to be undertaken which

59 addresses provision for cars, buses, cyclists, servicing vehicles, taxis, the disabled, and pedestrians in a co-ordinated manner. It is also considered that variety in the scale, design, massing and form of new buildings within various parts of the site can be better achieved on a larger scale of development.

The extent of the application site is therefore supported by this Council.

8.6 Land Use Planning Policy

8.6.1 General Land Use Planning Policy ‘Planning Policy Wales’ (March 2002) encourages the creation of sustainable patterns of development and promotes mixed-use developments within existing centres. In respect of retail development, the guidance aims to secure accessible, efficient, competitive and innovative retail provision; promote city / town / district centres for retail development; enhance the vitality, attractiveness and viability of city / town / district centres; and promotes access to these centres by public transport, walking and cycling.

Whilst ‘Planning Policy Wales’ supports new retail development in existing centres such proposals must be justified on the basis of need for additional provision, a sequential approach to site selection, the impact upon existing centres, accessibility, and the impact upon overall travel patterns.

‘Strategic Planning Guidance for South East Wales’ highlights the role of Cardiff city centre as the head of the regional shopping hierarchy in South East Wales.

The adopted City of Cardiff Local Plan defines the Principal Shopping Area and Principal Business Area of the city centre and any proposals for new retail or business development within the city centre must be evaluated in relation to this policy context. Policy guidance within the Local Plan is also provided in respect of residential development proposals, business uses, affordable housing, open space provision, leisure, and hotel developments. This policy guidance on land uses is supported by specific city centre Supplementary Planning Guidance (City Centre Strategy 1998-2002; Premises for Eating, Drinking and Entertainment in the City Centre) as well as general supplementary guidance in respect of open space and Class A3 uses.

The City Centre Strategy seeks to sustain and enhance the vitality, attractiveness and viability of the city centre and realise its full potential as a leading European regional shopping centre and office location, a vibrant visitor environment, a source of leisure activity, and as a place for providing homes as well as creating an attractive, safe and healthy environment.

The main land use planning policy issues in relation to St. David’s 2 relate to the following:

8.6.2 Retail Land Use Planning Policy The St. David’s 2 development lies partly within the City Centre Principal Shopping Area (PSA) as identified in the adopted City of Cardiff Local Plan

60 (the ice rink, multi-storey car parks, and Adam Street site lie outside this area).

Policies 47 (City Centre Principal Shopping Area) and 50 (Retail Development) of the Local Plan apply.

Policy 47 favours new and improved shopping facilities in the PSA subject to the proposed level of increase of shopping floor space and its impact on the vitality and viability of existing shopping provision; its environmental impact; the extent to which the proposal encourages physical and economic links with its surroundings; the acceptability of access and servicing; and local land use considerations.

Policy 50 states that retail development at other locations will only be permitted if the proposal cannot be accommodated within / adjoining existing centres; there is no need to preserve the site for its existing / allocated use; the proposal will not harm the vitality and viability of existing centres; traffic flows, travel patterns, energy use and emissions would be minimised, adequate parking and servicing; and acceptable scale, design and amenity considerations.

It is noted that the proposals for retail development at the Adam Street site, and those parts of the main city centre St. David’s 2 development to the south of Toys R Us and to the south of Bridge Street must be evaluated in relation to Policy 50 of the Local Plan.

In respect of retailing, the City Centre Strategy identifies the need to maintain a range and choice of shops, introduce new forms of retailing, and attract new food stores while protecting and enhancing existing facilities and securing improvements to the public realm.

Proposals for new restaurant and cafe uses within the development and the inclusion of a public house on the Adam Street site must be evaluated in relation to the Supplementary Planning Guidance on ‘Restaurants, Take- aways and Other Food and Drink Uses’ and ‘Premises for Eating, Drinking and Entertainment in the City Centre’ to ensure that such A3 uses do not adversely affect the amenities of nearby / adjacent residential occupiers.

8.6.3 Residential Land Use Planning Policy Policy 24 (Affordable and Special Needs Housing) of the Local Plan states that new housing sites of more than 50 dwellings must include an element of affordable housing where there is evidence of need which can be met on site. It is noted that the St. David’s 2 development identifies a range of residential development of between 80-750 units, therefore the provision of affordable housing will be sought within the site.

The need for affordable housing provision within the urban area is further highlighted by Policy 25 (Affordable Housing within the Built-up Area) of the Local Plan, which favours such provision at redevelopment sites within the built-up area of the city.

In accordance with Policy 31 (Residential Open Space Requirement) of the Local Plan and the ‘Open Space’ Supplementary Planning Guidance, consideration must be given within new housing proposals to the provision of on-site recreational open space, however, if sufficient on-site provision cannot be achieved a financial contribution (via a Section 106 Agreement) will be sought from the developer towards improving existing open space within the vicinity of the site.

Both the main city centre development site and the Adam Street site must have regard to the above policy requirements.

The City Centre Strategy identifies an absence of people living in the city centre and seeks to promote a mix of tenure and types of household in the city, recognising the contribution that residential accommodation can make to the vitality of the city.

8.6.4 Office Land Use Planning Policy The entire application site is within the City Centre Principal Business Area, Policy 35 (City Centre Principal Business Area) of the Local Plan therefore applies which favours office development in this area subject to its scale, location and design, and amenity and transportation issues.

The Adam Street site is identified on the Proposals Map of the Local Plan as land allocated for business, industry and warehousing uses. Any alternative use of the site (e.g. residential, retail, hotel) must be evaluated in relation to Policy 36 (Alternative Use of Business, Industrial and Warehousing Land) of the Local Plan which requires an assessment of the proposals in relation to the demand for and need to preserve a range and choice and quality of sites available for business, industrial and warehousing, and considerations of scale, location, design, amenity and transportation.

The City Centre Strategy identifies the need to ensure that a good range of city centre sites and premises are available and recognises the city centre’s role as a major office provider and the benefits of such provision in terms of job creation and the creation of a vital and attractive city centre.

8.6.5 Hotel / Leisure Development Policy 45 (Sport, Recreation and Leisure Facilities) of the Local Plan favours such developments within the Principal Business Area, subject to the proposals not harming the vitality and viability of the PBA; minimising traffic flows, travel patterns and energy use; and being well-located to modes of transport other than the car.

Policy 46 (Hotel Development) of the Local Plan favours hotel developments within the Principal Business Area and at other locations in the urban area if there is no need to preserve the site for its existing / allocated use, and subject to considerations of scale, location, design, amenity and transportation issues.

62 8.6.6 Recommended Conditions Condition 13 (Maximum floor space restrictions)

8.7 Transportation Issues

An amended Transport Assessment (TA) forms part of the amended Environmental Statement.

The key findings are as follows:

8.7.1 Anticipated Travel Demand / Traffic Attraction to St. David’s 2 Based on locally collected and national trip data an overall estimate of vehicle trip attraction has been made. The TA estimates that the development may attract around 42,000 person trips on a weekday and approximately 57,000 person trips on a Saturday, with a weekly footfall of approximately 322,000 or 16.7 mn visits a year. Based on these figures, an estimate of annual travel demand has been made which suggests that approximately 48% of all visits (weekday and Saturday) will be by car, 25% by bus / coach, 16% by train, 10% walking and 1% by cycle (these estimates do not consider event day situations).

On weekdays it is estimated that 19,000 visitors will travel by car; 12,100 by bus / coach; 6,700 by train; 2,900 by walking; and 400 by cycle. These figures rise on Saturdays to 30,000 visitors by car; 12,500 bus / coach; 9,600 train; 9,600 walking.

The TA states that in the light of the above projections it is considered that the sustainability of the site in transport terms is considered to be very good due to its city centre location and the availability of a choice of transport.

The TA identifies that St. David’s 2 will increase visitor number to the city centre however, the increase in pedestrian flows can be accommodated by the improved pedestrian environment.

The TA states that St. David’s 2 is estimated to attract 9,200 daily ‘two-way’ vehicle trips on weekdays and 12,900 daily ‘two-way’ trips on Saturdays. However, the TA recognises that a large number of trips, particularly on weekdays, will be diverted/‘pass-by’ trips (commuters dropping into the development) which is traffic already on adjacent / nearby streets. Taking into account ‘pass-by’ trips and existing background traffic, the estimated total number of vehicle trips attracted to St. David’s 2 is 1,650 vehicle trips on peak weekday afternoons and 2,672 vehicle trips on Saturday peak times.

8.7.2 Highway Network Modelling Traffic modelling packages has been undertaken to provide estimates of traffic assignment, evaluate alternative individual junction layouts, and to provide information on the performance of the highway network both with and without the development proposals. This modelling has allowed for the impact of car borne traffic to be assessed. The modelling has covered the whole of the core city centre area, including all major junctions and highway

63 links and major points of traffic attraction and generation, e.g. car park accesses.

The impact of the development upon the operation of a number of junctions within / adjacent to the city centre has been evaluated through the traffic modelling: (i) West Grove / Newport Road / Fitzalan Place: Some delays in 2008 during weekdays and Saturdays. Upon completion, it is expected that Saturday peak hour traffic approaching from Boulevard de Nantes will use Station Terrace resulting in an overall improvement in the capacity of the junction and a reduction in queue lengths and delays. During weekday peak times capacity of the junction is slightly reduced and delay and queue lengths increased mainly due to commuter traffic rather than traffic generated by the development; (ii) Station Terrace / Newport Road: A large volume of traffic is anticipated to approach from Boulevard de Nantes on Saturdays. Whilst delays and queuing are anticipated southbound from Boulevard de Nantes and northbound from Station Terrace the junction is expected to operate within capacity during the Saturday peak. No problems are anticipated at weekday peak times; (iii) Adam Street / Central Link: An improvement is expected due to traffic reassigned once the development is operational; (iv) Wood Street / St. Mary Street / Westgate Street: Delays are already experienced during Saturday peaks. A further 10% increase in traffic saturation at this junction is expected during the Saturday peak as a result of St. David’s 2. No delays are anticipated during the weekday peak; (v) St. Mary Street / Customhouse Street: This junction operates above capacity on Saturday peaks at present, this traffic saturation will increase by 4% to 115% as a result of St. David’s 2. No delays are expected during weekday peak times; (vi) Bute Street / Tresillian Way South / Herbert Street: A reduction in the traffic capacity of this junction is expected during the Saturday peak in 2008 resulting in delays and queuing. No delays expected during the weekday peak.

The traffic modelling therefore concludes: - Changes to the highway network resulting from St. David’s 2 will overall be negligible with the majority of key highway junctions predicted to operate satisfactorily. - Junctions may experience difficulties on a Saturday (Wood Street / St. Mary Street, St. Mary Street / Customhouse Street, Bute Street / Tresillian Way South, Newport Road / Station Terrace) with only traffic problems anticipated at Newport Road / Fitzalan Place junction on weekday peak times. The analysis states that even without St. David’s 2 these junctions are unlikely to operate satisfactorily. - St David’s 2 will result in a redistribution of queues around junctions with a neutral effect on junction operations in most cases. - The analysis indicates that the existing highway network, once upgraded and modified, will represent a ‘no worse off’ / neutral situation.

8.7.3 Comments of the Chief Traffic and Transportation Officer in respect of trip generation and distribution as a result of St. David’s 2 He notes that Traffic & Transportation officers, together with the appointed highway consultants, Scott Wilson (acting on behalf of the developer) have worked closely together since March 2002 on all transport related issues in respect of the St. David’s 2 development. From the outset the extent of the study area to be modelled was agreed by all parties.

The result of the modelling exercise indicate that the core central area would operate slightly worse with the proposed development. However, additional junction improvements proposed such as Fitzalan Place / Newport Road and North Road / Boulevard-De-Nantes, together with Variable Message Signage (VMS), to intercept traffic from the north and north east with Park & Ride facilities, will help ease congestion within the core central area.

The main issue, which has been raised by Traffic & Transportation officers, is the Trip Generation assumptions made by the highway consultants, Scott Wilson. This forms the main input into the model and it is vital for this to be robust. The Traffic & Transportation officers are consequently of the opinion that the assumptions made are optimistic. To address this issue, the Traffic & Transportation consider that a review mechanism is required, (i.e. before and after studies), on an annual basis during the construction period and for two years following completion of the development. This review mechanism will allow Cardiff County Council to monitor traffic conditions during the development period, and post completion, and compare it with the consultant’s predictions.

The review mechanism would provide indicators to show if and when any mitigation measures are required. These mitigation measures will be discussed with the developer with a view to implementing any measures that may be required, in a collaborative and integrated way. The St. David’s Partnership has agreed to the review mechanism.

(Refer to para. 8.7.30 and Section 9 of this Report in respect of the Section 106 Agreement sought in relation to a traffic impact review mechanism)

8.7.4 Car Parking St. David’s 2 identifies the following parking provision within the application site: (i) 500 space basement car park for the department store (accessed from Hayes Bridge Road); (ii) 1,500 space multi-storey car park integrated into the main shopping centre (accessed from Mary Ann Street); (iii) 500 space multi-storey car park on the existing David Street car park site (accessed from Bridge Street, egress on to Mary Ann Street / Bridge Street). This car park will be linked by a high level bridge across Mary Ann Street to the main shopping centre parking areas; (iv) Temporary 1000 space car park on the Adam Street site. This will reduce to 800 spaces (500 space for a satellite shoppers car park for

65 the city centre, 300 spaces for the residential / office / retail development of the site) upon completion of the main city centre shopping centre development; (v) Replacement decked parking of 100 spaces for the Marriott hotel displaced from the siting of the landmark building to the south of The Hayes (accessed from Mill Lane, egress on to Bute Terrace).

A total of 3400 car parking spaces will be created by the development The sum of (i)-(v) above) and St. David’s 2 will result in a net increase of 1,106 spaces. This increase in city centre parking provision is considered to be in accordance with the Central Area Parking Guidelines. In association with proposed public transport improvements, it is considered that the parking provision will encourage visitors to use more sustainable transport modes to access St. David’s 2.

The TA anticipates peak-parking demand of 2,858 spaces on a Saturday (around 95% of total new provision), with 37% capacity estimated on weekdays.

St. David’s Partnership have stated that a financial contribution will be provided to contribute to the provision by the Council of Variable Message Signage (VMS) on key routes into the city. The VMS system will assist visitors in locating parking thereby avoiding queues at car park entrances and ‘searching’.

The TA concludes parking demand generated by St. David’s 2 can be accommodated within the proposed parking provision and that the level of parking provision will be sufficient to maintain the city centre’s viability and vitality whilst also limiting availability to encourage some visitors to use other modes of transport.

8.7.5 Comments of the Chief Traffic and Transportation Officer in respect of car parking in relation to St. David’s 2 The Environmental Statement (Appendix 7, Transport Assessment) identifies 3,300 parking spaces within the department store basement, the main shopping centre multi-storey (north-east corner stack), David Street multi- storey, and Adam Street satellite multi-storey.

Planning Guidance (Wales) Technical Advice Note 18 ‘Transport’ (Welsh Office, July 1998) states that: “In locations with good access to means of travel other than the private car, local authorities should consider reducing the maximum parking allowed.” The Chief Traffic and Transportation Officer identifies that the St. David’s 2 proposals will lead to a reduction in the level of long stay commuter parking, through the proposed car park management and pricing proposals to be agreed with the Authority (refer to para.*** and Section 9 of this Report)

Planning Policy Wales (Welsh Assembly Government, March 2002, para. 8.4.5) states that: “Local authorities should ensure that new developments provide lower levels of parking than have generally been achieved in the past

66 … Authorities should, where appropriate, seek to encourage appropriate redevelopment or re-use of existing private parking sites to bring the provision down to revised standards”. As with the above, the Chief Traffic and Transportation Officer states that this will be achieved by reductions in long stay commuter parking associated with the development and proposed car parks.

Planning Policy Wales (Welsh Assembly Government, March 2002, para. 8.4.3) states that: “Local authorities should consider parking issues on a joint basis with neighbouring authorities… They should jointly establish maximum levels of parking for broad classes of development, together with a threshold size of development above which such levels will apply.” This is in reference to Cardiff County Council’s adopted parking guidelines. These are the 1993 Standing Conference on Regional Policy in South Wales Parking Guidelines and their 2001 Addendum, which converts the current minimum standards to maximum standards.

The Chief Traffic and Transportation Officer notes the volume of parking proposed for this development, however, he recognises that the increase in parking is in the form of short stay shopper parking and not long stay commuter parking. To which end he notes that the adopted parking guidelines allows the Authority to reserve the right to treat all planning applications on their merits according to the size, nature, location, density, employment and traffic generation characteristics of the proposed development. In consideration of this application, the Authority considers that the reduction in long stay parking provision combined with the increase in high turnover short stay spaces should assist in the reduction of queuing on the highway, and continued vitality of the city centre. Furthermore, he identifies that the development will remove some 240 long stay spaces in Adam Street and Churchill Way (south) and up to 85 short stay spaces in Churchill Way (north). He also notes that further reductions and rationalisation / enforcement of existing (often illegal), on-street parking will be addressed as a result of the proposed development.

The proposed parking provision is therefore considered to be accepted, subject to appropriate conditions being attached to any planning permission.

(Refer to para. 8.7.30 and Section 9 of this Report in respect of the ‘claw back’ of parking provision on the Adam Street site and requirement for a parking management regime for all car parks to be agreed.)

8.7.6 Multi-storey Car Park Safety and Security

The TA confirms that the internal design of the car parks will be confirmed at the detailed design stage.

8.7.7 Comments of the Chief Traffic and Transportation Officer in respect of car park layout design

The Chief Traffic and Transportation Officer considers that Condition 34 (car

67 [ark layout design) adequately covers issues relating to the design, safety and security of the proposed multi-storey car parks.

8.7.8 Comments of the Chief Traffic and Transportation Officer in respect of highway access within the site A proposed outline highway & car park access layout plan, D101318/004 B, has been produced and submitted in support of the outline planning application.

The Chief Traffic and Transportation Officer accepts the broad principles regarding highway access and modifications detailed in the application and shown on the highway layout plan. This position is however, subject to his further comments made in respect of other highway / traffic issues and the detailed design and phasing being agreed with the Local Planning Authority. In this respect he refers to Condition 36 (full details of works to the highway), which requires details of the works to the highway to be agreed with the Local Planning Authority and implemented in accordance with the phasing timetable.

8.7.9 Bus Services The TA proposes the provision of additional bus stops and waiting facilities on Bridge Street and Mary Ann Street, Hayes Bridge Road, Bute Terrace, Custom House Street, and Adam Street. The additional stops will improve bus provision to the southern part of the city centre and will replace the existing bus stop provision on The Hayes. Bus priority measures will also be introduced on Mill Lane and Custom House Street together with a bus lane on Bute Terrace. The TA identifies an ‘express core bus network’ which focuses on high frequency and limited stops.

The TA considers that the above measures will improve bus provision in the city centre and will enhance access by bus to the city centre. It is considered that the proposed bus stop provision will mitigate against any effects from the removal of The Hayes bus stops. The TA considers that the importance of bus-based park and ride will increase and will assist in making year-round services viable.

8.7.10 Comments of the Chief Traffic and Transportation Officer in respect of bus infrastructure provision The Chief Traffic and Transportation Officer has expressed concerns in relation to the potential for buses to be held in queuing car park traffic, though he recognises that this should be minimised by encouraging through traffic to avoid the main section around Bridge Street and the car parks. He notes that this is redirection of through traffic is significant as bus services would otherwise suffer as a result of the increase in cars accessing car parks. Furthermore, he recognises that improvements in bus services will increase rather than reduce pressure for free running of buses and for bus shelter and stop facilities in this part of the city centre.

It is recognised that additional bus shelters and bus stops are required with corresponding Real Time Information displays and bus boarder raised kerbs,

68 particularly to the north of the Marriott Hotel. This will help compensate for the loss of the existing bus stops on The Hayes, which will be removed as a result of pedestrianisation of this street. The Chief Traffic and Transportation Officer recognises that there is a substantial demand from bus passengers to access the core of the city centre, and that public transport users should not be set down significantly further from the centre than car users.

It is also noted that additional bus shelters / stops will be required on Churchill Way along with corresponding Real Time Information displays and bus boarder raised kerbs.

Road markings will also need to be revised with appropriate use of keep clear hatching to keep bus routes clear.

The Chief Traffic and Transportation Officer notes that he has met with Alan Kreppel of Cardiff Bus in response to his letter of objection (refer to para. 6.1 above) and has agreed to the following alterations to the proposals in order to improve accessibility for bus public transport:

(i) A ban on left turn into Station Terrace for private cars and extension of the bus lane west on Newport Road to its junction with Station Terrace to increase capacity for buses; (ii) Extension of the proposed bus stop infrastructure (bus boarders, RTI units and shelters) into Churchill Way; (iii) Provision of a bus lay-by for up to four bus stops alongside the bus lane outside the Marriott Hotel, supported by a contra-flow bus lane (southbound only) on Hayes Bridge Road. This is considered by Cardiff Bus to be necessary replacement for the loss of access and facilities in The Hayes.

8.7.11 Cardiff County Council’s comments in respect of the Chief Traffic and Transportation Officer’s recommendations with regard to bus infrastructure It is recognised that a number of the issues raised by the Chief Traffic and Transportation Officer are not shown on the amended plans, e.g. bus stops north of the Marriott hotel, bus shelters / stops along Churchill Way, changes to traffic access along Station Terrace, therefore Conditions 33 (details of bus shelters and stops), 36 (full details of works to the highway), and 41 (details of road network around the Marriott Hotel) are recommended to ensure that these issues are considered further be the developer. Also refer to para. 8.7.30 and Section 9 of this Report in respect of bus stop provision via the Section 106 Agreement.

8.7.12 Comments of the Chief Traffic and Transportation Officer in respect of the Construction Period of St. David’s 2 and its impact upon city centre car parking provision The Environmental Statement (para. 17.33) states the proposed sequence and timing of the demolition of existing multi-storey public car parks:

Car Park Spaces Demolition Oxford Arcade multi-storey and 35 458 2nd Quarter,

69 Customer Shopmobility Centre Year 1 David Street multi-storey 493 4th Quarter, Year 1 Tredegar Street multi-storey 943 4th Quarter, Year 1 Total 1,894

The above table indicates that by the end of Year 1, in Cardiff city centre a total of 1,894 public car parking spaces will have been lost (this includes the Shopmobility Centre with a capacity for 35 customers). The Environmental Statement (para. 17.104) states the proposed timetable for the construction of the new car parks is as follows:

Car Park Spaces Completion New Adam Street multi-storey * 1,000 1st Quarter, Year 3 New David Street multi-storey 500 1st Quarter, Year 5 New Department Store basement car 500 1st Quarter, park Year 5 New multi-storey within main shopping 1,500 2nd Quarter, centre (North East) Year 5 Total * 3,500 (* This parking provision will be reduced by 200 spaces, to be removed from the Adam Street car park upon completion of the development.)

The above information means that for the first 4 years of construction there will be a major detrimental impact on car park availability and disabled facilities for the city centre together with the loss of the Shopmobility Centre as well as three main city centre car parks with a combined capacity of 1,894.

The first new car park (Adam Street) will not open until Year 3 and, given its location, it will not be as convenient for city centre shopping. There is also no suggested alternative provision for car parking or Shopmobility users, especially during Year 2 when the loss of parking spaces is greatest.

The Chief Traffic and Transportation Officer identifies that a number of options available to the applicants to address the parking deficit during the construction period: (i) Delay demolition of the existing multi-storey car parks; (ii) Bring forward the construction of the new car parks; (iii) Identify a site or sites for temporary car parking nearby; (iv) Launch a full-time park and ride service from an area with room for sufficient car parking out of town; (v) Devise a combination of the above options.

The Chief Traffic and Transportation Officer identifies that the demolition and construction phasing of the proposed parking is therefore of concern, and advises that the phasing of the development is revisited to ensure minimum disruption to the vitality of the existing city centre. He advises that a

70 demolition and construction phasing management plan should be agreed with the Local Planning Authority, to detail traffic management, parking, signage, park & ride, etc., during construction. Restrictions relating to construction traffic, route to/from site, operational hours, etc. is also advised and to be included within the phasing management plan.

It is noted that there should be no net reduction in the number of car parking spaces available as a result of construction during development (including demolition phases), to minimise disruption to and maintain the vitality of the city.

It is also recognised that a short-term alternative Shopmobility Centre is operational before the existing Shopmobility Centre is demolished and signage should be provided to direct shoppers to these, and any other, temporary facilities.

The Chief Traffic and Transportation Officer therefore advises that all of the above matters should be subject to conditions attached to the permission.

(Refer to Conditions 21 – comprehensive phasing plan; 25 – no demolition of buildings until an approval has been granted for the redevelopment of the site); and 35 – no multi-storey car park demolition until a replacement car park / Shopmobility facility has been agreed.)

8.7.13 Mobility Impaired A Shopmobility facility will be provided within the main shopping centre, currently identified at first floor level linked to the main multi-storey car park with lift access to all floors and egress out on to the pedestrianised part of Bridge Street. Dedicated Shopmobility and general disabled persons parking bays will be included throughout the parking provision of the development

The extension of the pedestrianised area will also be of benefit to mobility- impaired users.

The Public Realm Appendix to the Environmental Statement identifies a southward route for orange badge holders from St. John Street / Working Street / Hayes Island / Wharton Street as well as a northward movement along Mill Lane.

The TA states that appropriate provision is made for such users of the St. David’s 2 with their access through the area improved.

8.7.14 Comments of the Chief Traffic and Transportation Officer in respect of provision for the mobility impaired The Environmental Statement / Transport Assessment refers to the provision of a replacement Shopmobility facility in the development. “A Shopmobility scheme will be operated within the development. Consideration will be given towards the allocation of spaces within the main integrated car park to Shopmobility users.” The Chief Traffic and Transportation Officer states that

71 this should be subject to provision of like for like facilities, with no break in provision.

Para. 8.6 of the TA, (Appendix 7) details that just over 4% of the total parking allocation is proposed for disabled parking, though it suggests that up to 50% of this may be allocated to ‘parent & child’ spaces on the basis that “not all disabled drivers will require parking at the same time”. The Chief Traffic and Transportation Officer considers that, as a minimum, disabled parking provision should comply with the adopted guidelines.

Para. 7.132 of the TA details the four main parking facilities to be provided with the development, which will include within the 3,000 spaces some 136 for the mobility impaired.

The Chief Traffic and Transportation Officer identifies that the proposed provision of disabled parking is compliant with the standard (which indicates a minimum requirement of 124 spaces), although this has not been specifically compared with the existing provision. He emphasises that all 124 disabled parking spaces should be available and not combined/shared with ‘parent & child’ provision, as use of these parent & child spaces is largely uncontrollable. He notes that should it be considered appropriate to provide parent & child spaces, then these should be provided in addition to the disabled provision.

He advises that the provision of replacement Shopmobility services should be conditioned and should be maintained at a consistent level and continuity of service, as with parking provision generally there should be no temporary loss of facilities as a result of demolition or construction. The replacement scheme should be appropriately and conveniently located as required by the parking guidelines.

It is noted that the proposed conditions make specific reference to disabled parking issues and the protection of parking provision generally and bind the applicant to agreeing such details with the Local Planning Authority. Condition 35 states that no multi-storey car park shall be demolished until such time as a detailed schedule for its replacement has been agreed, to which end it is noted that the Shopmobility facility is located on the ground floor of the Oxford Arcade car park.

Condition 36 refers to details of works to the existing highway and he notes that this includes a reference to disabled parking which recognises that existing on-street disabled parking provision will be affected by the development. It is suggested that Wharton Street may be a suitable alternative location for the disabled parking displaced from Hill’s Street.

The Chief Traffic and Transportation Officer therefore recognises that matters relating to the provision of disabled parking facilities and Shopmobility are adequately covered by the proposed planning conditions.

72 (Refer to Conditions 6 – access and facilities for disabled persons including parking provision; 34 – internal car park layout; 35 – no demolition of car parks until replacement car parking and Shopmobility facility has been approved; and 36 – full details of works to the highway including disabled parking provision)

8.7.15 Cycling Cycling will be prevented within the extended pedestrianised areas with cycle stands provided on the periphery of the pedestrian priority area as well as a secure cycle store area within the redeveloped David Street car park. The proposals intend to improve the level and quality of cycle parking provision and to minimise conflict with general pedestrian flow.

The TA considers that the above measures will only impact on ‘through’ rather than ‘to’ cycle trips and identifies that the extension of the pedestrianised area will reduce the number of routes available to cyclists passing through the city centre. It is considered that these ‘through’ trips can be accommodated on the adjacent highway via the introduction of cycle priority measures on roads.

8.7.16 Comments of the Chief Traffic and Transportation Officer in respect of cyclist provision within St. David’s 2 The Environmental Statement acknowledges the Council’s commitment to increasing cycle trips and improving the cycle network. The wider highway infrastructure changes as part of the development do not preclude use by cyclists and it is recognised that additional cycle parking facilities form an integral part of the surrounding street furniture. The proposed highway modifications include advanced stop lines and safe, secure, sheltered and visible cycle parking.

The Chief Traffic and Transportation Officer identifies that the St. David’s 2 development lies at the centre of Cardiff’s developing cycle network and that high quality routes are already provided from the north and south along the Taff Trail, with further routes linking the east and west of the city programmed for construction in 2003/4.

It is recognised that the further expansion of the pedestrian-only area to include The Hayes and the northern section of Hayes Bridge Road will further restrict cycling within the central area, which is prevented from using the pedestrianised areas of the city centre. He therefore recommends that, in line with many other UK city centres, during morning and evening peaks, cyclists should be allowed access to Hayes Bridge Road, The Hayes, Working Street and St John Street. This provision should also be extended to include Queen Street to provide a level of continuity and help mitigate the loss of Bridge Street.

The above relaxation recognises that total exclusion of cyclists from the extended pedestrianised areas will force cyclists to use the increasingly heavily trafficked surrounding road network and would consequently not be conducive to increased levels of cycle use. The Chief Traffic and Transportation Officer recognises that the volume of, and fear of, road traffic

73 is one the main reasons why non-cyclists do not cycle and the increased distance for cycle commuters having to circumnavigate a larger pedestrianised zone would therefore be a further disincentive for people to cycle.

The proposal to increase cycle parking facilities is welcomed and it is recommended that cycle parking be implemented using Cardiff County Council’s Local Plan Cycle Parking Guidelines and cycle facility design manuals.

It is noted that the extension of St David’s 2 across Hayes Bridge Road will cut across an approved section of Cardiff’s Strategic Cycle Route Network. However, the problems this may cause can be ameliorated by provision being made for dedicated cycle facilities along Bute Terrace, connecting Customhouse Street, Adam Street, Station Terrace and Callaghan Square. In line with cycle facility design manuals, it is recommended that on-carriageway cycle lanes and lead-in lanes also be included with advanced stop lines.

The Chief Traffic and Transportation Officer acknowledges that increased traffic flows following the opening of St. David’s 2 could make it difficult to implement further on-carriageway cycle facilities that involve a reduction in vehicle capacity, e.g. prohibiting private cars from St Mary Street / High Street. This issue will need to be considered further in the future.

Air quality is also recognised as of particular concern to cyclists at peak times when levels are known to exceed Government objectives for air quality. The Air Quality (Wales) Regulations 2000 set an objective of 40 µgm-3 as an annual average for nitrogen dioxide by 2005. Measured levels in High Street during 2002 were recorded at 75 µgm-3 and levels for January and February 2003 were measured at 81 µgm-3. This is a problem, which could be exacerbated by the St. David’s 2 development and TAN 18 ‘Transport’ states that local authorities should consider how an overall reduction in vehicle emissions could be made by reducing congestion on sensitive parts of the network. The Head of Environmental and Public Protection (Pollution Control) and the Chief Traffic and Transportation Officer will need to evaluate this issue further in the future.

The Chief Traffic and Transportation Officer recommends the following measures be considered in relation to facilitating improved cyclist usage of the city centre and the development: (i) Cyclists should be allowed within the main uncovered pedestrianised areas commensurate with service vehicle access, possibly on a timed basis and subject to review via a Section 106 contribution; (ii) Cycle lane(s) should be included in the detailed proposals for Bute Terrace and the vehicle section of Hayes Bridge Road, with proposed advanced stop facilities including the provision of lead-in lanes. Details of which would need to be agreed with the Local Planning Authority as part of the detailed design of the highway layout; (iii) A cycle parking condition should be attached to any planning permission.

(Refer to Conditions 5 – cycle parking provision; 20 – comprehensive public realm treatment including cycle stands; and 36 – details of works to the highway including cycle facilities. Also refer to para. 8.7.30 and Section 9 of this Report in respect of a review of cycle use within the pedestrianised areas).

8.7.17 Motorbike Provision The proposals do not specifically refer to the provision of motorcycle parking within the proposals. Tables 7.1 to 7.3 of the TA refers to the existing and anticipated share of motorcycle trips, to the existing and proposed St. David’s Centres, as accounting for 0% of the total.

8.7.18 Comments of the Chief Traffic and Transportation Officer in respect of motorbike provision within St. David’s 2 The Chief Traffic and Transportation Officer notes that this Authority’s experience is that the existing motorcycle parking which would serve the development (located in Churchill Way, Charles Street, Westgate Street and The Hayes) is used on a daily basis and, in the case of Churchill Way and The Hayes, was at/near capacity during various surveys undertaken.

Notwithstanding the above, the motorcycle-parking bay on The Hayes will be removed as a result of the pedestrianisation of The Hayes and the Chief Traffic and Transportation Officer advises that this facility should be relocated to an alternative and equally convenient location.

It is also considered that there is justification to improve the existing facilities at Charles Street and Westgate Street, on the basis that the car parking stock is being increased and that provision for alternative modes should also be increased. Any further amendments to the proposals, e.g. changes to the on- street parking on Churchill Way, should similarly not be detrimental to the overall motorcycle parking provision.

It is therefore recommended that a condition be attached to any planning permission granted which ensures that appropriate provision for motorcycle parking is incorporated into the development.

(Refer to Condition 36 – full details of works to the highway including motorcycle facilities.)

8.7.19 Coaches It is proposed to introduce additional pick up / set down coach parking along the southern section of Churchill Way with a waiting time of 20 minutes for picking up or setting down passengers. The TA concludes that the proposals will improve coach-parking provision within the city centre.

8.7.20 Comments of the Chief Traffic and Transportation Officer in respect of coach parking provision Drawing Number D101318/004 B identifies coach-parking provision in designated bays along the southern section of Churchill Way, however, there

75 are no details at this stage as to how many coaches these bays will accommodate or where coaches dropping off at this point will layover.

The Chief Traffic and Transportation Officer considers that the principle of removing long stay car voucher parking for coach set-down/pick-up bays on Churchill Way, as shown on plan number D101318/004 B, is accepted.

8.7.21 Taxis Additional taxi rank facilities are identified along Mill Lane and the trafficked part of Tredegar Street (to the north of Jury’s Hotel). The ‘Public Realm’ Appendix to the Environmental Statement identifies a southward taxi route along St. John Street / Working Street / The Hayes / Wharton Street to access St. David’s Hall as well as a route along Mill Lane.

8.7.22 Comments of the Chief Traffic and Transportation Officer in respect of taxi provision The Chief Traffic and Transportation Officer expresses concerns in respect of the proposed southward St. John Street to Wharton Street taxi route as this is a pedestrianised area which already attracts high pedestrian flows that are likely to increase as a result of the St. David’s 2 development, he therefore advises that this issue is revisited in subsequent detailed proposals.

It is noted that the St. David’s 2 development will result in the loss of the existing taxi rank on Hill’s Street, adjacent to Habitat. However, additional / improved taxi rank facilities are proposed in Tredegar Street and Mill Lane. Displaced taxis may also make use of the existing taxi rank on the east side of St. Mary Street outside Howell’s.

The proposed provision of taxi facilities on Tredegar Street and Mill Lane, along with use of the existing facilities on St. Mary Street, is considered acceptable.

He notes that these issues will be addressed by the proposed new and amended traffic orders (refer to para. 8.7.30 and Section 9 of this Report in respect of the required traffic orders to be outlined in the Section 106 Agreement).

8.7.23 Servicing / Emergency / Waste Management Access Servicing / Waste Management Access A large basement service area will be shared by the main shopping centre development and the department store with all servicing access from Bute Terrace (with a dedicated customer pick-up area for the department store from Tredegar Street). The existing St. David’s Centre will retain its ramped access and roofed servicing area.

Servicing to the western side of The Hayes and premises in Working Street, St. John Street, and some servicing to St. David’s Hall will be in a south-north movement along Mill Lane / The Hayes (to be pedestrianised) / Working Street / St. John Street with a north-south movement from Church Street / Trinity Street / Wharton Street serving the premises along these routes. The

76 servicing access to the proposed landmark building to the south of The Hayes will be via the pedestrianised northern part of Hayes Bridge Road. Servicing hour’s restrictions will be required along these routes to prevent conflict with pedestrians. The servicing hours of these areas will be 12.00 (midnight) to 10.00 a.m.

Servicing to the Adam Street site will be via Morgan Street / Taff Street.

The TA considers the servicing arrangements to be acceptable and considers that the only impact of the servicing arrangements will be to restrict servicing hours along the currently unrestricted part of The Hayes and northern part of Hayes Bridge Road.

Emergency Vehicle Access The development will ensure satisfactory access for fire appliances and shall include fire-fighting facilities across the site.

8.7.24 Comments of the Chief Traffic and Transportation Officer in respect of the servicing proposals The Chief Traffic and Transportation Officer identifies that the developer proposes to use Mill Lane (northbound only) exiting from St. John Street left on to Duke Street between midnight and 10 am only.

It is understood that Church Street will be used for access to Howell’s servicing yard on Trinity Street, with vehicles exiting via Wharton Street between midnight and 10 am only.

The Chief Traffic and Transportation Officer considers the proposed servicing movements to be consistent with the approach adopted in the existing pedestrianised areas and is accepted subject to appropriate servicing conditions being included with the permission (refer to Condition 30 – comprehensive servicing strategy).

8.7.25 Event Days The developer suggests that on Event Days there is already evidence of trip re-timing and trip suppression within and around the city centre. It is also claimed that the increasing popularity of moving major events to Sunday will greatly minimise any perceived impact from the St. David’s 2 development.

8.7.26 Comments of the Chief Traffic and Transportation Officer in respect of the impact of St. David’s 2 on event days The developers’ comments are generally accepted as there is evidence of trip suppression and re-timing of shopping patterns resulting in more retail activity the day before and after an event.

It is noted that the Cardiff City Centre Manager has commented that the impact of major events at the Millennium Stadium on retail sales over the past year has been reduced by 20% with many events showing year on year growth figures of up to 15%. This has been achieved by providing shoppers, visitors, and the local population with effective communication of all planned

77 activities and clear directives to all the users of the city that Cardiff is “open for business as usual”.

It should also be noted that the events which currently have the highest private car modal splits, namely football events hosted in the absence of Wembley (which trigger the greatest provision of park and ride), will revert back to London before this development is brought into beneficial occupation.

The Chief Traffic and Transportation Officer identifies that the existing park and ride sites, together with associated signposting, will be available as a means to accommodate increases in traffic associated with St David’s 2. Furthermore, he notes that phase one of the VMS strategy proposed by the developer is to intercept traffic from the A470 and A48 into park and ride facilities at peak times on a Saturday when car parks in the city centre reach full capacity.

He therefore concludes that, in light of the commitments relating to the provision of traffic management systems, VMS, etc., that the proposed development will co-exist with events in the city.

8.7.27 Pedestrians The proposals identify the extension of the city centre’s pedestrian priority zone by truncating Bridge Street to create an east-west pedestrian route; pedestrianisation of the western extent of Tredegar Street; pedestrianisation of The Hayes extending into the northern part of Hayes Bridge Road; pedestrianisation of the northern section of Mill Lane; provision of new public spaces; creation of a north-south covered pedestrian arcade (Grand Arcade); and the introduction of new / modified pedestrian crossings at existing signal controlled junctions both within the application site and on roads surrounding the site.

The TA states that the anticipated increased flow of pedestrians and existing and new pedestrian desire lines will be accommodated on the proposed new routes and pedestrianised spaces. The existing barriers to pedestrian movement on the highway network will be reduced by the introduction of pedestrian facilities at signal-controlled junctions. The development will enhance existing public spaces and create new ones and overall, St. David’s 2 will raise the attractiveness of the city centre.

The Chief Traffic and Transportation Officer accepts that the increase in pedestrian flows as a result of the development will be accommodated on the proposed new pedestrian routes and pedestrianised areas.

8.7.28 Rail The TA envisages that the role of Queen Street Station as an arrival point to the city centre will increase as well as increased pedestrian flows from Central Station and various pedestrian crossing improvements are proposed in response to the anticipated increase in pedestrian movement from the two stations. It is also considered that St. David’s 2 will contribute to the use of rail-base park and ride facilities serving the city centre.

The TA concludes that the proposed public transport measures will mitigate against the impact of increased visitor numbers and highway layout modifications.

The Chief Traffic and Transportation Officer notes that the proposals identify improvements to the pedestrian environment from both Queen Street Station and Cardiff Central Station to the St. David’s 2 development.

8.7.29 Other Observations of the Chief Traffic and Transportation Officer Reference is made to the amalgamation of the two raised footways under the Adam Street / Bute Terrace rail bridge, with provision of one wider footpath on one or other side (the ES refers to the south side, while the plan shows a single footpath on the north). The Chief Traffic and Transportation Officer notes that footways will be required on both sides or the road, as is currently the case (refer to Condition 40 – details of Adam Street site including pedestrian facilities).

Further consideration needs to be given to the existing ‘street traders’ that will be affected by the St. David’s 2 development, particularly in the short term, e.g. those in The Hayes including fruit & veg. stall, flower stall, children’s roundabout, etc. Market stall operators will not wish to lose their ‘pitches’ as a result of the development (refer to Condition 47 – scheme for new / replacement market stalls and Section 9 of this Report in respect of market stall operations).

The Chief Traffic and Transportation Officer recommends that a financial contribution (via a Section 106 Agreement) be sought from the developer to cover costs associated with the provision of traffic orders / licences.

It should be noted that much of the highway within the site is currently adopted and will therefore need to be subject to stopping-up orders should detailed planning permission be granted. Such orders may be applied for under the Town and Country Planning Act 1990.

8.7.30 Section 106 financial contributions to be sought in relation to the proposed transportation and highway issues

(i) Variable Message Signage (VMS) Strategy Linked to Park & Ride Provision

The Chief Traffic and Transportation Officer identifies that a system is required to control the use of city centre car parks capacity and park and ride facilities at peak times over the weekend. The system will:

- Monitor the status of the exiting car parks on a continuous basis providing information on available capacity; - Process this information to determine what park and ride sites would be most appropriate to the current level of traffic demand;

79 - Select a park and ride site and control the use of variable message signs to direct motorists to the intended location; - Monitor the park and ride sites on a continuous basis and direct demand towards any location identified as well as responding to changes in the total car park capacity; - Include two types of variable message signs: Electronic Information Signs and Electromechanical Direction Signs; - Be capable of being integrated with the traffic system and other systems; - Provide both control and management information in real time;

This system will use Cardiff’s existing ITS infrastructure and will benefit from the current deployment of VMS. The Chief Traffic and Transportation Officer identifies that there are already a number of VMS installed and a number planned as part of existing developments. The number of VMS will be the minimum that will enable effective operation and will be supplemented by the planned and existing facilities.

He also notes that two CCTV cameras will be required to monitor the Eastern Avenue approach to possible park and ride sites.

The Chief Traffic and Transportation Officer anticipates that the system would be provided in three phases.

Phase 1: - Control system; - Communications system; - VMS on the northern and eastern corridors (A48) feeding park and ride sites; - Capacity monitoring at car parks; - CCTV.

Phase 2: - VMS on the western/southern corridor feeding the Leckwith and County Hall park and ride sites; - Additions to control and communications systems.

Phase 3: - VMS on the eastern corridor (Newport Road) feeding County Hall park and ride site; - Additions to control and communications system.

It is advised that Phase 1 is provided prior to the commencement of development. It is noted that the St. David’s Partnership are currently reviewing the requirement for full provision.

VMS is considered important to ensure minimum disruption in the city centre and the Phase 1 Strategy is considered necessary to enable greater flexibility and enable the use of external park and ride sites

80 during demolition of the existing car parks and construction of the proposed new parking stock in the city centre. Whilst Phase 2 and 3 may be required as part of the review mechanism if assumptions in the application proposals are found to be incorrect.

A sum of £610,000 will be sought in relation to the provision of VMS.

(ii) Park & Ride Bus Links

A financial contribution of £160,000 is to be committed by the developer. This will be towards the provision of a 10 minute frequency bus service from a car park and ride site in the vicinity of the A470 / A48 junction.

It is considered that this facility, together with the VMS / Signage strategy, will enable traffic travelling from the northern (A470) and eastern corridors (A48) to be intercepted and directed into alternative parking arrangements when car parks in the city centre are near capacity. This will mitigate the worst effects of queuing, which currently takes place at peak times in the city centre.

It is noted that this facility may need to be extended to cover the construction phases of St. David’s 2.

The combined VMS / Park and Ride facility is required to sustain the vitality of the existing city centre and to minimise disruption and any adverse impact on the city.

(iii) Junction Improvements

The developer has committed and agreed to a financial contribution of £200,000 towards the improvement of the following junctions:

- North Road/Boulevard de Nantes: A dedicated left turn from North Road into Boulevard de Nantes will substantially improve the circulation of traffic and enable a bus lane to be provided between this junction (southbound) and Kingsway.

- Newport Road/Fitzalan Place: Two right turning lanes from Newport Road into Fitzalan Place improving traffic circulation and providing alternative access to the City Centre car parks from the north.

- Newport Road/Fitzalan Road: Signalisation of the existing pedestrian crossing providing improved safety for pedestrians..

(iv) Post Completion Review Mechanism The size and complexity of this development, together with the potential for disruption during the development period, requires a review mechanism to operate throughout the development period.

81 In addition, a post Review Mechanism is essential for a period of up to two years following full occupancy of the site. It is advised that this should be done in the following stages in consultation with the Council:

- A “ before “ study undertaken by the developer prior to the commencement of any construction / demolition to establish the baseline from which any changes in traffic movements etc. can be measured. This baseline is to be agreed with the Council; - An annual review to be undertaken by the developer to establish any changes in traffic movement patterns from the baseline figures together with a report to be submitted to the Traffic and Transportation Service for evaluation and consideration; - Details of mitigating measures to be prepared by the developer in collaboration with the Council to reduce / minimise or remove any adverse impact associated with the development on the city centre.

(v) Car Parking Management Regime A parking management regime / plan for the car parks should be included, broadly following that currently in place for the existing NCP / city centre car parks. The management plan should include: - Pricing structure – to discourage commuter use; - Price review – annual review subject to approval of the Council; - Hours of operation – in line with existing car parks or as otherwise agreed; - Access / ticketing systems – to be capable of providing real time capacity etc. information to control VMS and feed into Cardiff County Council / telematics systems; - Car park maintenance; - Disabled access and provision.

(vi) Requirement to enter into a Section 278 Agreement in respect of Highway and Landscape Maintenance To ensure an agreed mechanism relating to the future maintenance of the landscaped highway by the applicant.

(vii) Car Parking Provision Claw-Back in respect of the Adam Street site The Section 106 Agreement should include a ‘claw-back’ condition whereby the temporary parking provision on the Adam Street site (1,000 space stack of which 800 are permanent and 200 are temporary) are removed upon opening of the final phase of the car parking provision of the proposed development.

(viii) Churchill Way and Traffic Orders A financial contribution is sought from the developer to complete the proposed provision of up to six bus stops on Churchill Way (it is noted that the applicant’s proposals currently identify three stops at this location).

Diversion of bus services to Churchill Way will necessitate modification to the existing highway infrastructure and traffic orders. The applicant

82 also proposes the provision of coach parking on the southern part of Churchill Way, which will require a financial contribution to offset the cost to the Authority in respect of highway modifications and traffic orders.

In addition to the traffic orders required for Churchill Way, various additional orders will be required across the city as a result of the development. It is therefore proposed that a traffic order contribution be combined with the contribution required as a result of the proposed modification of Churchill Way.

The financial contribution must be sufficient to complete the provision of up to six bus stops (including shelters/RTI units/boarders – approximately £40,000 each), traffic order modifications (voucher/coach/disabled and motorcycle parking, loading & taxi bays, no waiting/loading/etc) and associated accommodation works (signing/lining/bus turning/priority measures/etc).

(ix) Cycle Review A financial contribution has been offered by the developer to facilitate a review of the use made of the pedestrianised areas by cyclists. The contribution will be used to provide the appropriate traffic orders, assess the impact of the use, and provide for a review of how the facility may be amended to provide improvements to all users of the pedestrianised areas.

8.8 Retail Evaluation

An amended Retail Assessment forms part of the amended Environmental Statement.

St. David’s 2 proposes a retail-led mixed use development with 84,150 sq.m. gross of new retail floor space including Class A2 and convenience shopping floor space, of which approximately 63,174 sq.m. will be additional gross retail floor space.

The retail mix of St. David’s 2 will include a department store (of up to 25,000 sq.m. gross), and a mix of major shop units (of between 700-2,500 sq.m.), medium-sized units (110-350 sq.m.) and small units and kiosks. The proposals include A3 uses, these are identified as restaurants and cafes, though a replacement public house is identified on the Adam Street site (‘The Vulcan’ will be demolished). It is also suggested that a food operator could be incorporated within the development, e.g. as part of the department store operations.

The proposals identify a maximum retail floor space on the Adam Street site of 2,000 sq.m. this is identified for convenience retailing.

The Retail Assessment (RA) considers the quantitative and qualitative retail impacts of the development.

The key findings are as follows:

8.8.1 Economic / Retail Need for St. David’s 2 The quantitative capacity for further retail development and the retail impact of St. David’s 2 are based on a 2001 household interview survey and are used to identify shopping patterns within the city centre’s main sphere of influence. Existing ‘flows’ of available expenditure from the catchment area to the city centre / competing centres / out-of-centre retail facilities in the city have also been modelled. A constant market share is assumed by the calculations.

In support of the economic need of St. David’s 2 the RA states the following: (i) While Cardiff is an attractive location for retailers (in 2002 there was 229,400 sq.m. of occupied comparison floor space) it has not kept pace with the demand for floor space in similar centres, this may be due to a lack of a specific proposal in Cardiff; (ii) Cardiff exhibits low shop property investment yields, which is an indicator of strong commercial performance, however, in relation to investment yield trends, there is a narrowing of the gap between Cardiff and its main competing centres, e.g. Bristol; (iii) Over the period 1997-2002 Cardiff’s prime rental levels has grown by 50.1% which suggests strong investor confidence in the future of the centre, however, these high rental levels may be achieved to the detriment of smaller national multiples and independent retailers which suggests the need for additional city centre floor space to maintain the range and diversity of the retail offer; (iv) The city centre is strongly supported by retailer demand and is considered by investors to have significant potential for development and future rental growth; (v) The city has a very wide catchment area however, significant expenditure is also drawn to other retail locations (mainly out-of-centre retail facilities in Cardiff, district and local centres, and shopping destinations elsewhere, e.g. Swansea, Bristol, Cribbs Causeway); (vi) By applying estimates for expenditure per head and penetration rates to projected population levels, capacity for comparison good floor space increase in the city centre is estimated at 20,164 sq.m. net comparison floor space in 2006, 39,341 sq.m. in 2008 and 59,256 sq.m. in 2011, in addition to existing floor space. This capacity will exceed the net increase in city centre comparison floor space within St. David’s 2 (of 40,419 sq.m. net additional comparison floor space) and other city centre commitments. It is therefore estimated that there will be surplus demand sufficient to support an additional 10,552 sq.m. net in 2011 over and above St. David’s 2.

The RA concludes that there is a need for St. David’s 2 due to: (i) Forecast growth in population and per capita expenditure on comparison goods in Cardiff’s catchment area; (ii) Attraction of more than sufficient expenditure to support the scheme by 2011;

84 (iii) Provision of a new department store and range of other prime store which will expand the range and quality of prime retail attractions in the city centre and sustain and enhance its overall vitality and viability; (iv) Absence of any serious or prolonged adverse impact on existing city centre retail areas; (v) On the basis of constant market share, lack of any significant adverse impact on other town centres; (vi) The need to maintain the city centre’s market share; (vii) Lack of alternative large-scale new developments in the city centre to absorb spending growth and the emergence of retail schemes in competing centres; (viii) Restrictions on the expansion of out-of-centre retailing; (ix) An improved retail and services offer as a result of St. David’s 2; (x) Achieving the objectives and aspirations for Cardiff as the regional centre.

The RA summarises that St. David’s 2 will: (i) Provide additional retail and related floor space for which there is a continuing and increasing need and capacity; (ii) Increase investment in new floor space to meet operator needs; (iii) Increase investment in the physical fabric of the city centre; (iv) Improve retail balance in the city centre; (iv) Strengthen the primary shopping area; (v) Contribute to sustaining and enhancing the vitality and viability of the city centre and its competitiveness.

8.8.2 Cardiff County Council’s evaluation of the need for the additional retail facilities in the city centre: The Head of Strategic Planning comments:

The City of Cardiff Local Plan pre-dated latest guidance on the requirement to demonstrate need but Policy 47 (Principal Shopping Area) of the adopted Local Plan indicates that new and improved shopping facilities will be favoured in the PSA subject to the desirability of maintaining a compact shopping area, scale and impact on vitality and viability, environmental impact, encouragement of physical and economic links, access and servicing, and other local land use considerations. The Head of Strategic Planning considers that the St. David’s 2 development will maintain a compact shopping area. He acknowledges that a shift in the PSA’s ‘centre of gravity’ would be likely, and although there may be pressure on fringe areas for more diversification, the centre as a whole should benefit in terms of vitality, attractiveness and viability, from this major development.

He notes that ‘Planning Policy Wales’ states that applications for new retail, office, leisure and hotel uses are best located in a town centre, and should only be allowed where need can be demonstrated. Such need may be quantitative (to address a proven unmet demand) or qualitative (in contributing to development plan policies or Assembly guidance). The agents

85 for the applicants have made an assessment of the need for the proposals and claim there is both a ‘qualitative’ and ‘quantitative’ need for the proposals.

The quantitative assessment of need (a comparison of the future expected growth in available expenditure in the catchment area with the anticipated increase in retail turnover associated with the development) notes that the city centre has a wide catchment area and had 229,400sq.m. of occupied comparison (non-food) floor space in 2002. The St. David’s 2 scheme proposes 40,419sq.m. net additional comparison floor space. Taking account of net retail comparison commitments of 8,285sq.m. in the city centre, a surplus capacity in the city centre of 10,552sq.m. would exist in 2011. In the event of St. David’s 2 being completed by 2008 (which is considered ambitious) there would therefore be a potential over-supply of retail floor space amounting to approximately 1,000sq.m.. By 2011, the applicant predicts that the growth in available expenditure attributable to the city centre will have exceeded the expenditure required to support the growth in floor space, i.e. it appears that there is capacity for the development by 2011. However, the Head of Strategic Planning notes that this over-supply would be less than 0.5% of such retail floor space in the city centre and hence is considered acceptable.

The methodology chosen in the RA does not rely on determining retail commitments in the city centre’s catchment area, but assumes a constant market share of future retail expenditure in the region, (which the submitted assessment says is conservative since the proposed improvements would be likely to increase market share).

However, it is likely that the ‘surplus’ demand of 10,552sq.m. at 2011 may be over-optimistic for the following reasons:

(i) Other committed and future comparison retail developments outside the city centre may eat into the total retail expenditure in the city and region e.g. Ikea alone is estimated to draw up to 1% of expenditure from the city centre. Other known possible schemes within Cardiff include Sports Village, Viscosuisse (Llanishen), Royal Ordinance Factory (Llanishen) and Leckwith Stadium; (ii) The assessment itself reveals that such proposals may have adverse effects on shops on the periphery of the main shopping area. If there were still a surplus in future demand this effect would be unlikely.

The Head of Strategic Planning therefore comments that the quantitative need for the increased floor space in a variety of sized units in the city centre is accepted, subject to the above reservations regarding a possible ‘surplus’ demand at 2011.

With respect to qualitative need, the proposals reflect the views expressed in the latest City Centre Performance Report 2002 and City Centre Strategy 2003-2006, that Cardiff city centre’s retail offer cannot be allowed to stand still. There is a constant need, recognised at all policy levels, to improve its vitality, attractiveness and viability to meet the dynamic needs of the retail

86 market and to counter-act growing competition from both other competing centres and out of centre locations. It is recognised that measures to protect, sustain and enhance the city centre are essential if it is to remain competitive, continue to attract investment and to prosper. It should also be noted that ‘Strategic Planning Guidance for S.E. Wales’ (S E Wales Strategic Planning Group, January 2000) recognises Cardiff city centre’s role at the head of the retail hierarchy of shopping centres and this proposal clearly supports its role. In this respect, the proposals accord in principle with current city centre retail policy.

The Retail Assessment indicates an increasingly unsatisfied demand for larger and better-configured floor space in the city centre and indicates that refurbishment of existing buildings would fail to provide the size, range and quality of units sought. Hence new build is the only viable option, which would also create opportunities for major improvements to the public realm and other regeneration benefits. These arguments are accepted by the Head of Strategic Planning as reflecting a qualitative need to improve and extend Cardiff city centre’s retail offer.

8.8.3 Evaluation of the retail proposals in the context of the emerging Unitary Development Plan In terms of the emerging Unitary Development Plan, the Cardiff UDP (1996- 2016) Outline Proposals for Consultation document states that there is unlikely to be significant quantitative need for new retail floor space before 2016. However, it does accept that "..there will be a qualitative need to improve and, where appropriate, extend retail facilities in recognised town centres. The UDP will continue to favour new and improved retail facilities within the city centre and, at an appropriate scale, within district and local centres."

The emerging UDP identifies St David’s Centre redevelopment as an action area. The principle of action areas is contained in guidance provided by Unitary Development Plans Wales (February 2001). Action areas are where "comprehensive treatment by new development, redevelopment, rehabilitation or improvement by public authorities or private enterprise should start within 10 years of the plan's deposit." The intention is to promote a major retail-led extension to St David’s Centre in order to enhance the quality of the city centre shopping experience; improve the overall environment of the city centre; and enhance Cardiff's position as a regional centre whilst retaining a compact shopping area. The St. David’s 2 proposals therefore appear appropriate to satisfy the intention and aims of the proposed action area.

8.8.4 Impact of St. David’s 2 on the city centre The RA considers that St. David’s 2 will be integrated into the commercial fabric of the city centre by 2011 without harm to Cardiff or other centres.

The only detrimental impacts identified are short-term: loss of retailers from existing prime areas (such as the eastern part of the city centre) relocating into St. David’s 2 and a structural shift in the pattern of usage of parts of the city centre. The RA states that the prime / secondary retail locations are

87 unlikely to suffer a significant decrease in pedestrian flows as St. David’s 2 will attract new retailers to Cardiff which will limit the impact of the scheme on the existing retail structure, the proposals will lead to consolidation of the primary shopping area, and the development is supported by economic growth in the catchment area.

The RA states that St. David’s 2 will not have a significant detrimental impact upon city centre trading in the medium to long term due to: (i) Current unfulfilled retail demand and the attraction of new retailers to the city centre as a result of St. David’s 2. There is therefore substantial capacity for retail development in the city centre, which will limit adverse impacts associated with retailer relocations; (ii) Any impacts being mitigated by spending growth and the benefits of an increase in the critical mass of city centre retailing resulting in positive spin-off impacts associated with increased potential turnover; (iii) Creation of new prime retail frontages and an extended range of shops, which will increase the attractiveness of Cardiff encouraging shoppers; (iv) The available economic capacity and strong commercial performance of the city centre; (v) Improved pedestrian environment and improved linkages to other parts of the city centre as a result of St. David’s 2 which will increase pedestrian flows across the city centre; (vi) The relatively compact nature of the St. David’s 2 development, which will inter-link the prime, retail areas and create a cohesive retail core; (vii) Introduction of a new department store extending the prime retail area.

8.8.5 Impact of St. David’s 2 on competing centres The RA states that a Health Check Assessment of key identified centres based on the principles of TAN4 indicators has been undertaken together with a Qualitative Impact Assessment taking into consideration the nature and function of each centre.

The evaluation concludes: (i) Lower Order and District Centres: No harmful impacts as these contain low order, independent store with little trading overlap with St. David’s 2 development; (ii) Middle Order and Sub-Regional Centres: None currently have any trading weaknesses and it is considered that there is no threat of a material adverse impact on these centres; (iii) Higher Order Regional / Sub-Regional Centres (Newport, Swansea, Bridgend): Likely to be some trade diversion to Cardiff though it is considered that Swansea will continue to function as a high order destination. Newport has a strong and improving retail economy, and should be sufficiently robust to withstand any trade diversion to Cardiff.

The RA concludes that St. David’s 2 will not adversely affect the commercial structure of the city centre and no likely harmful impacts are identified in other competing centres.

88 8.8.6 Cardiff County Council’s comments on the impact of St. David’s 2 upon the city centre and competing centres The Head of Strategic Planning states that new retail floor space should only be allowed where it does not cause or contribute unacceptable harm to the vitality and viability of existing or planned centres, or threaten strategies aimed at sustaining and enhancing them.

The RA highlights two risks for the core PSA: (i) Loss of retail in other streets due to relocation; and (ii) Switch in pedestrian flows.

In terms of impact on secondary and tertiary areas, the RA concludes that the arcades will continue to have a specialist role and that a number of existing secondary areas are likely to ‘evolve and diversify further’ although not fundamentally altering the frontages which will continue to co-exist with primary shopping areas.

With regard to competing centres: (i) St David’s 2 will confirm Cardiff city centre’s role as the principal retail centre in South Wales and will generate spin-off benefits; (ii) Competing centres will continue to trade successfully due to forecast levels of expenditure growth in the region; (iii) Smaller centres, e.g. Caerphilly, Barry, Pontypridd and Cwmbran, will still capture a proportion of the growth in spending resulting from population growth and per capita expenditure; (iv) Out-of-centre retail developments, e.g. Culverhouse Cross, which are not protected by planning guidance (i.e. not part of the retail hierarchy in terms of sequential test), will have increased competition; (v) Low Order and District Centres will not experience adverse impacts due to limited trading overlap with St David’s 2; (vi) Middle Order and Sub-Regional Centres will have some trade diversion but there is no threat of adverse impact; (vii) Higher Order Regional/Sub-Regional Centres will experience some trade diversion. Swansea will still be supported by a strong and improving retail economy and it is considered that the vitality and viability of Newport is unlikely to be adversely affected by the proposals.

The implications of the development not taking place are assessed as: (i) An increase in the relative retail performance of competing centres, e.g. Newport, Swansea and Bristol, which are benefiting, or are to benefit, from major retail expansion; (ii) Progressive erosion of Cardiff city centre’s role within the retail hierarchy; (iii) Progressive decline as a regional retail destination.

The agents conclude that the St. David’s 2 expansion will support and improve Cardiff City Centre’s attractiveness and offer further spin-off retail floor space development in other parts of the city centre. There would be no

89 serious or prolonged adverse impact on existing City Centre shops, market share would be maintained, pressure for out of centre retailing growth would be curtailed, and improved facilities and services would be provided for residents and visitors. Furthermore there would be no significant adverse impacts on the smaller town centres in Cardiff’s catchment area.

The Head of Strategic Planning states that the above analysis and reasoning in respect of potential impacts are accepted.

The Head of Strategic Planning comments that whilst the Environmental Statement submitted with the application adequately deals with retail impact, post development, on centres protected by the development plan and on other centres outside Cardiff, there is a gap in the impact analysis regarding impact on the vitality, attractiveness and viability of the city centre shopping area during construction. Although there is a phasing programme for the construction, it would appear that most existing shop units (around 50) are to be redeveloped all within one phase. There is no indication as to what will happen to the occupiers of those shops in between the present units being demolished and new units being erected. It is assumed that some may seek other temporary accommodation within the city centre.

The Head of Strategic Planning also expresses concern in respect of a possible temporary deficit in car parking provision during construction of St. David’s 2, which could impact adversely on the attractiveness of the city centre.

8.8.7 Adoption of the sequential approach to site selection The Head of Strategic Planning notes that national planning policy guidance states that if a need can be demonstrated for additional retail facilities they should, wherever possible, be located in or adjacent to existing shopping centres, following the sequential approach, and should only be allowed out-of- centre where no such sites are available. Since the Principal Shopping Area is at the top of the regional hierarchy, as confirmed in ‘Strategic Planning Guidance for S.E. Wales’, the proposals that fall within or adjoin its boundary do satisfy the sequential test. As the majority of the St. David’s 2 retail proposals do fall within or adjoin the Principal Shopping Area, the sequential approach to site selection has been satisfied.

8.8.8 Evaluation of the inclusion of retailing on the Adam Street site In respect of the small element of retail floor space proposed at Adam Street, (1,950 sq.m. or 3.1% of total retail / catering proposed and which may include a pub) on a site outside the existing city centre shopping area, the proposals are to be considered in relation to Policy 50 (Retail Development) of the Local Plan. This policy guidance indicates that proposals for retail development outside existing centres will only be permitted subject to satisfying a number of criteria. The proposed retail element at Adam Street is intended to primarily cater for local need, most notably the prospective residential occupiers of the site, and is limited to frontage development. There are no other nearby facilities, which could perform this function, and none in any

90 nearby district centre that would compete directly for the newly established market associated with the housing development.

The Head of Strategic Planning states that, given the small scale of the proposed retailing, its local focus, and the new population, it would therefore be difficult to sustain an objection to this part of the proposal based on lack of need, sequential test issues or competition with other centres. However, to ensure that the retail floor space proposed at this location remains local in character it is recommended that a condition be attached to any permission restricting any individual retail units to be provided do not exceed 500sq.m. gross floor space.

8.8.9 Head of Strategic Planning’s response to the comments of ‘Planning Perspectives’ planning consultants (Refer to para. 7.11 above) The amended Retail Assessment (Appendix 8 of the Environmental Statement) appears to satisfy the requirements for impact assessments (TAN 4) as it analyses the likely impacts on trade and economic health of the surrounding centres and concludes that there is no significant threat of adverse impact to those centres. This contradicts the argument put forward by ‘Planning Perspectives’, on behalf of Scottish Widows Investment Partnership, which questions the credibility of the Assessment’s conclusions because the impact assessment on those centres was qualitative rather than quantitative. However, the terms ‘qualitative’ or ‘quantitative’ are not specifically mentioned in TAN 4 in relation to impact as suggested by ‘Planning Perspectives’, but the provision of evidence of likely economic and other impact on other retail locations is mentioned, and the retail assessment does provide such evidence. Given that the majority of the planning application is not a departure from the development plan, and that the small part which is acceptable in planning policy terms, there is no land use planning policy objection.

8.8.10 Conclusions The full and final implications of a development of this size, and with this significant a catchment area, are difficult to exactly quantify but the conclusions give a degree of support that there is capacity, need and demand for the proposed floor space. The development is almost entirely within the current Principal Shopping Area of the County’s primary shopping centre and therefore accords with the fundamental principles of retail policy. The Head of Strategic Planning considers that the development will contribute to Cardiff’s ambitions to become a European capital and to its aim of retaining its position at the head of the regional hierarchy. There are therefore no policy objections to the retail element of the proposal.

The Head of Strategic Planning concludes that in view of his analysis above there are considered to be no strong grounds for refusing the application on the basis of retail policy, however, the applicant should be requested to: (i) Clarify and/or review the phasing programme for the demolition/construction of car parks to ensure that there will not be an

91 unacceptable adverse impact, during construction, on the city centre’s attractiveness; (ii) Clarify what may happen to current occupiers whilst redevelopment takes place; (iii) A condition should be imposed on any planning permission to limit the size of any individual retail shop units at the Adam Street location to not more than 500sq.m. gross floor space to ensure that such units remain local in character.

8.8.11 Recommended Conditions Condition 13 (Maximum floor space restrictions) Condition 21 (Comprehensive phasing plan) Condition 25 (Restriction on the demolition of buildings) Condition 35 (Restriction on the demolition of car parks)

8.9 Office Floor Space Evaluation

St. David’s 2 identifies the possibility of office floor space provision up to 57,250 sq.m. which could be accommodated on the upper floors of the main city centre development blocks fronting The Hayes, within the proposed landmark building at the southern end of The Hayes, within the proposed building adjacent to Central Library, and on the Adam Street development site. The precise level of office floor space will depend upon market demand as the proposals are progressed.

The inclusion of office floor space within the St. David’s 2 development is to be evaluated in relation to Policy 35 (City Centre Principal Business Area) of the adopted Local Plan and the City Centre Strategy.

8.9.1 Acceptability of the proposed office floor space Policy 35 favours office development within the City Centre PBA furthermore the City Centre Strategy similarly promotes the city centre as a major office provider. Given that the proposed development is wholly located within the PBA and that the city centre is considered to be the most favourable location in terms of any sequential approach to site selection, there are no land use planning policy objections to the office element of the proposed scheme.

8.9.2 Acceptability of the loss of existing office floor space within the development site The Head of Strategic Planning identifies that Policy 36 (Alternative use of business, industrial and warehousing land) of the adopted Local Plan seeks to protect existing business, industrial and warehousing land from inappropriate changes of use. Whilst accepting that the proposed development would result in the loss of around 11,350sq.m. of existing office floor space the Head of Strategic Planning considers that it would be difficult to sustain a planning policy objection to the proposal given that the development contains a significant office element, potentially in excess of the displaced floor space.

8.9.3 Conclusions

92 The Head of Strategic Planning has no land use planning policy objection to the principle of the proposed office developments within the City Centre Principal Business Area.

8.10 Residential Development Proposals

St. David’s 2 identifies a range of between 80-450 units could be accommodated within the main city centre St. David’s 2 development. The areas of potential residential development are identified on the upper floors of the main city centre development blocks fronting The Hayes, a new residential development block of up to seven storeys (with ground floor library usage) situated adjacent to the Central Library, adjacent to the open market, and within the proposed landmark building at the end of The Hayes. A further area of potential residential development is identified on the Adam Street site (up to 300 units). It is anticipated that any residential development will be phased.

The proposals will include 20% affordable housing provision (a mix of 10-15% registered social landlord provision and 5-10% low cost market housing) if Welsh Assembly grant funding is available, and 12% affordable housing if grant aid is not available.

8.10.1 Acceptability of the Principle of Residential Development within St. David’s 2 The Head of Strategic Planning states that the principle of residential accommodation within the city centre and on the Adam Street site is to be evaluated in relation to Policy ENV2 of the Structure Plan which states that the regeneration of derelict urban land for appropriate employment, retail, residential, tourism, leisure and nature conservation uses, will be favoured subject to consistency with other development plan policies. The City Centre Strategy and national planning guidance both seek the redevelopment of vacant and derelict sites and the use of brownfield sites for housing to help meet citywide housing needs, relieve pressure for development in the countryside and help promote urban regeneration. The City Centre Strategy also supports the provision of residential accommodation within the city centre due to its beneficial contribution to the vitality and nighttime environment of the city centre. The Head of Strategic Planning notes that the central location of the areas identified for residential use will be served by good transport links and will be situated close to a major food store and other amenities, which would be used by the future residential occupiers.

In respect of the acceptability of residential development within the Adam Street site it is noted that planning permission was granted in October 2002 for a 16 storey residential development of 164 units (02/510/C) on the adjacent Pellett Street site, this permission has not been implemented to date.

It is considered that the recent planning permission granted for the adjoining Pellett Street site and the regeneration likely from the reuse of this site for a purpose including housing, will help meet city-wide housing needs and relieve pressure on greenfield site. The principle of the use of the Adam Street site for residential development is therefore considered acceptable by the Head of

93 Strategic Planning.

8.10.2 Proposed Residential Development Locations The design of any residential development at the Adam Street site will need to mitigate against noise and vibration from the adjacent railway line to the south of the site. Satisfactory amenity space for future residents will also need to be provided within the site. The design of the proposed private roof gardens associated with any residential development will also need careful consideration to ensure that these areas are usable as amenity space. The design of the site will also need to consider permeability for pedestrians using the railway footbridge.

It is noted that the potential new residential development adjacent to the Central Library could be sited over the existing vehicle servicing access ramp to the St. David’s Centre. Reserved matters applications for residential development at this location will need to give careful consideration to ensuring that the use of the servicing ramp by goods vehicles to the St. David’s Centre and, in particular, St. David’s Hall (which has servicing vehicles using the ramp late at night and early in the morning) does not result in a loss of amenity to the future residential occupiers. Consideration may need to be given to the St. David’s Centre servicing hours.

In respect of any proposed residential accommodation within the landmark building to the south of The Hayes, careful consideration will need to be given as to whether any on-site parking provision will be incorporated within the design of the development, as well as amenity space, and refuse storage. Furthermore, the effect upon residential amenity of any ground floor uses which may include cafes, restaurants or Class A3 uses will need to be evaluated.

The design and layout of any residential development facing on to the open market will need to give consideration to ensuring acceptable levels of amenity for the future occupiers due to its proximity to servicing facilities in relation to St. David’s 1.

Residential development fronting The Hayes on the upper floors of the main city centre development blocks is supported and will contribute to natural surveillance and the vitality of The Hayes area following its pedestrianisation.

8.10.3 Affordable Housing Provision The Head of Strategic Planning cites national planning guidance, which notes that a community’s need for affordable housing is a material planning consideration. Policy H5 of the Structure Plan requires priority to be given to facilitating the provision of affordable housing in appropriate locations. Policy 24 (Affordable and Special Needs Housing) of the Local Plan states that provision for an element of affordable housing and special needs groups will be sought on all new housing sites of more than 50 dwellings where there is evidence of need which can be satisfactorily met on the site and where site conditions allow. The precise scale will vary from case to case.

94 Policy 25 (Affordable Housing within the Built-up Area) of the Local Plan favours affordable housing at redevelopment sites within the built-up area of the city where there is access to public transport, social and community facilities and opportunities for local employment.

The developer identifies up to 20% affordable housing, or 12% if Welsh Assembly grant assistance is not available, these figures are a result of discussions with the Head of Neighbourhood Renewal (Housing Strategy) and is considered acceptable to satisfy Policy 24 of the Local Plan.

8.10.4 Open Space Provision in Relation to Residential Development Policy 31 (Residential Open Space Requirement) of the Local Plan seeks the provision of a satisfactory level and standard of open space in relation to all new housing developments; in assessing this requirement regard is to be had to the type and density of the development, and the availability and adequacy of existing recreational open space within the locality. The supporting text to this policy states that, in some circumstances, the particular characteristics of the site or of the proposed housing development may make a variation from the normal provision appropriate, and a more appropriate level of on-site amenity provision will be sought in place of the normal level of recreational space which is considered appropriate to family housing schemes.

The St. David’s Partnership has calculated the proposed extent of public realm created within the St. David’s 2 development to total almost 6 hectares (with approximately 0.76 hectares of private open space created). The Partnership consider that this should be acceptable as open space provision in relation to the proposed residential element of the scheme and to meet the requirements of Policy 31 of the Local Plan.

The figure of 6 hectares for public open space provision includes the following areas: the pedestrianisation of The Hayes, the re-paving of St. John Street / Working Street, and new open spaces created by Hayes Place, Hill’s Street, Library Place, Open Market, Arena Plaza, Cathedral Square and Adam Street. Included within the 6 hectares are improvements to St. John the Baptist churchyard, it is noted that this area is outside the red line boundary of the application site and would therefore represent additional public realm works beyond the application site (for which separate planning and listed building consent applications would be submitted) (refer to para.8.18 below which sets out the proposals relating to the churchyard).

The private realm spaces relate to areas around Adam Street, to the rear of Jury’s hotel, and small amenity areas within the main city centre development site, e.g. balcony areas within the city centre development area and private communal gardens in respect of the Adam Street site.

The Head of Strategic Planning comments that, given the location of the proposed development in the heart of the city centre, the creation of a series of new public squares, along with major environmental and public realm enhancements both within and outside the development, it would be difficult to sustain a planning policy objection to the proposed development in terms of

95 its provision of public open space in this instance. He therefore has no objection, in principle, to the public realm improvements being considered as meeting the open space requirements of Policy 31.

Whilst the Head of Parks and Bereavement (Parks) recognises that a flexible approach to open space provision within the city centre is appropriate (refer to para. 5.8 above) he considers that a financial contribution towards off-site open space improvements, should be sought from the developer above a certain threshold of units as he queries whether all the proposed public realm improvements contribute towards new open space provision, e.g. repaving of existing pedestrianised areas, opening up of St. John the Baptist churchyard.

With regard to the Head of Parks and Bereavement’s comments, it is considered that, given the extent of the public realm areas, the quality of such spaces, and the inclusion of improvement works to St. John the Baptist churchyard will address, in principle, some of the requirements of the ‘Open Space’ Supplementary Planning Guidance and Policy 31 of the Local Plan.

It is therefore considered that the proposed public realm improvements are acceptable as on-site open space contributions in relation to any residential development proposals and will also enhance the public realm around the development, which will directly benefit any future residential occupiers within the St. David’s 2 development itself.

8.10.5 Conclusions The Head of Strategic Planning states that, subject to favourable negotiations in relation to open space, affordable housing, and the consideration of residential amenity, there are no objections to the principle of the proposed residential development from a land use policy perspective.

The proposed improvement to existing pedestrianised areas, creation of new pedestrianised streets and open spaces within the development, and works to St. John the Baptist churchyard are considered acceptable in respect of open space provision in relation to any new residential development proposals within the application site under the terms of Policy 31 of the Local Plan and ‘Open Space’ SPG.

8.10.6 Section 106 Agreement to be sought in relation to affordable housing provision The Head of Strategic Planning identifies that outline applications for housing development requiring affordable housing provision should only be approved subject to appropriate conditions and / or a planning obligation, in order to ensure that the final development can only be implemented with adequate arrangements for affordable housing provision. Any increases in dwelling numbers on associated (amendments or reserved matters) applications will generate a need for additional affordable housing contributions. Separate full applications will be subject to fresh conditions and would require a separate obligation, where necessary.

96 The Section 106 Agreement identifies the provision of 20% affordable housing (or 12% if social housing grant is not available) including 10/15% Registered Social Landlord 5/10% low cost market housing.

(Refer to Section 9 of the Report (Section 106 Agreement)).

8.11 Hotel Development

The proposals identify that opportunities exist within the development for hotel provision (up to 17,000 sq.m.). Areas are identified on the upper floors of the main development site around Hill’s Street, within the landmark building at the southern end of The Hayes, and on the Adam Street site.

8.11.1 Acceptability of hotel development within the St. David’s 2 site Policy 46 (Hotel Development) of the Local Plan favours proposals for hotel development within the Principal Business Area of the city centre.

8.11.2 Conclusions The Head of Strategic Planning has no land use planning policy objection to the principle of hotel development within the City Centre Principal Business Area.

8.12 Urban Design / Public Realm Assessment

The amended Environmental Statement (ES) is supported by an Urban Design and Visual Impact Assessment of St. David’s 2 together with a detailed appendix of the proposed urban design and public realm elements of the development.

The Urban Design and Master planning consultants appointed by St. David’s Partnership have undertaken an evaluation of the context of St. David’s 2 within the city centre, this evaluates the historic background of the city, and carries out a general urban character analysis of the city centre which considers the city centre’s arcades, Conservation Areas, Listed Buildings, land uses, existing open and pedestrianised spaces, landmark buildings, pedestrian flows and desire lines, public transport and cycle routes, and the strengths and weaknesses of its streets and spaces. The analysis also looks at the street furniture of the city centre, trees and landscaping, surface finishes, and signage.

8.12.1 Urban Design The Urban Design Assessment states that St. David’s 2 aims to create an integrated, lively mixed-use development achieved through: (i) Additional retail development, landmark department store, offices, public facilities, hotel provision, residential development, cafes and restaurants, and parking provision; (ii) Mixed use street-level activities; (iii) Extension of pedestrian priority in the city centre through new pedestrian facilities, new squares and pedestrianised streets linked together;

97 (iv) High quality buildings; (v) Enhanced public transport and cycling provision.

The proposals seek to realise the above aims through the creation of a number of ‘city blocks’ which respond individually to their location, create and enhance views, aid pedestrian permeability, frame new / existing streets and squares and public spaces, create a sense of identity to each part of the development, and break down the massing of the development to create variety and a varied skyline and to respond to the scale of the existing street scene. The variety of the blocks is also to be emphasised by the creation of larger scale landmark buildings at key locations.

The urban design conceptual analysis highlights the following building design, scale and massing principles: (i) The covered 18-hour east-west Bridge Street Arcade will continue the axis of the Royal Arcade and have a narrow and tall character, whilst the north-south Grand Arcade will be a wider covered arcade; (ii) Refurbishment of Town Wall to create a double height space linked by a high level pedestrian walkway across Hill’s Street (‘Market Square’) to the new development with existing units reconfigured; (iii) The proposed department store building is also identified as a key landmark building to the south; (iv) Retail units along Hill’s Street, Tredegar Street and The Hayes are identified as two storeys; (v) The introduction of ground floor retail units and single aspect housing will be sought to address the design and bulk of car parks; (vi) Buildings fronting The Hayes will be of an appropriate scale, which addresses the width of the street with the massing reduced by dividing the development along this frontage into blocks of differing height; (vii) A landmark building will be created at the southern end of The Hayes; (viii) New building lines will be established along The Hayes, Tredegar Street, Bridge Street and Adam Street to define the streets and spaces; (ix) The proposed new residential building adjacent to Central Library will partly screen the access to the St. David’s 1 service ramp from the surrounding area with a ‘green screen wall’ proposed to screen the remainder of the ramp.

High standards of building design together with sustainable, energy efficient and a distinctive palette of materials will be promoted.

The urban design of the development will also address issues of shelter and microclimate and natural surveillance of public spaces and streets through the design of residential units.

The Urban Design Assessment evaluates the proposed urban design principles of the development and states the following:

(i) The proposed city blocks will improve the existing built forms and pattern of development of the area, and will introduce an improved architecture and identity to the city centre;

98 (ii) The scale, massing and height of the development will respond to its context and reinforce the existing urban fabric with larger scale building forms at key locations; (iii) The scale of the Adam Street development will respect the massing of surrounding buildings and will regenerate this entrance point into the city centre; (iv) The proposals will result in a complementary group of high quality buildings that contribute to the wider patterns of urban character and reinforce local development patterns; (v) The development will promote common building lines; (vi) Lively uses at ground floor and careful siting of entrances will be promoted to create activity and interest to pedestrians; (vii) The design of buildings will maximise active shopping frontages; (viii) The design of buildings will be flexible to accommodate a range of uses.

8.12.2 Public Realm A number of key new / improved public spaces / squares will be created:

- Hayes Place - a major new civic space at the southern end of The Hayes; - Market Square / Hill’s Street - incorporating cafes and stalls along Hill’s Street; - Open Market - refurbishment of the open market and creation of an enclosed pedestrianised street with screen walling introduced to the existing service ramp and rear areas of properties along Charles Street; - Library Place / Square - improving the setting of Central Library; - Pellett Street / Adam Street - pedestrianisation achieved by the extinguishment of the road and tree planting; - Victoria Square - improvements to the pedestrian environment of the Hayes Island to Duke Street area; - Cathedral Square - improving of the setting of St. David’s Cathedral Church; - Grand Arcade Square – creating a new space within the development.

These spaces will be linked by a network of pedestrian priority routes and new pedestrian crossings at key traffic junctions to aid permeability, vitality and integration with the surrounding city centre. The most notable pedestrian improvements being the pedestrianisation of The Hayes, the creation of three defined east-west links across the site (Market Square, Bridge Street Arcade and Tredegar Street), and the north-south Grand Arcade. The network of 18- hour and 24-hour routes aims to reinforce the historic grid pattern of streets.

The Urban Design Assessment identifies that the pedestrianised north south route along The Hayes / Trinity Street / Working Street / St. John Street will be uncluttered and will promote browsing of shop frontages and ease of pedestrian movement. The Assessment states that this organisation of the public realm will enhance the pedestrian environment of the city centre.

A co-ordinated palette of high quality paving materials of a distinct ‘Cardiff’ character, including the use of natural materials in key areas, will be promoted

99 in the public realm, together with co-ordinated street furniture (lighting, litter bins, cycle stands, signage). Paving, street furniture and co-ordinated signage and wayfinding strategies will be undertaken.

The Urban Design Assessment identifies that 108 trees currently exist within the development area, of which 87 trees will be removed, though 231 replacement trees will be planted as semi-mature specimens within the public streets and spaces. The maintenance of these trees will form part of an overall management plan for the site. It is therefore considered that the new landscape character will have a beneficial impact.

The Urban Design Assessment concludes that the development will have a beneficial impact due to: (i) The pedestrianisation of The Hayes enhancing the setting of the historic buildings along the western side of the street; (ii) The improvements to the landscaping of the pedestrianised areas and open spaces; (iii) Public and private spaces will be clearly defined; (iv) The public realm of the development will create a safe, attractive and uncluttered environment, which will cater for all people; (v) Safe direct routes through the public realm will be sought with cycle routes separately defined from pedestrian areas and vehicles restricted to the perimeter; (vi) Pedestrian routes will link to public transport facilities, car parks and taxi ranks to reflect pedestrian desire lines; (vii) Local views will be enhanced and new views / vistas created.

The Visual Impact Assessment evaluates a number of key views within and surrounding the development, in most cases there is a moderate to large beneficial impact upon views, this visual impact lessens further away from the development.

8.12.3 Cardiff County Council’s comments on the urban design and public realm proposals for St. David’s 2 The extension of the red line of the application site into areas beyond the St. David’s 2 development itself is supported by the Head of Strategic Planning and will assist in ensuring that the development is fully integrated into the existing fabric of the city centre.

It is considered that the urban design and public realm documents, including the Masterplan Principles, accord with current best practice, policies and principles having regard to the Cardiff context and application site. In this respect particular regard has been given to key themes and objectives of character, continuity and enclosure, quality of public realm, ease of movement, legibility, adaptability and diversity.

The proposed public and private spaces would allow for a clear and legible form of development, which is in keeping with Cardiff’s compact urban city centre form. With careful design of the spaces and buildings that surround them, the proposed public realm spaces have a potential to enliven and

100 enhance the character of the centre. However, areas such as ‘Arena Square’, ‘Open Market’ and ‘Library Place’ on the eastern side of the site will require particular consideration on account of the individual constraints and demands that arise from neighbouring uses, forms and access arrangements if these spaces are to be safe and active.

The overall street pattern of the scheme envisaged in the Masterplan is in keeping with city centre grain, and reflects the established north-south and east-west axis of the existing network. In order for this pattern to be considered part of the city centre network, it is critical that maximum penetration and access is secured. In this respect the 24-hour access of Hill’s Street and Tredegar Street and 18-hour access through the proposed arcade system is to be welcomed. The streets will be given over to pedestrian priority, but designed and operated in such a way as to facilitate convenient servicing arrangements as in Queen Street. The enhanced nature of over 5 hectares of public realm will require considerable maintenance commitment and will be addressed with the Section 106 legal agreement along with the access arrangements.

The scale, form, and design of the development area are reserved matters although indications of scale are provided to express the intended floor spaces within the application. These are considered satisfactory although particular consideration will be required to ensure the scale, design, and form of buildings along The Hayes frontage is appropriate, having regard to the existing scale of buildings on the western side of the street. Other key sites such as the ‘landmark building’ at the southern end of The Hayes, the Adam Street development, the buildings adjacent to the Central Library, and the department store raise specific challenges to secure an appropriate form of design and development which sits within the surrounding context. In this respect, specific conditions are proposed to address these issues.

It is also considered that in the design of the proposed arcade system, that regard is to be had to the distinctiveness of Cardiff’s existing arcades. Whilst there is no desire to see a ‘copying’ of the existing arcades, it is important that the design should recognise the particular characteristics of Cardiff’s arcades as expressed in their proportions, materials, natural lighting, and shop frontages.

The commitment to a public art strategy is welcomed and this would need to have regard to the Council’s wider aspirations for public art in its formulation. Provision of future maintenance would also need to be secured through an appropriate condition and legal agreement

The comments of the Design Commission for Wales (refer to para. 6.2 above) with regard to the amended plans need to be considered in the context that key matters such as detailed design, sustainability, public art, works to the existing St. David’s Centre development, and 24-hour access are either covered by condition, legal agreement, or would be dealt with at the detailed stage. In this respect their observations are endorsed. The comments pertaining to the weakness of the eastern side of the site are noted, though

101 they fail to recognise, and have regard to, the need to provide access and service arrangements to the development and that the scope of the application site is ultimately constrained. Their comments also fails to recognise the extension to the proposals which have already been secured in areas like St. John Street, Adam Street and the Marriott. In this respect the comments in some matters are not considered to represent a balanced or realistic appraisal of the scheme.

In overall terms, the urban design and public realm submissions and assessments are considered satisfactory and allow the site to be developed in a form which enhances the fabric of the centre in a legible and sensitive manner. Detailed conditions, clauses and recommendations are however required in order to ensure that the principles and concepts are carried through into the detail of the scheme.

8.12.4 Conclusions The general urban design principles and creation of distinctive ‘city blocks’ which have their own identity though show an understanding of their context and setting is welcomed by this Council.

The proposed creation of new spaces, pedestrianised routes, and pedestrian priority measures is supported by this Council, though careful consideration will need to be given to the detailed design of the public spaces and the inclusion of public art at key locations together with a signage strategy, which integrates into the adjacent areas of the city centre.

8.12.5 Section 106 Contributions to be sought in relation to the proposed urban design and public realm proposals It is recommended that the Section 106 Agreement secures 18-hour pedestrian access along the proposed arcades in line with the submitted plans together with 24-hour pedestrian access with regard to Hill’s Street and Tredegar Street. The Section 106 also seeks to secure maintenance of the landscaped highway and the delivery of improvements to St. John the Baptist churchyard.

(Refer to Section 9 of this Report (Section 106 Agreement)).

8.12.6 Recommended Conditions Condition 2 (Schedule of external materials and finishes) Condition 6 (Details of disabled persons facilities within buildings) Condition 16 (Restriction on roller shutters or grilles to ground floor windows) Condition 17 (Shop front and shop sign design guide) Condition 18 (Detailed tree survey) Condition 19 (Landscaping proposals) Condition 20 (Comprehensive public realm treatment ) Condition 22 (Public realm improvements to Working Street, Trinity Street and St. John Street) Condition 23 (Public art strategy) Condition 26 (Urban design principles) Condition 27 (Sustainability Strategy)

102 Condition 28 (Central Library improvements) Condition 31 (Improvements to Hill’s Street and Cathedral Walk frontages) Condition 32 (Details of plant / equipment / telecommunications equipment) Condition 39 (Details of landmark building / Marriott hotel public realm) Condition 40 (Adam Street public realm) Condition 48 (Maintaining a vista through Hayes Bridge Road) Condition 49 (Details of building to east of Central Library) Condition 50 (Scale and massing of City Block 2)

Recommendation 2 (Separate architectural design commissions for the detailed design of parts of the development)

8.13 Noise and Vibration / Air Quality / Contaminated Land / Sunlight and Daylight Issues

8.13.1 Noise Generation The amended Environmental Statement (ES) identifies that overall, St. David’s 2 will result in a change in ambient noise levels within the city centre and the immediate vicinity, particularly from road traffic.

Noise-sensitive developments around the site include residential (proposed residential development at Pellett Street; Landmark Place, Churchill Way; The Aspect, Newport Road; Altolusso, Bute Terrace; Westgate Street flats; residential flats above public houses), offices and commercial areas adjacent to the site (e.g. Charles Street), and Central Library.

During demolition and construction of each phase a detailed noise prediction assessment will be undertaken to identify likely noise to noise-sensitive buildings together with a solid enclosure to the perimeter of the works area. If excessive noise levels are predicted alternative piling methods, working hour’s restrictions, and erection of a high noise barrier will be investigated.

Noise from fixed plant, e.g. fume extraction systems, can be addressed during the design stage of the development and noise reduction measures can be incorporated.

The development will result in significant road traffic flow changes and it is considered that there will be an increase in the number of residents affected by road traffic noise as a consequence of St. David’s 2, particularly around Station Terrace and Bute Terrace. However, the ES considers that overall, the noise impact arising from the change in local road traffic use will not be significant.

In respect of the proposed residential development within St. David’s 2 acoustic glazing and ventilation to worst-case affected frontages can be incorporated so that road traffic noise is unlikely to adversely affect noise levels within habitable rooms.

103 8.13.2 Comments of the Head of Environmental and Public Protection in respect of noise issues It is recognised that the scale of development may cause significant detriment to local businesses during the construction period and therefore a scheme of mitigation measures for each phase of the development is recommended prior to their commencement, such measures should include noise and dust suppression.

Residential accommodation within the city centre development area may be exposed to road traffic noise, noise from plant and fume extraction systems, and noise generated by any A3 uses. Careful consideration must therefore be given to the siting of residential accommodation within the development and in particular in relation to likely disturbance from servicing (deliveries and refuse collection), the siting of loading bays, service access roads, and the service access ramp to the existing St. David’s Centre (this ramp also partly services St. David’s Hall). Some of these residential amenity concerns can be addressed by limiting servicing hours, restricting the hours of operation of A3 uses, and requiring sound insulation or noise mitigation measures and appropriate conditions on these issues are recommended.

In respect of the existing servicing ramp to the St. David’s Centre and St. David’s Hall, it is noted that potential residential development is identified over the access to this ramp. This ramp is used late at night / early morning by St. David’s Hall in relation to events / concerts and therefore the acceptability of any residential development over the ramp must be considered or measures should be considered to minimise any disruption to future residents of this part of the development.

With regard to railway noise relating to any residential development of the Adam Street site, a condition is recommended in respect of restricting the exposure of habitable rooms to external railway noise together with the need for sound insulation and ventilation measures to habitable rooms. Furthermore, consideration should be given to the design of private gardens to limit noise levels where located close to the railway line.

8.13.3 Vibration During construction, piling works may cause vibration, this can be addressed by various low-vibration alternatives to piling, vibration monitoring for piling works, and alternative methods of locating foundations. Such methods will not result in unacceptable levels of vibration

The ES states that it is unlikely that the passage of heavy goods vehicles on local roads or mobile construction plant on site during the demolition and construction period will give rise to structural damage.

8.13.4 Comments of the Head of Environmental and Public Protection in respect of vibration issues Appropriate conditions are advised to mitigate against any adverse effects from vibration with regard to the proximity of any residential development at

104 the Adam Street site and associated with piling activities during the construction period of the development.

8.13.5 Air Quality Air Quality is evaluated with regard to the Air Quality Objectives specified in the Air Quality (Wales) Regulation 2000. Under Part IV of the Environment Act 1995 this Council has undertaken a review and assessment of air quality in Cardiff and designated an Air Quality Management Area for St. Mary Street / High Street in 2002 due to the level of NO2 from road traffic emissions (an Action Plan for this area has not been developed at this stage).

During the construction period, dust emissions being transferred off site are likely from the stockpiling and processing of materials, unloading / loading / movement of materials, the excavation of potentially dusty materials, e.g. soil, and regular movement of vehicles and equipment on unsurfaced areas. Dust emissions are particularly likely during excavation / construction of the basement area in the southern part of the site. There is therefore a high potential to cause significant impact through dust emissions. The ES therefore identifies mitigation measures including locating storage compounds / stockpiles / crushing and screening equipment away from the boundaries, water sprays to damp down materials, sheeting of stockpiles and lorries, perimeter fencing, and minimising material handling.

In respect of traffic emissions, St. David’s 2 is predicted to result in an increase in NO2 concentrations at a significant number of residential properties, e.g. around the Old Brewery development on St. Mary Street and around Customhouse Street / Bute Terrace, however, the increase in annual mean NO2 concentrations is considered to be minor (except around the Golden Cross P.H. on Customhouse Street) and the development is predicted not to have a significant impact upon the St. Mary Street / High Street AQMA or overall air quality experienced at residential properties in the city centre. No mitigation of traffic emissions is therefore considered to be required.

The locations identified for potential residential accommodation within the development are considered to be acceptable in air quality terms.

The ES concludes: - Background air quality in the city centre as a result of St. David’s 2 will be well below the air quality objectives; - The St. Mary Street / High Street AQMA diffusion tubes may be over- reading by around 50% giving inaccurate information; - Dust emissions from St. David’s 2 during construction have a high potential impact though mitigation measures will be used to minimise this impact; - Predicted PM10 concentrations (fine particles) along all roads and at all residential properties exceed the recent provisional objective set by the Air Quality Regulations, however, the existing background levels already exceed this objective; - Some residential properties within the city centre and along roads assessed will experience some worsening of pollution, however the change is considered to be minor to negligible.

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8.13.6 Comments of the Head of Environmental and Public Protection in respect of air quality issues The Air Quality Assessment is agreed with as the impact on local air quality of the development upon completion is unlikely to be of great detrimental significance.

Due to the designation of the St. Mary Street / High Street Air Quality Management Area it is advised that no construction site traffic enters this area which already experiences high pollutant levels.

Data referred to in the Environmental Statement in respect of NO2 diffusion tube measurements over-reading by 50% was based on incorrect data therefore the Air Quality Management Area declaration will not be amended in the future as suggested by the Statement’s Air Quality Assessment.

The various commitments to control potential dust emissions at source during the construction period are welcomed.

The Head of Environmental and Public Protection identifies that the greatest number of complaints of nuisance dust arising from construction works is due to vehicle movements on-site. He therefore considers that this aspect is ‘high’ risk rather than ‘moderate’ risk as stated in the Environmental Statement and that this aspect of dust control should be given further consideration.

8.13.7 Contaminated Land Issues Detailed ground investigations to supplement geotechnical information will be undertaken at a later stage, this will also address contaminated land issues and thus treating / removing / containing any contaminated land within the site.

A negligible to slight adverse impact on ground conditions is predicted due to the proposed basement construction and excavation of soils.

8.13.8 Comments of the Head of Environmental and Public Protection in respect of contaminated land issues Appropriate conditions are recommended to address any contaminated land issues.

8.13.9 Daylight and Sunlight It is noted that, at present, surrounding buildings are affected by the existing buildings on the St. David’s 2 site by varying amounts due to the presence of taller and closer buildings and it is considered that the St. David’s 2 development will, in most instances, have a negligible impact upon sunlight to surrounding buildings. However, certain buildings will experience a reduction in sunlight / daylight.

(i) The proposed Adam Street development is likely to have a significant effect upon daylight to surrounding buildings in the winter, particularly BT Enterprise House and the TA Centre. There will be a lesser impact

106 on other surrounding buildings and any impact is limited to summer evenings. It is also considered that the conceptual built form of the Adam Street site may create some self-shading during the year, though generally the development has good potential for daylight; (ii) Sunlight to Jury’s Hotel may be reduced during the winter though it is considered that this will not have a significant adverse affect upon the building; (iii) A reduction in sunlight to the existing St. David’s Centre and 42 The Hayes (King’s Cross P.H.) is also anticipated.

In order to maximise potential for good daylight in relation to the above surroundings buildings it is recommended that consideration is given to the colour and type of materials used on external facades of new buildings, e.g. light colours and semi-reflective materials.

It is noted that the buildings along The Hayes and St. David’s Centre are generally retail outlets and therefore any loss of sun/day light is less critical.

The proposed covered arcades may receive reduced daylight though it is recognised that these are circulation areas and therefore daylight is not as critical.

The development will provide good potential for direct sunlight for the majority of residential units proposed and it is recommended that habitable rooms are orientated to maximise the benefit of direct sun/daylight

In respect of any office development, the likely reduction in sunlight reduces energy consumption and is therefore beneficial, although sunlight in winter is recognised as important.

8.13.10 Cardiff County Council’s comments in respect of daylight / sunlight issues The potential impact of the development upon daylight to certain neighbouring properties is recognised and consideration will be given during subsequent reserved matters applications towards ensuring that the height, massing and design of buildings minimises any loss of sunlight or daylight to buildings within the development site or adjacent to the site.

8.13.11 Recommended Conditions Condition 9 (Gas monitoring scheme) Condition 10 (Measures to identify chemical contaminants) Condition 14 (Detail of fume extraction systems) Condition 24 (Construction management plan) Condition 27 (Sustainability strategy) Condition 32 (Detail of external plant) Condition 38 (Railway noise mitigation) Condition 43 (Road traffic noise mitigation) Condition 44 (Vibration mitigation measures) Condition 45 (Plant noise) Condition 46 (Details of Class A3 uses)

107 Recommendation 4 (Control of noise from demolition and construction activities); Recommendation 5 (Radon-affected area), and Recommendation 8 (Minimise disruption to St. David’s Hall)

8.14 Adam Street Development Site

The Adam Street site, of approximately 1.2 hectares, proposes a mixed use development including small-scale retail and catering units fronting Adam Street (up to 2000 sq.m. floor space), car parking provision with potential on the upper floors for residential development (up to 300 units), office development (up to 27,500 sq.m.), or hotel provision. The creation of rooftop private gardens and ground level public spaces (fronting Adam Street) is also identified.

Vehicular access to the site will be via a new access road within the centre of the site with Pellett Street turned into a pedestrianised street with tree planting which will also link into the existing footbridge across the railway line. This pedestrianised street will lead into a public open space fronting Adam Street. The new access road will serve both the proposed Adam Street development, the proposed multi-storey parking, and any redevelopment proposals for the Pellett Street NCP site. It is noted that Morgan Street will be retained to maintain access to the TA Centre. Associated improvements to the pedestrian environment along Adam Street and Bute Terrace are also proposed in the form of upgrading the pedestrian crossing on Bute Terrace, the introduction of a light-controlled junction on Adam Street in front of the development site, and improving the pavement areas along Adam Street.

1000 temporary parking spaces will be provided during the St. David’s 2 construction period (to partly compensate for the loss of city centre parking provision) with a permanent car park of 800 spaces created (as the new city centre parking is completed), this final parking provision will create 500 satellite public shoppers car parking spaces together with 300 spaces related to the future uses of the Adam Street site. The removal of 200 spaces will enable the creation of rooftop / terraced private garden areas for any future residential / office development.

The concept for the development envisages a 3-4 storey base plinth building, (divided into two blocks by the new access road) fronted by ground floor retail / catering uses with a residential to the upper three floors of the development fronting Adam Street to mask the proposed multi-storey car parking behind and to create an attractive, active edge to the Adam Street frontage. Private roof garden areas will be created on the top of the plinth building. Above is proposed three tall buildings perpendicular to Adam Street with potential for residential / office / hotel use. These three buildings will decrease in height from Pellett Street (potentially 16 storeys) to the TA Centre in order to respect the massing of surrounding buildings. In respect of the height of the tallest building it is noted that planning permission was granted in October 2002 for a 16 storey residential development on the neighbouring Pellett Street NCP site. It is stated that the design, massing and siting of these three buildings will break up the elevations and formality of the development and their orientation

108 will allow maximum sunlight to the proposed raised gardens and new public spaces.

It is intended that the development will regenerate this part of the city fringe area.

8.14.1 Acceptability of the redevelopment of the Adam Street site The Head of Strategic Planning notes that the preferred use of the land stated in the adopted Local Plan is for business, industrial, warehousing and ‘associated’ uses (Policy 33 (2) of the Local Plan) and hence the proposed uses identified for the site (which, as stated above, would include retailing) would represent a departure from the adopted Local Plan.

The City Centre Fringe Area Planning Brief identifies this area’s potential to accommodate offices and a mix of uses and to contribute to the city centre’s public car parking demands.

The proposals for residential / retail / hotel development will result in the loss of an element of allocated business, industrial and warehousing land (as identified on the Proposals Map and within Policy 33 of the Local Plan), however, the Head of Strategic Planning notes that there will still remain a level and availability of vacant warehousing land in the vicinity of the proposed development.

The Head of Strategic Planning also identifies that recent planning applications within the Adam Street area have allowed for the alternative use of warehousing land in the area (planning permission was granted in October 2002 (02/510/C) for residential development on the adjacent Pellett Street site).

Furthermore, the Head of Strategic Planning comments that the City Centre Design Guide SPG states that “development proposals will be expected to contribute to a lively and enjoyable pedestrian environment and opportunities to create mixed-use developments with publicly accessible uses at ground floor level encouraged”. Furthermore, the need for a strong frontage along Adam Street is identified by the City Centre Fringe Area Planning Brief. The amended ‘Masterplan 1’ document has addressed this issue and seeks to achieve a dynamic street frontage on the Adam Street site with the potential inclusion of retail and residential units.

For the above reasons the Head of Strategic Planning considers that it would be difficult to sustain a land use policy objection to the loss of business, industrial and warehousing land in this instance.

In respect of the proposed uses to be accommodated on the site: (i) A restricted amount of convenience goods retailing floor space to serve the local market is considered acceptable in this location and it is considered that this will not adversely affect retail trading within the city centre or nearby district / local centres;

109 (ii) The principle of the acceptability of residential development in this location has been established by the recent planning permission granted for residential development on the adjacent Pellett Street NCP site; (iii) Office development is in accordance with the current allocation of the land for business uses and the site is within the City Centre Principal Business Area; (iv) The site is within the Principal Business Area where proposals for hotel development are favoured.

In respect of the conceptual design, scale and massing of the proposals this Council considers that the development will reflect the scale of the BT Enterprise House building on the opposite side of Adam Street, the recently approved 16 storey Pellett Street residential redevelopment, and buildings along the southern side of Bute Terrace, e.g. ‘The Big Sleep’ hotel and Altolusso residential development. It is also considered that the development will assist in creating a recognisable gateway building into the city centre when approached from the east and will improve the appearance of the site by the introduction of public and private spaces.

8.14.2 Conclusions The proposed loss of business, industrial and warehousing land does not raise a land use planning policy objection.

The amended proposals for this site allow for an improved form and relationship to the street frontage and will provide for on-site public realm / open space with a comprehensive highway layout. In principle, there is no objection to the proposed form and height of the development given its edge of centre location and existence of other tall buildings nearby. The development will result in the pedestrianisation of Pellett Street, which is supported, together with the creation of an improved pedestrian environment for people using the railway footbridge.

It is considered that there is the opportunity on this site to create a gateway development at the eastern entrance to the city centre and this therefore allows scope for the introduction of a key landmark scale of development, which is recognised by the developer’s development concept for this site.

8.14.3 Recommended Conditions Condition 40 (Comprehensive mixed use development of Adam Street).

8.15 Marriott Area

Discussions have taken place during the course of the consideration of the outline planning application with representatives from the Marriott hotel, their planning consultants (Gerald Eve), and the Marriott’s leaseholders/operators (Whitbread Group Plc.) in respect of the St. David Partnership’s proposals for this part of the development site.

It is noted that the originally submitted proposals identified the relocation of the Central Library to the northern part of the Marriott site (currently occupied

110 by a surface car park associated with the hotel). The subsequent amendments to the proposals identify that the Central Library will not be relocated to this site, however, a landmark building of up to five storeys is proposed with potential for ground floor commercial uses with residential / office / hotel use above. This building will terminate views southwards along The Hayes and will frame the proposed ‘Hayes Place’ public open space. A small area of open space is identified to the west of the landmark building, along Mill Lane and in front of the Marriott hotel with opportunities to include artwork at this location in order to enhance the ‘front door’ of the Marriott and views along Mill Lane.

The displaced hotel surface car park will be relocated to the southwestern part of the Marriott site (corner of St. Mary Street / Customhouse Street) with a 100 space two-storey car park identified with access from Mill Lane and egress onto Customhouse Street.

The proposals identify the creation of a bus / taxi route between the northern (front) elevation of the Marriott hotel and the rear of the proposed landmark building. (Potential for new bus stops is currently being explored around the Marriott site). The use of Mill Lane will be restricted to buses and taxis together with coaches and cars to the Marriott hotel. Out-of-hours servicing vehicles will also be permitted along Mill Lane. The proposals also identify an extension to the existing taxi rank provision along Mill Lane.

The public realm proposals identify a set-down area in front of the entrance to the hotel for vehicles to drop-off / collect from the hotel. A coach lay-by is also identified for use by the hotel.

Following discussions with the Marriott hotel it is understood that there are aspirations to improve and extend the hotel’s facilities, most notably in terms of extensions to the existing function rooms / conference / banqueting facilities, extended the leisure club, bar / restaurant extension, and increasing the number of bedrooms. The hotel operator is therefore keen to ensure that the St. David’s 2 proposals do not adversely affect these aspirations and that any redevelopment of part of their site by St. David’s Partnership does not result in a detrimental impact upon the setting of the hotel or its ‘front door’ facing Mill Lane / The Hayes.

8.15.1 Conclusions The principle of the alterations to the highway and public realm around the Marriott hotel is considered acceptable. The introduction of a landmark building at the southern end of The Hayes and in front of the Marriott hotel is also supported in terms of its potential positive contribution to the urban design and public realm of the St. David’s 2 development. However, further consideration needs to be given to the inter-relationship of the new access road, proposed landmark building, and any additional public transport facilities with respect to the operational requirements and aspirations of the Marriott hotel to ensure that the hotel is not adversely affected by the development.

8.15.2 Recommended Conditions

111 Condition 39 (Details of Landmark building, hotel car park and public realm around the Marriott) Condition 41 (Details of any highway alterations around the Marriott hotel)

8.16 Cardiff Central Library

The originally submitted proposal identifies a new library building at the southern end of The Hayes (now proposed as a landmark building for retail / residential / hotel / office use). However, following discussions with the Head of Leisure and Lifelong Learning (see para. 5.15 above), it became apparent that the configuration of the site, likely servicing arrangements, lack of ground floor / first floor presence, and the prospective floor space which this building could accommodate would not meet the needs of the library service particularly in terms of providing the necessary floor space to accommodate its existing facilities and the proposed extension to the range of library services which is being sought.

The amended proposals therefore identify the retention of the Central Library in its current location together with the expansion of the library into adjacent ground floor uses in order to improve the library’s relationship to the street, introduce appropriate active ground floor uses, e.g. café, internet facilities, and create an inviting entrance to encourage passing pedestrians to use the library. The proposals also include the refurbishment of the existing library, expansion of its existing facilities to meet the requirements of modern libraries, and improvements to the elevations of the building, including upgrading of the library entrance.

Associated with the improvement to Central Library building itself, are improvements to the public realm around the library through the creation of a public space in front of the library (‘Library Square’) together with improvements to the St. David’s open market area (‘Open Market’). It is noted that the library will be close to the eastern entrance to the main shopping centre development of St. David’s 2 and therefore its location in relation to the primary pedestrian movements will be significantly improved in comparison with the existing situation.

It is noted that the improvements to the Central Library building itself will take place in a later stage of the proposed phasing period. During the construction of other parts of the St. David’s 2 city centre development proposals the library will continue to operate.

The proposals also identify a seven storey building (with potential for residential / office / hotel uses) sited adjacent to the library, across the access to the existing service ramp to the St. David’s Centre. It is considered that this building will assist in creating a defined building frontage to the eastern entrance of the development and will complement the improvements proposed to the library building.

8.16.1 Conclusions

112 It is considered that the proposed alterations and extensions to the Central Library will result in an enhanced library offer for Cardiff city centre with the proposed public realm improvements complementing the alterations to the library building and creating an enhanced setting to the library.

8.16.2 Recommended Conditions Condition 28 (Details of works to the library) Condition 49 (Details of proposed building to the east of the library)

8.17 Ice Rink

It is noted that the proposed department store is identified to be partly located on the site currently occupied by the Ice Rink. Cardiff County Council are the landlords of the premises currently occupied by the Ice Rink and the lease on the Ice Rink expires in November 2005.

It is noted that outline planning permission has been granted for the Sports Village development, these proposals include an ice facility and it is the responsibility of Cardiff County Council to deliver the Sports Village development. In this respect, the Council is able to control the phasing of the development as landowner of both the Sports Village site and the existing Ice Rink site.

8.18 St. John’s Church and Churchyard

St. John the Baptist Church and its churchyard (as well as the Old Library) lie outside the application site, however, St. David’s Partnership has acknowledged the importance of this area in achieving a high quality pedestrian environment around the main St. David’s 2 development area. This site lies within the St. Mary Street Conservation Area with St. John the Baptist Church and Old Library buildings being Grade I and Grade II* listed respectively.

Discussions have taken place between this Council, St. David’s Partnership, Cadw, and representatives from St. John the Baptist Church and Llandaff Diocesan to consider enhancing this area’s pedestrian environment and recognising east-west pedestrian desire lines whilst maintaining the tranquil environment of the churchyard, respecting the setting of the listed Church, groundkeepers hut, and Old Library buildings and ensuring minimal disruption to the graves and listed railings.

A Design Study has been undertaken by the developer’s appointed urban designers to consider options to improve the pedestrian permeability of the area between St. John the Baptist Church and the Old Library. The options have considered the creation of an east-west pedestrian footpath across the southern churchyard to link between Howell’s department store and the St. David’s Centre together with the refurbishment of the listed hut within the churchyard. It is considered that the creation of an east-west route across the churchyard will reflect pedestrian movement patterns, as well as enable natural policing / surveillance of the southern churchyard (therefore removing

113 the need for the churchyard to be locked throughout the day), while still retaining a quiet environment within the churchyard. The proposals also considered the possibility of the introduction of public art, seating, and the replacement of overgrown planting with a landscaping scheme, which opens up views across the churchyard.

The proposals do not include any alterations to the churchyard adjacent to the Church itself following discussions with representatives from the Church and Llandaff Diocesan who consider that this area should be retained unaltered as part of the immediate setting of the Church.

The St. David’s Partnership have indicated that the improvements to the churchyard would be funded via income gained from the introduction of three kiosks sited within the pedestrianised areas of St. John Street / Working Street (the precise siting of these kiosks is not identified at this stage). The enhancements to the churchyard are also viewed by the Partnership to contribute towards part of the on-site open space provision required under Policy 31 (Residential Open Space Requirement) in relation to any proposed residential development within the St. David’s 2 proposals. (refer to para. 8.10.4 above).

It is the intention of the Partnership to bring forward this proposal at an early stage in the St. David’s 2 development process in order to provide an immediate public realm benefit to the city centre. A planning application and listed building consent application would be submitted for the proposed works to the churchyard together with a planning application for three kiosks.

8.18.1 Acceptability of the proposed works to St. John the Baptist Churchyard The proposed enhancement to the churchyard is supported by this Council and reflects the need to enhance east-west pedestrian desire lines within this part of the city centre.

The means of financing the improvements to the churchyard by the introduction of kiosks to be sited within the surrounding pedestrianised area is accepted, subject to discussions on the precise siting, size and design of the kiosks to ensure that they do not interfere with pedestrian or servicing vehicle movements, and to ensure that the proposed kiosks protect the setting of the surrounding listed buildings and do not detract from the character or appearance of the St. Mary Street Conservation Area.

The improvements to the churchyard are considered acceptable as a contribution towards open space provision.

8.18.2 Conclusions The principle of improvements to the churchyard of St. John the Baptist Church are supported and, in principle, the introduction of kiosks within adjacent pedestrianised streets, subject to their detailed siting, design and size.

114 8.18.3 Section 106 Agreement to be sought in relation to St. John the Baptist Churchyard The Section 106 Agreement will require the developers to bring forward and implement a scheme for improvements to the churchyard area, north of the former Old Library site, which includes for new pedestrian access, hard and soft landscape walls, gates, enclosures, lighting, and other street furniture as appropriate, at an early stage within the St. David’s 2 development process, subject to the relevant consents being received.

(Refer to Section 9 of this Report (Section 106 Agreement)).

8.19 Employment Creation

The amended Environmental Statement states that Cardiff’s population is increasing at a rate of approximately 1% p.a. and had a total population estimate mid-year for 2001 of 305,200.

It is projected that St. David’s 2 will directly create a total of 5,547 jobs (Class A1, A3, B1 and leisure). Assuming around 50% of new jobs will be part-time, full-time equivalent employment (FTE) will be 2,115 jobs. A multiplier effect is anticipated adding a further 211-846 jobs (FTE). If a worse case scenario is assumed, St. David’s 2 is still likely to create 1,904 jobs (FTE) with a further 761 jobs from multiplier effects.

A 5.4% increase in distribution and service sector employment is estimated in Cardiff as a result of St. David’s 2.

The Statement anticipates around 1000-1500 jobs will be created during the construction period.

The Environmental Statement therefore considers that a moderate to large beneficial impact upon job creation will result from St. David’s 2.

8.19.1 Section 106 Agreement in relation to local employment during the construction period The developers will be required to enter into a Section 106 Agreement to ensure that a training and enterprise programme is submitted which includes local labour provision during the construction period.

(Refer to Section 9 of this Report (Section 106 Agreement)).

8.20 Phasing of Development / Construction Period

8.20.1 The Environmental Statement and Appendices outline an overall programme strategy and an assessment of the likely impact arising during the construction period. It states that the development would be constructed over five years and carried out in four main phases.

115 8.20.2 The following main buildings would be demolished: Ice Rink / Toys R Us, existing car parks on Bridge Street / David Street / Mary Ann Street, Oxford House, Primark premises, and St. David’s open market.

8.20.3 The following buildings would be refurbished: St. David’s Centre (part) and Central Library.

8.20.4 The on-site construction activities year on year phases are as follows:

Year 1 - Service Diversions - Demolitions of Adam Street site and commencement of car park - Start demolitions on The Hayes, including Ice Rink, Toys R Us, Oxford House

Year 2 - Adam Street car park construction - On-going demolitions along The Hayes - Start construction of department store and Hayes buildings

Year 3 - On-going construction works along The Hayes - Commence upgrade of St. David’s Centre

Year 4 - On-going construction - Library refurbishment commences

Year 5 - Department store and Hayes trading - Library refurbishment completed - On-going construction work at St. David’s Arcade and south of Hill’s Street (east)

8.20.5 It should be noted that the above programme is indicative at this stage as contracts and procurements may well alter these phases. The commencement of development is also uncertain in that the land is currently in a variety of ownerships and leases, which are likely to require compulsory purchase and potential public inquiry. The applicant has however, indicated their wish to start on-site as soon as possible, likely to be around 2004 / 2005.

8.20.6 The Environmental Statement concludes that during the construction period there is likely to be ‘slight / moderate’ adverse affects on the following areas of operation, namely: - traffic flow and congestion, pedestrian access, road cleanliness, disruption to road and footpaths, construction car parking, general environmental quality and noise and dust, visual appearance, business and property.

There will be more significant impacts upon the St. David’s open market and St. David’s Centre.

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8.20.7 It is considered, from a Council perspective, that the effects of the development during construction will be significant and will give rise to disruption in and around the city centre from a variety of aspects. Of particular note is the loss of the existing car parking provision whilst new multi-storey car parks are constructed. The Head of Traffic and Transportation has highlighted the potential shortfall of spaces that is indicated at the end of Year 1 (1894 spaces) before any new parking comes on stream in Year 3. In order to address this issue, relevant conditions are recommended to ensure that there is adequate car parking brought into being before demolition of the existing car parks take place. In order to minimise the adverse effect, a comprehensive series of mitigation measures will be required as well as detailed control of the demolition and construction phases. The recommended conditions will also facilitate the continual operation of the post office and minimise disruption to St. David’s Hall. The Section 106 Agreement will also seek to provide for temporary facilities for the open-air market during the construction period.

8.20.8 The Head of Strategic Planning has raised a specific requirement for reuse of demolition materials from the site.

8.20.9 The Head of Environmental and Public Protection also consider that during construction there is a high risk of air pollution and that measures will be required to address this.

8.20.10 Subject to the above recommendations and conditions it is considered that the adverse affects of the construction can be minimised.

8.20.11It should be noted that whilst the indicative programme strategy shows a continuous series of construction phases, there is no guarantee that there will not be delays or periods where the phases are not continuous. This could result in areas of the site being sterilized for indefinite periods. In order to minimise the risk of this occurring a condition is required that before demolition takes place within The Hayes area, as defined on the relevant plans, a contract for the redevelopment of the site have been let in accordance with the relevant detailed planning permission.

8.20.12 Recommended Conditions Condition 21 (Comprehensive phasing plan) Condition 24 (Construction management plan) Condition 25 (No building demolition until redevelopment proposals have been approved) Condition 27 (Sustainability strategy including recycling used materials from site) Condition 29 (Retention of post office facility during construction) Condition 35 (No car park demolition until replacement facilities approved) Condition 45 (Plant noise)

117 Recommendation 4 (Noise from demolition and construction activities), Recommendation 7 (Temporary use of new shop units), and Recommendation 8 (Minimise disruption to St. David’s Hall).

8.21 Other Issues

8.21.1 Archaeology The Environmental Statement concludes that the eastern two-thirds of the site contains no archaeological resource with the western third having a low to moderate potential for medieval remains of local importance, which will be preserved by record.

It is identified that a programme of archaeological trial trenching and more extensive excavation and (off-site) assessment, analysis and publication will take place following demolition and prior to construction groundworks.

Glamorgan Gwent Archaeological Trust acknowledge that any archaeological resource found within the site is likely to be of only regional significance and recommend a condition to ensure that a programme of archaeological investigation during the redevelopment of the site is undertaken to ensure that the archaeological features are fully recorded prior to any damage occurring (see Condition 37).

8.21.2 Waste Strategy A waste strategy will be prepared by the developers to address the waste generated by the various uses within St. David’s 2.

An appropriate condition is recommended by this Council to require a waste management strategy for the development to be prepared (refer to Conditions 15 and 30).

8.21.3 Public Toilet Provision St. David’s Partnership has stated that public toilets will be incorporated throughout the development and shall include appropriate facilities for disabled persons and parent / baby facilities.

In view of the proposed new toilet facilities within the new development, it is recommended that the Section 106 Agreement gives consideration to exploring the potential relocation of the existing facilities on Hill’s Street, to within the main existing St. David’s Centre.

(Refer to Section 9 of this Report (Section 106 Agreement)).

8.21.4 Users Of The Development: Yo uth, Elderly, Disabled, Parents, Visitors The Public Realm and Urban Design Appendices to the Environmental Statement identify that all users of the city centre will be catered for in the detailed design of the development in terms of the design of the proposed open spaces, pedestrianised streets, pedestrian crossing facilities, parking provision (disabled / shopmobility / parent and child), signage / wayfinding, and orientation and legibility.

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These aspirations are supported by the County Council.

(Refer to Conditions 6, 20 and 35)

8.21.5 Sustainability The urban design consultants have submitted a statement outlining the sustainability opportunities / aspirations to be incorporated into the St. David’s 2 development, this statement considers sustainability through the design of the development, energy use (lighting, energy loss / gain), the use of materials, water conservation, transportation, waste management, prevention of incidents of pollution / contamination, and during construction.

These sustainability principles are supported by the County Council.

(Refer to Condition 27)

8.21.6 Marketing / Tourism The proposals will result in the creation of a high quality city centre environment incorporating new open spaces, pedestrianised streets, and a range of uses, identifying potential for hotels, markets and an art gallery, which will increase the ‘Cardiff offer’ to visitors. This will be supported by improved highway infrastructure and coach facilities as well as signage and waymarking (refer to Condition 20).

The proposals will support this Council’s aspirations of enhancing Cardiff as a visitor destination in accordance with the Cardiff Strategic Tourism Growth Area Action Plan. The proposals will therefore have a positive effect upon the marketing and tourism potential of Cardiff city centre.

9. SECTION 106 AGREEMENT

In order to address the specific policy on matters and issues arising from the proposals it is considered that a legal agreement under Section 106 of the Town and Country Planning Act 1990 is necessary to address the following matters:

9.1 Affordable Housing (i) Provision of 20% affordable housing (or 12% if social housing grant is not available) this will include 10-15% Registered Social Landlord and 5-10% low cost affordable units; (ii) The definition of ‘affordable’, phasing arrangements, design standards, and location will need to be included within the agreement and the letter from the applicant dated 16 May 2003.

9.2 Traffic and Transportation Issues (Refer to para 8.7.30 above)

119 Financial contributions will be sought from the developer towards V.M.S. (£610,000), Park and Ride facilities (£160,000), and off-site junction improvements (£200,000).

The Section 106 Agreement will also need to secure the following matters:

(i) Review mechanism to evaluate the impact of the development upon traffic movement before commencement of development, as well as undertake an annual review of traffic movement patterns, and identify any mitigation measures to remove any adverse impact; (ii) Traffic Order provisions, in particular along Churchill Way – relating to a financial sum towards the cost of bus stop provision, highway infrastructure changes associated with bus service diversions, highway changes related to the proposed coach parking facilities, and associated traffic order modifications and accommodation works (e.g. signage, lining, priority measures); (iii) A parking management regime for all proposed car parks, including allocation of spaces, pricing structure, hours of operation, maintenance, disabled access and provision; (iv) A parking management ‘claw back’ mechanism to secure the reduction of the temporary parking provision on Adam Street; (v) A requirement for an agreed mechanism for the future maintenance of areas of landscaped highway by the applicant; (vi) Cycle review of the use of pedestrianised areas.

9.3 Arcade and Street Access The Section 106 Agreement will seek to secure the provision of 24-hour access by pedestrians along Tredegar Street and Hill Street in line with the submitted Master Plan and the provision of 18-hour access by pedestrians along the proposed arcades in line with the submitted plan.

9.4 St. John the Baptist Churchyard Without prejudice to the need for the relevant consents, prior to the commencement of the development, the applicant shall be required to bring forward a scheme within 3 years from the grant of consent, which seeks to enhance and improve the churchyard area, north of the former Old Library building, which includes for new pedestrian access, hard and soft landscape walls, gates, enclosures, lighting, and other street furniture as appropriate.

And thereafter, to implement the approved scheme in accordance with a timetable to be agreed at the time of the submission and with the provisions given in the letter from the applicant dated 2nd May 2003.

9.5 Local Employment Opportunities The applicant shall submit, prior to commencement of development, a training and enterprise programme, which shall include for local labour provision and thereafter implement the agreed programme during the construction period.

9.6 Market Operation Details of the proposed market operations and operators on Hill’s Street need

120 to be agreed with the Council to ensure that the proposals do not prejudice existing market operations. Temporary accommodation for the existing open- air market also needs to be facilitated during the construction period.

9.7 Public Toilet Provision In view of the proposed new toilet facilities within the new development, consideration needs to be given to exploring the potential relocation of the existing facilities on Hill’s Street, to within the main existing St. David’s Shopping Centre and use reasonable endeavour to implement the relocation.

10. CONCLUSIONS

Securing a high quality, attractive city centre environment is a key objective of Cardiff City Council. This outline planning application will assist in delivering retail-led regeneration within this part of Cardiff city centre as well as promoting Cardiff as at the top of the regional retail hierarchy. The St. David’s 2 development will also form a major part of the continuing enhancement of the city centre.

It is considered that the St. David’s 2 development can be successfully integrated into the surrounding city centre, and that this can be achieved without significantly worsening traffic congestion (through means of Section 106 Agreements), whilst also improving connections for pedestrians and cyclists and enhancing bus infrastructure provision.

This outline application establishes the first stage in a series of subsequent more detailed applications, which will ensure the delivery of a master plan based development. The master plan aims to achieve urban regeneration and a range of uses to add to the development mix in the city centre, create a network of attractive streets and squares, improve accessibility and reduce traffic impact, achieve a ‘city scale’ to the design of buildings, promote sustainable development, and realise these objectives through a managed phased development process. These aims will assist in delivering a mixed- use development, which will integrate into the existing centre.

The alterations to the highway network and the master plan principles, which establish a framework which will guide the development, have been evaluated in relation to national planning guidance (‘Planning Policy Wales’ and the supporting Technical advice Notes), the policies set out within the City of Cardiff Local Plan, the City Centre Strategy and supplementary planning guidance prepared by this Council. Taking into account the significant number of issues, which have to be addressed in dealing with an application of this scale and complexity, and the many constraints that have affected the scheme detail, it is considered that the proposed St. David’s 2 development (including the package of planning obligations as recommended) delivers an acceptable proposal. The conclusions and identified impacts and mitigation measures outlined in the Environmental Statement are agreed with overall by Cardiff County Council. The implications of the St. David’s 2 development as cited in the Transport Assessment and Retail Assessment are accepted by

121 the Chief Traffic and Transportation Officer and the Head of Strategic Planning respectively.

The proposed redevelopment of this part of the city centre will introduce retail units of varying sizes to attract retailers that currently are not represented within the city and improve Cardiff’s position as a viable trading location. It is considered that St. David’s 2 will provide a quality and range of shopping appropriate for Principality’s capital city. The proposal also provides significant levels of office space. Other planning benefits include, assisting in meeting the housing needs of Cardiff, improving pedestrian linkages with other parts of the city centre, and providing major new employment opportunities, together with the creation of an urban environment of distinctive character and quality within the city centre.

If outline planning permission is granted, this application will provide the basis for preparing, submitting and determining reserved matters applications across the St. David’s 2 development area. The Master plan principles framework also provides a sound basis for progressing the master planning process, whilst recognising that there is still a significant amount of work required in order to realise the aspirations of this significant city centre scheme as it moves into subsequent phases of the development process. Continued active involvement with the Council’s Service Areas, existing city centre occupiers and businesses and other key interests and stakeholders, will be crucial to successfully progressing the development.

The Master plan principles are endorsed as a framework for development across the master plan area and it is therefore recommended that outline planning permission be granted subject to referral of the application to the National Assembly for Wales, the developer entering into a Section 106 Agreement with this Council (encompassing the matters referred to in Section 9 of this Report), and subject to appropriate conditions.

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