CITY OF CARDIFF COUNCIL CYNGOR DINAS CAERDYDD
CABINET MEETING: 17 JULY 2014
UPDATE ON THE CENTRAL SQUARE REGENERATION SCHEME
JOINT REPORT OF THE DIRECTOR OF ECONOMIC DEVELOPMENT AND THE DIRECTOR OF STRATEGIC PLANNING, HIGHWAYS & TRAFFIC & TRANSPORT
AGENDA ITEM: 3
PORTFOLIO: LEADER - ECONOMIC DEVELOPMENT & PARTNERSHIPS (COUNCILLOR PHIL BALE)
Appendices 4 - 9, and 12 of this report are exempt from publication because they contain information of the kind described in paragraphs 14 and 21 of parts 4 and 5 of Schedule 12A to the Local Government Act 1972.
Reason for this Report
1. To provide Cabinet with an update on recent progress with the Central Square regeneration scheme.
2. To seek authority to dispose of an area of Council owned land to enable the development of over 250,000 sq ft of Grade A* offices including the headquarters development for BBC Cymru Wales.
3. To seek authority for the Council to commit to undertake various environmental improvements at Central Square within an agreed timescale.
4. To provide Cabinet with a delivery programme for the development of a new central bus interchange.
Background
5. On the 8 th June 2014, following a long and detailed procurement process, BBC Cymru Wales announced its decision to relocate Broadcasting House from Llandaff to the city centre to anchor the Central Square regeneration scheme. This decision by the BBC is recognized by the Council as seminal and having the potential to catapult Cardiff’s development agenda forward for the next 10-15 years. The decision has already inspired tangible confidence and momentum in the city’s current
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regeneration plan and through the step change in design quality will add significantly to the Council’s ambition to establish Cardiff as one of the Europe’s most ‘liveable’ capital cities .
6. The Central Square regeneration scheme plans to deliver a brand new high quality mixed use urban gateway to the capital city and a modernized central transport hub. At the Cabinet meeting of 12 September 2013 authority was granted for the Council to work with Cardiff property development company Rightacres Property Co Ltd to acquire a number of long leasehold interests in the vicinity of Central Square. Further authority was granted at the 15 May 2014 Cabinet meeting to acquire the long leasehold interest in the Wood Street NCP Car Park site. The Council and its key partners Rightacres Property Co Ltd and Network Rail now have full control of the regeneration area (see Appendix 1).
7. During this period the Council has also been working with Rightacres Property Co Ltd to bring forward a number of high quality office developments. The first development, known as Building 1, will be located on the site of the former planning offices at Wood Street and will provide 130,000 sq ft of speculative Grade A* office space (see Appendix 2) designed by award winning Cardiff architects practice Rio Architects. Rightacres Property Co Ltd has secured planning permission for this development and intends to start construction in July 2014 using Cardiff based contractor Wilmot Dixon.
8. The second development will be the new Sir Norman Fosters & Partners designed 150,000 sq ft headquarters building for BBC Cymru Wales (see Appendix 3). The development will represent the first ‘Fosters’ commercial building in Wales and will provide a major boost to the Council’s aspiration to continue the improvement in the quality of design and place in the city. The BBC investment is quantified at circa £170m and will become home to more than 1,000 BBC staff – including BBC Wales, BBC Finance and BBC Pensions staff all currently based at Llandaff. S4C has also announced plans to share some broadcasting services at the new centre.
9. The BBC’s decision has had an immediate effect on driving occupier demand in the area which has led Rightacres Property Co Ltd to commission Fosters & Partners to begin design work on a third development of circa 100,000 sq ft of Grade A* office development known as Building 2 on Site 2 (see Appendix 1). Rightacres Property Co intends to bring forward this development speculatively to meet the new and growing demand for space in the area and to assist with the BBC’s need for quiet enjoyment of their accommodation once they fully occupy in 2018.
10. In addition to the above, the acquisition of the Wood Street NCP Car Park site has enabled the Council to start meaningful work on the delivery of a new bus interchange. The BBC building will be located on the land freed up by the relocation of the existing bus station and the intention is to begin construction of the BBC development in June 2015.
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The Council will be required to put in place interim arrangements whilst the new bus interchange is under construction. These arrangements and the programme for delivery of the new interchange are outlined later in this report.
Issues
11. The 2014-2017 Corporate Plan includes the significant objectives relating to the redevelopment of Central Square and the modernization of Cardiff Central Bus Station:
• F&ED2 – Facilitate the start of the development of Central Square in 2014. • F&ED3 – Deliver with partners 200,000 square feet of Grade A office accommodation in the Cardiff Enterprise Zone by 2016. • SP&T2 – Develop plans for new Central Public Transport Hub by April 2015.
In order to make progress towards the delivery of these key corporate objectives, this report seeks Cabinet approval to address a number of issues relating to: the delivery of the BBC headquarter building and other early phase development at Central Square; and the delivery of a new bus interchange.
Delivering the BBC and related development
12. So far, Central Square has been only been identified as the BBC’s preferred location for the delivery of their new headquarters building. In order to get to a position where Rightacres Property Co Ltd is able to begin construction of the building the BBC will need to commit to an Agreement to Lease. This is essentially a legal contract between landlord and tenant. Given that the BBC wishes to be in full occupation of the building by September 2018, construction is required to start in June 2015 at the latest. This provides less than 12 months to conclude negotiations on the Agreement to Lease and to secure planning permission. To this end, the BBC has now issued Rightacres Property Co Ltd with a Design and Development Agreement which essentially sets out the Heads of Terms towards an Agreement to Lease. The BBC requires Rightacres Property Co Ltd to be in a position to sign these Heads of Terms within 3-4 weeks.
13. In order for Rightacres Property Co Ltd to be in a position to sign the Heads of Terms agreement with the BBC and to provide certainty of delivery, Rightacres Property Co Ltd and the Council need a contract relating to the following key items:
• Agreement to dispose of land at Central Square to enable delivery of the BBC development. • Agreement to dispose of additional land at Central Square to enable the completion of a further office development (Building 2) at Site 2 in advance of the BBC’s full occupation of their building in September 2018.
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• Agreement to phase the demolition of Council owned buildings in Central Square in advance of the BBC’s full occupation of their building in September 2018. • Agreement to carry out public realm improvements within certain timescales. • Agreement to the closure of the existing bus station by June 2015 to enable the commencement of construction of the BBC development.
Disposal of land at Central Square
14. Confidential Appendix 4 provides an independent valuation relating to the disposal of land to Rightacres Property Co Ltd to enable the delivery of the BBC headquarters building. Confidential Appendix 5 sets out the draft Heads of Terms relating to this disposal. The delivery timescales associated with BBC headquarters building will require the closure of the existing bus station before a new bus interchange is delivered and will require the Council to put into place temporary arrangements to manage city centre bus movements for a period of time. The programme for the delivery of a new bus interchange and the proposed interim arrangements are outlined later in this report.
15. With regard to the development of Building No 2 on Site 2, the Council has already entered into a Memorandum of Understanding with Rightacres Property Co Ltd which includes a provision for a parcel of land on the Rightacres Property Co Ltd owned land at Wood Street to be swapped with a parcel of Council owned land at Central Square to enable a significant public realm corridor to be created linking Cardiff Central Railway Station with the Millennium Stadium (via Millennium Walkway). In order to deliver this Council requirement Rightacres Property Co Ltd has designed Building No 1 on a significantly reduced footprint compared to a previously approved scheme which took up the whole of the Wood Street site. In return the Council has agreed to swap- out a parcel of land and to dispose of additional land at Central Square to create an alternative development site of appropriate scale. Confidential Appendix 6 provides an independent valuers view of the land swap and disposal to Rightacres Property Co Ltd to enable the delivery of Building 2. Confidential Appendix 7 sets out the draft Heads of Terms relating to this disposal. A full and detailed independent valuation will be completed to establish the final disposal price once the exact areas of land required for the development of Building 2 are confirmed. Rightacres has agreed to provide a minimum receipt for Site 2 as outlined in Appendix 7 to enable the delivery of the public realm strategy outlined below.
16. The agreed receipts from the sale of Sites 2 and 3 are in line with the overall development appraisal for the Central Square regeneration scheme as illustrated in Appendix 8.
Delivery of public realm improvements
17. In order to secure the BBC headquarters development the Council is being asked to enter into an agreement with Rightacres Property Co Ltd that will oblige the Council to deliver a series of public realm
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improvements in the Central Square area, within an agreed timescale. A Public Realm Delivery Strategy is attached as Appendix 9 with associated Heads of Terms between the Council and Rightacres Property Co Ltd regarding the delivery of these improvements attached as Appendix 5. The Delivery Strategy provides an illustration of the areas of public realm that will be required to be delivered, a phasing plan, a high-level estimate of costs, and a schedule of capital receipts and Section 106 contributions that will provide the required funding.
18. The overall cost of the public realm improvements will be funded through Section 106 contributions. However, in order to deliver these improvements in line with the timescales of the BBC development it is proposed that receipts from the sale of Sites 2 and 3 (as described in paragraphs 14 and 15 of this report) will be utilized, combined with Section 106 contributions relating from the development of Buildings 1 and 2 and the BBC building. Appendix 9 illustrates that this is feasible. Furthermore, Rightacres Property Co Ltd will enter into a back to back agreement to ensure delivery of the capital receipts within an appropriate timescale to cashflow the public realm works.
19. The Council is also in discussion with Rightacres Property Co Ltd as to how the new public realm created by the regeneration of the Central Square area and any public art delivered through Section 106 agreements can be managed to a high standard following completion of the works. St David’s 2 provides a good example of high quality management and there are other examples from across the UK, including Spinningfields in Manchester city-centre which is regarded as a best practice model.
Demolition of Council owned buildings
20. The BBC, via their Heads of Terms agreement with Rightacres Property Co Ltd, requires assurances from the developer that their early occupation will be in an environment that is conducive to carrying out their business functions. As part of this, and in addition to the public realm improvements outlined in paragraph 17 above, the Heads of Terms agreement between the Council and Rightacres Property Co Ltd (see Appendix 5) provide that the Council will facilitate Rightacres’ obligation to the BBC by permitting Rightacres to demolish Marland House by March 2017 and St David’s House by September 2018. Rightacres’ contractors will require possession of significant working areas within Central Square to enable the development works to be carried out. Appropriate rights will be granted, subject to necessary public access being retained.
21. There is one tenant at St David’s House that has a lease beyond the required demolition date. Rightacres Property Co Ltd has agreed to take responsibility for relocating the tenant within the Central Square regeneration scheme and initial discussions have taken place. The Council’s Communities, Housing and Customer Service service area currently occupies circa 20,000 sq ft of office space at Marland House. In order to demolish the building by March 2017 the Council will need to
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find an alternative and suitable city-centre location to re-accommodate this service.
Delivering a new bus interchange
22. The Council remains fully committed to delivering a new modern bus interchange, adjacent to Cardiff Central Railway Station and preferably as part of an Integrated Transport Hub.
Issues with the current bus station
23. The existing Cardiff bus station is widely regarded as unwelcoming and out of date. It occupies an oversized footprint to accommodate significant bus layover and has been designed as a series of disaggregated stands which makes it difficult to navigate for residents and visitors and poor in terms of accessibility. Together these characteristics create a number of operational issues:
• Forced closure whenever a major event is held at the Millennium Stadium. • Disruption to night-time services at weekends due to road closures relating to the night-time economy. • Disaggregated stands create bottlenecks and bus queues at peak times. • Disaggregated stands provide poor visibility of services to passengers. • Disaggregated stands create safety issues as passengers are expected to cross in front of bus traffic to gain access to stands. • Disaggregated stands do not support a welcoming environment, and in some cases have been considered intimidating in the evening. • The size of the existing footprint undermines environmental/place quality. • The current working of the bus station introduces considerable bus ‘through traffic’ within the city center. • The current bus station suffers from poor levels of patronage.
Designing a new bus interchange
24. There are a number of key principles regarding the development of a new bus interchange that have governed the work of the Council following previous Cabinet decisions. These principles now need to be reviewed by Cabinet to assist with the current need to accelerate the delivery of a new bus interchange, as follows:
• The new facility needs to be located adjacent to the railway station and preferably where it can enable the delivery of an Integrated Transport Hub, providing shared facilities for passengers and transport operators possibly ‘under one roof’ and enabling seamless transition between modes. • The new facility needs to deliver a ‘European quality’ architecture and public realm ‘gateway’ solution.
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• The location needs to align with the potential expansion of the high quality city centre core – and the removal or minimization of through traffic movements – aligning with proposals to enhance the city centre highway network and to maximize environmental / public realm quality. It should also seek to minimize air quality issues including a reduced requirement for layover. • The new facility needs to be located where disruption to operation caused by major events and the weekend night-time economy is minimized. • The new facility needs to provide a much improved clean, safe and managed environment for passengers that minimizes the potential for conflict between vehicles and pedestrians. • The new facility needs to be easily/safely accessible from the city centre and inclusive to all. • The new facility should provide an improved management scenario, through potential mixed uses that have the potential to provide a more financially viable operating solution to the Council.
25. Modern central bus interchanges tend to utilise a much more efficient footprint with drive-in/reverse-out bus bay design which segregates moving buses from passengers completely. Passengers have the advantage of being able to see all of the destinations from one large enclosed waiting area, as all boarding points are concentrated in one elongated area. Waiting areas are easily accessible, safe and secure. They provide passenger-friendly signage, information, ticket desks, passenger facilities including public toilets, cafés, food and retail outlets, and additional facilities such as shop-mobility, secure cycle parking, shower facilities and left luggage.
26. The Council is keen that the opportunity to modernise the central bus station delivers improved facilities and integration for a range of transport modes, and for pedestrians. Of critical importance to the wider plan will be a significant upgrade in provisions made around the railway station for taxis. To that end the Council intends to undertake proactive consultation with taxi operators.
27. The development of the new bus interchange will inevitably need to take account of international best practice. However, the Council is also keen to deliver a solution that meets local needs and the aspiration of the various stakeholders that will make use of the new facility, primarily the public. Therefore a detailed consultation with stakeholders and the public will be undertaken to shape the final solution. Furthermore, Members of the Council and other elected representatives will be asked to participate in the process, including a specific Scrutiny Task & Finish Group working on behalf of both the Economic and the Environmental Scrutiny Committees. Location of the new bus interchange
28. Two potential sites have been identified as suitable to deliver the city’s aspiration for a new bus interchange:
• Marland House/NCP Car Park site (north of the railway line);
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• Network Rail Car Park site (south of the railway line).
Both sites have immediate proximity to Cardiff Central Railway Station and both offer the potential to keep the bus interchange open on major event days and for weekend night services - by providing access from areas that will not be subject to road closures.
29. The Council now has full control of the Marland House / NCP Car Park site. The other site is in the full ownership of Network Rail, a key partner of the Council in delivering the regeneration of the areas north and south of the railway line, including the upgrade of Cardiff Central Railway Station. Discussions regarding the south of the station were put on hold during the BBC procurement process but have now resumed with the intention of thoroughly testing both locations to determine which provides the best solution for passengers and bus operators.
Interim arrangements
30. Given that the current bus station will need to close in June 2015, there will be a period of time, whilst the new bus interchange is constructed, where the Council will have to put in place interim bus interchange arrangements. The length of this period of time will be dependent on the final proposals that will be presented to Cabinet in December, suffice to say that the Council’s intention will be to minimise the period where the city needs to operate without a dedicated central bus facility.
31. In anticipation of the requirement to provide interim bus interchange arrangements the Council has undertaken extensive bus and passenger transport modelling (see Appendix 11) and has recently commissioned a further review to provide an update of the bus network across the city. Furthermore, a series of bus infrastructure improvements have already been implemented to increase on-street capacity including works at Westgate Street, Custom House Street, and Churchill Way and it has been identified that further opportunities exist for temporary capacity increases in Wood Street, Lower St Mary Street and potentially Callaghan Square.
32. It is anticipated that the majority of Cardiff Bus services will maintain their existing route, either circling the city centre in an anti-clockwise direction or looping in Mill Lane / Custom House Street to exit the city centre up Westgate Street. However there is sufficient flexibility for clockwise circulation if required by operators.
33. The proposed strategy will cause changes to bus flows on links in the city centre. The most notable changes will be a reduction in bus flow on Westgate Street and Castle Street, and an increase in bus flow on Lower St Mary Street / Canal Street / Custom House Street and Greyfriars Road.
34. If any further interim works are required authority will be sought at a future Cabinet meeting.
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Funding a new bus interchange
35. In order to release the site of the current bus station to enable the development of the BBC headquarters building it is incumbent on the Council to demonstrate that it has the ability to deliver a new replacement bus interchange. Essentially this requires the Council to demonstrate that that bus operations in the city centre can cope with the closure of the bus station for a period of time; that a suitable alternative site is available for a new bus interchange; and that adequate funding would be available to construct a new bus interchange. The Council is confident that the city can cope with the closure of the bus station whilst the new interchange is being constructed. The city copes with the closure of the bus station regularly to accommodate major stadium events. The Council is also confident now that it has control of the Marland House/NCP Car Park site that an alternative site exists to deliver the new scheme.
36. In terms of funding, the Council has in the recent past produced costed schemes for new stand-alone facilities on the existing bus station site and on the Marland House/NCP Car Park site. Costs can vary depending on the level of bespoke architecture and the final specification of the facility. Indicative costs for a stand alone scheme have been provided in Appendix 12 for illustrative purposes.
37. There is significant scope to reduce these costs by integrating the facility into a broader mixed use development incorporating retail, car parking, and potentially uses above the ground floor concourse which could include offices, hotel and residential.
38. There is also the potential to deliver the bus interchange through innovative funding approaches including leasing where the Council’s covenant reduces the cost of sub-letting back to an operator(s). Alternatively, the Council could lease offices or a hotel or housing within the mixed use scheme and the Council’s covenant would produce enough development value uplift to fully fund the bus interchange. There is risk involved in these lease based approaches, but given the demand for offices and other uses in this location it is possible that the Council could secure a back to back deal with an occupier tied down to the same length of lease that could completely cover the cost to the Council.
39. In order to progress with the closure and sale of the current bus station site the Council needs to demonstrate that it can fund the delivery of the new bus interchange through existing allocated resources. The Council currently has adequate resources tied up in land holdings in the Central Square regeneration area. In the short term, whilst the Council waits to realize capital receipts, there is potential to utilise the £15m allocated in the Capital Programme for the Enterprise Zone. This allocation has been identified for the delivery of the Multi-purpose Arena, and would still be needed for the delivery of the Multi-purpose Arena downstream, but could be used in the short term to cashflow the delivery of a bus interchange if a straight forward capital approach was required.
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Next steps in the delivery programme towards a new bus interchange
40. The Council is required to identify an agreed and deliverable solution for a new bus interchange in time for the closure of the existing bus station on June 2015 and to begin construction of the new facility as soon as possible after the current bus station is closed, or before if that becomes feasible. Appendix 10 outlines the proposed programme for delivering the new interchange and is summarized as follows:
• July 14 - Engagement with primary stakeholders to set out the strategic direction for delivery of a new interchange. • August/September 14 – 8 week formal consultation with the public and key stakeholders on the merits of both potential locations and the specification of the facilities to be provided. • October/November 14 – collation of responses and further concept development. • December 14 –Cabinet decision on the preferred location, specification and preferred funding approach. • January/February 15 – detailed design of proposal on chosen location incorporating agreed specification. • March 15 – Cabinet decision on final scheme followed by submission of planning application. • May 15 – Award of planning permission. • June 15 – Closure of existing bus station.
41. When deciding the preferred location of the new bus interchange the ability of the site to deliver early implementation of the development will be a primary consideration. The exact development timescales associated with both sites will be presented as part of the detailed report to Cabinet in December. At present the Marland House/NCP Car Park site is constrained by existing lease arrangements that do not expire until March 2017. However, the Council will explore the potential to phase the delivery of the new bus interchange at this location by demolishing and utilising the footprint of the NCP Car Park site in the first instance. If the northern site is chosen as the preferred location there is scope for the NCP Car Park to be demolished shortly after the December Cabinet decision.
Marketing and Promotion
42. The extent of investment required to transform this area into a modern capital city gateway will require significant marketing and promotion activity. As part of this the Council is considering whether it should create a new development brand for the area to help raise the profile of the regeneration project externally and to support the creation of a new investment location/place. It is therefore proposed to engage with the public and stakeholders through the consultation process to canvass ideas and views both for the brand of the area during the development stage and the formal naming of the area for the long term.
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Project Delivery
43. The regeneration of Central Square is currently the most significant major project being taken forward by the Council and will need to be resourced appropriately and managed within the Council’s established framework for major project delivery. A joint team made up of officers from the Council and representatives from Rightacres Property Co Ltd has been established. The project will managed within the governance framework of the Major Projects Board reporting through to the Asset & Infrastructure board within the context of the Organisational Development Programme.
Land Ownership
44. The Council’s landholdings within the site are currently held for general non-operational purposes pending redevelopment and transportation purposes pursuant to section 120 of the Local Government Act 1972 and section 81(2) of the Transport Act 1985 respectively. By virtue of section 122 of the Local Government Act 1972 the Council is empowered to appropriate land to any other purpose for which the Council is empowered to acquire land in circumstances where the Council decides that the relevant land is no longer required for the present purpose.
45. The Council has power to acquire land for planning purposes under section 237 of the Town and Country Planning Act 1990 which is designed to “facilitate the carrying out of development on the land”. The section provides that the carrying out of any building work in accordance with a planning permission on land held for planning purposes is authorized notwithstanding interference with any easement, liberty, privilege, right or advantage attached to the land.
46. The present purposes for which the site is used as an outdated bus station and declining office and parking provision is no longer required for the reasons described in this report.
Reasons for Recommendations
47. To seek various Cabinet decisions to progress the Central Square regeneration scheme.
Legal Implications
48. The Council is required to receive the best consideration that can reasonably be obtained from its land disposals in accordance with section 123 of the Local Government Act 1972. The Council’s Procedure Rules for the Acquisition of Land require the advice of a professional valuer to be taken. The Council has power to enable economic well- being in its area in accordance with its Community Strategy and section 2 of the Local Government Act 2000. The Council’s Procedure Rules for the Acquisition or Disposal of Land provide that in dealing with land the Council’s decision makers will have proper regard to professional advice from a qualified valuer at all relevant stages during the process. This
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intention is that due probity and accountability can be demonstrated and value for money achieved. In this case, as well as the purchase prices, there are considerations as to rental income, service charges and holding costs, the costs and values of proposed redevelopment, and the likely timing in terms of funding and tenanting of redevelopment in the current economic climate to be considered.
49. The Council will be required to ensure value for money by a proper process in regard to the carrying out of the public infrastructure and demolition works which are referred to in this report. It will also need to ensure that its position is protected in regard to potential delay claims which could arise in regard to infrastructure and demolition works. Potential damage to infrastructure works by ongoing phased development is another issue which will need to be addressed.
50. In carrying out a consultation exercise the Council is legally required (a) not to have made a decision in advance (b) to provide sufficient information (c) allow sufficient time and (d) consider the responses properly. The carrying out of an Equality Impact Assessment will be necessary to ensure that the Council has understood the potential impacts of the proposed relocation of the bus station in terms of equality so that it can ensure it is making a proportionate and rational decision having regard to its public sector equality duty.
Financial Implications
51. The attached report provides Cabinet with an update on recent progress with the Central Square regeneration scheme and seeks approval of a number of commitments to allow the scheme to move forward to the next stage. In summary, the report seeks delegated authority to:
• dispose of parcels of Council owned land to accommodate two Grade A office developments, including the headquarters development of BBC Cymru Wales; • undertake various environmental improvements at Central Square within an agreed timescale; • close the existing bus station, review existing interim arrangements and agree key principles relating to the delivery of a new central bus interchange.
52. These commitments give rise to significant financial implications which are both complex and commercially confidential and the legal implications will need to give comfort that the terms proposed are acceptable to the Council.
Disposal of Land at Central Square and Closure of Bus Station
53. Following BBC Cymru Wales’ announcement that Central Square has been chosen as the preferred location for relocating its headquarter office, the Council is required to dispose of two parcels of land (sites 2 & 3 shown on Appendix 1), which currently form part of the existing bus station site. In-line with the Council’s financial procedure rules,
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confirmation has been provided from a professional valuer which demonstrates that the value agreed for Site 3 (BBC HQ site) represents best consideration. The independent valuation is attached at Appendix 4. In respect of Site 2, this report recommends delegating authority to the Director of Economic Development, in consultation with the Leader of the Council, the Cabinet Member for Corporate Services and Performance, the Section 151 Officer and the County Solicitor to approve a final fully detailed valuation report confirming the agreed price and to finalise any other detailed arrangements and to conclude the disposal.
54. Disposal of the parcels of land identified above will require the Council to close the bus station by June 2015, based on the timetable outlined above. The report confirms that further work will be undertaken to assess whether interim arrangements can be operated using the existing on-street capacity within the city centre and to confirm that these arrangements are effective and fit for purpose. If further works are required then these will be reported back to Cabinet along with details of the costs and funding arrangements, including any implications arising from the closure of the bus station itself.
55. In terms of the delivery of a new bus interchange, the Council’s preferred solution will be determined following a consultation exercise, with a view to a deliverable scheme being agreed before the June 2015 timescale outlined above. Appendix 12 set-out the indicative costs for a new bus interchange based on schemes previously worked-up by officers. However, the report outlines that significant work will be undertaken on potential options and presented to Cabinet in December 2014. The options will consider the preferred location, required specification and will be underpinned by robust costings.
56. The December Cabinet Report will also outline the various funding options that may be available to the Council along their with associated risk profiles. In the event that the Council decides to fund the new bus interchange scheme via its capital programme then there is an existing allocation of £15 million available that could be used for this purpose. However, Cabinet should note that this is the final uncommitted allocation within the approved Enterprise Zone capital budget and therefore delivery of the Multi-purpose Arena will be reliant on the release of future resources that are currently invested in land holdings at Central Square.
Central Square Regeneration Scheme Development Appraisal
57. The Council has made a significant investment in land holdings within Central Square with a view to enabling a major redevelopment of the area. The Development Appraisal attached at Appendix 8 has been reviewed by the Council’s appointed valuer and approved as being a fair reflection of the current market and the prospects of delivery of the Masterplan and associated wider benefits. The Development Appraisal sets out the returns the Council can expect based on the Masterplan put forward by the developer at this time. This indicates that over the development period the Council can expect the development, excluding
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the as yet undefined preferred location of the bus interchange to recoup its original investment which is broadly in-line with an earlier assessment made when the Council embarked on its programme of investment. However the valuer’s Report highlights that should Site 12 be the preferred location for the bus interchange than an indicative reduction in the associated land values of circa £4 million is anticipated. In addition, it must be noted that appraisals of this type provide an indicative assessment based on a range of market tested assumptions and the actual value of capital receipts realized (and their timing) will be very much dependent on economic conditions and market interest in the proposed development. Other factors such as VAT and stamp duty land tax will also need to be considered and may reduce the final value of receipts generated.
Environmental Improvements - Public Realm infrastructure
58. Appendix 9 provides Cabinet with an initial, high-level assessment of the potential cost associated with the public realm infrastructure requirement included within the proposed Masterplan. This is based on a two tier specification (and cost) similar to that delivered as part of the St David’s 2 shopping centre scheme and therefore deemed suitable by the Directorate for the proposed Central Square development. The public realm works will be funded from a combination of capital receipts (from sites 2 & 3) and Section 106 contributions (from sites 1, 2 & 3). However, the Council will need to prepare a detailed design, supported by a robust cost plan to ensure that it can be funded from within the resources identified. Should the detailed work identify any potential gaps in funding then the specification will need to be reviewed and re- scoped accordingly.
59. The Council will work with the developer to prepare a comprehensive management and maintenance strategy for the new Central Square area. It is understood that the strategy will be funded through a mechanism of services charges to private tenants, similar to the regime agreed at St David’s 2.
60. Delivery of the public realm improvements will require the demolition of St David’s House and Marland House buildings. The Development Appraisal (Appendix 8) sets-out that the private developer will be responsible for the full cost of demolishing these buildings, including the relocation of any existing tenants. However, any incremental costs associated with relocating Council services currently based within these buildings will need to be met by the Council, initially from within its existing resources. Should costs exceed the resources available then consideration will need to be given to this aspect of the scheme as part of the Medium Term Financial Plan. It should also be noted that any holding costs (site hoardings, security, insurance etc.) in respect of cleared sites that remain within the Council’s ownership will need to be met from the CEZ earmarked reserve set-up to manage income streams/costs associated with the investments made in Central Square.
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61. Cabinet should note that the individual dates and overall timetable put forward for the various developments outlined in this report are challenging. Whilst the long-stop date is September 2018, when the BBC will have a contractual commitment with the developer to occupy its new headquarter offices, there are a number of key interim deadlines that also need to be met. The Council has agreed to work closely with the developer and put in place robust monitoring arrangements to ensure these deadlines are met and mitigate the risk of delays. In addition, the Council has agreed to be responsible for dealing with a number of specified stakeholders along with any associated costs. Depending on the nature of these costs, these will either be met from the Central Square capital budget or the Economic Development Revenue budget.
62. The financial implications attached to the development of wider schemes within the area (including those which are facilitated by the new bus interchange), will need to be considered in subsequent reports to Cabinet and if relevant the budgetary framework issues set out when the Capital Programme for future years is determined. In particular it should be noted that the costs and receipts attached to the future development as projected, will be very much dependent upon economic conditions and market interest at the time of the proposed development.
RECOMMENDATIONS
The Cabinet is recommended to:
1. Agree the key principles for the delivery of a new modern central bus interchange as outlined in paragraph 24 of this report.
2. Approve the next steps in the programme towards delivery of a new bus interchange as outlined in paragraph 40 and Appendix 10 of this report to include a public consultation exercise on the location and specification of the new bus interchange and the development of full proposals to manage interim arrangements during the construction period and leading to a further report to Cabinet in December 2014 to select the preferred option for the delivery of a new bus interchange including costs and the delivery timeline and to outline a detailed plan for interim arrangements.
3. Approve the principle of the closure of the existing bus station in June 2015 and agree to the disposal of land to deliver the BBC headquarters building in accordance with the Heads of Terms attached as Appendix 5 of this report; and delegate authority to the Director of Economic Development, in consultation with the Leader of the Council, the Cabinet Member for Corporate Services and Performance, the Section 151 Officer and the County Solicitor to finalise any detailed arrangements and to conclude the disposal.
4. Approve the disposal of land to enable the delivery of Building 2 as outlined in this report and in accordance with the Heads of Terms attached as Appendix 7 of this report; and delegate authority to the Director of Economic Development, in consultation with the Leader of the Council, the Cabinet Member for Corporate Services and Performance,
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the Section 151 Officer and the County Solicitor to approve a final fully detailed valuation report confirming the agreed price and to finalise any other detailed arrangements and to conclude the disposal.
5. Delegate authority to the Director of Economic Development, in consultation with the Leader of the Council, the Cabinet Member for Corporate Services and Performance, the Section 151 Officer and the County Solicitor to enter into contractual arrangements for the Council to deliver public realm improvements and for Rightacres Property Co Ltd to demolish Marland House, the Wood Street NCP Car Park and St David’s House as set out in the Public Realm Delivery Strategy attached as Appendix 9 of this report.
6. Agree that in all the circumstances the site is no longer needed for its present purposes and should be appropriated to “planning purposes” to facilitate the development.
NEIL HANRATTY ANDREW GREGORY Director Director 11 July 2014 11 July 2014
The following appendices are attached:
Appendix 1 - Site plan and draft masterplan Appendix 2 - Overview of Building No 1 Appendix 3 - Overview of the BBC headquarters building Appendix 4 - Independent Valuation: Site 3 (BBC) (Confidential) Appendix 5 - Heads of Terms BBC (Confidential) Appendix 6 - Land Swap and Disposal Site 2 (Confidential) Appendix 7 - Heads of Terms Site 2 (Confidential) Appendix 8 - Development Appraisal (Confidential) Appendix 9 - Public Realm Delivery Strategy (Confidential) Appendix 10 - Delivery Programme for a New Bus Interchange Appendix 11 - Bus & Passenger Transport Modelling Report Appendix 12 - Indicative costs for a Replacement Bus Station (Confidential)
Page 16 of 16 Central Square Regeneration Area Appendix 1
Draft BBC Masterplan Draft Masterplan Appendix 2
Central Square: Building No 1 Central Square: Building No 1 One Capital Square - 2,000 Jobs - 130,000 sq ft - £45m
Appendix 3 Central Square: Building 3 (BBC HQ) BBC Cymru Wales HQ 7 6 8
5 9 4 12 3 10 2 11
1 BBC Headquarters - 150,000 sq ft - £135m investment - 1200 Jobs
BBC Timetable - Start on site June 2015 - Partial occupation March 2018 - Full occupation Sept 2018 Agreement with BBC - Confirmation of site availability - Public realm delivery - Demolition of Marland House/St David’s House City Centre Strategy, Bus Interchange and Land Disposals APPENDIX 10 ID Task Name Duration June July August September October November December January February March April May June July Augu 2/0 9/0 6/0 2/0 9/0 6/0 3/0 0/0 7/0 4/0 1/0 8/0 4/0 1/0 8/0 5/0 1/0 8/0 5/0 2/0 9/0 6/1 3/1 0/1 7/1 3/1 0/1 7/1 4/1 1/1 8/1 5/1 2/1 9/1 5/0 2/0 9/0 6/0 2/0 9/0 6/0 3/0 2/0 9/0 6/0 3/0 0/0 6/0 3/0 0/0 7/0 4/0 1/0 8/0 5/0 1/0 8/0 5/0 2/0 9/0 6/0 3/0 0/0 7/0 3/0 1 Appendix 13 0 days 26/05
2
3 Initial Briefing 282 days
4 CCC Leader/WG Officers 5 days
5 Continuous engagement 277 days
6 Initial Primary Stakeholder Engagement 20 days
7 Network Rail Engagement 20 days
8 Welsh Gov Engagement 20 days
9 CCC Informal Cabinet Briefing 0 days 30/06
10 Project Arrangements 285 days
11 Priority Setting 10 days
12 Strategy Agreed 10 days
13 Key Milestone Dates Confirmed 0 days 06/06
14 Formal Project Processes 285 days
15 Interim and Permanent Stakeholder Consultations 274 days
16 Internal (CCC) 100 days
17 External - Taxi Drivers 100 days
18 External - Bus Operators 100 days
19 External - Trains 100 days
20 External - Businesses 100 days
21 External - WG 100 days
22 External - Other 100 days
23 Continuous Engagement 175 days
24 Procure Transport Consultant 60 days
25 Selection and appointment 60 days
26 Concept Development Options 170 days
27 Business Plan and Funding Strategy (start at risk) 105 days
28 Transport Strategy (start at risk) 105 days
29 Route Models (bus/cars) 90 days
30 Interim Measures: Detailed Design 45 days
31 Temporary Arrangements 45 days
32 Regulatory Notices (Interim Arrangements) 45 days
33 Cabinet Approval to Tender (Interim Arrangements) 0 days 21/11
34 Report to Cabinet and Approval to Detail Design 0 days 21/11
35 Communications / Media 301 days
36 Initial Media Liaison 20 days
37 Stakeholders 176 days
38 Public 176 days
39 Detailed Scheme 125 days
40 Detailed Scope 15 days
41 Design Development 40 days
42 Public Engagement Exercise 15 days
43 Planning Application (Construction) 50 days
44 Cabinet Approval to Tender (Construction) 0 days 15/05
45 Procurement of Construction (At Risk) 30 days
46 Interim arrangements only 30 days
47 Start on Site 0 days 19/06
48 Interim arrangements only 0 days 19/06
49 Constraint: Requirement for Oct 14 Planning Submission 92 days
50 Period of programme shortfall between planning dates = 4 months 92 days
Task Progress Summary External Tasks Deadline Project: City Centre Strategy Date: Tue 08/07/14 Split Milestone Project Summary External Milestone
Page 1 Appendix 11
Technical Note
Project: Cardiff City Centre Transport Strategy Job No: 60197354
Subject: Cardiff Position Statement
Prepared by: G.Lunt Date: 30/05/2014
Checked by: S.Payne Date: 02/05/2014
Approved by: G.Lunt Date: 02/05/2014
(1) Introduction
This note summarises recent work carried out by AECOM to support the delivery of Cardiff Council’s city centre transport strategy. The note is structured as follows:
1) Transport Project ‘Drivers’: key council initiatives and opportunities 2) Network intelligence: transport data and intelligence 3) Transport models: City centre models developed to inform/test strategy 4) Bus station design and assessment: Bus station design and assessment at locations north and south of the railway station 5) Conclusions: Summary of work to date and appropriateness of existing work to inform future strategy 6) Figures: Supporting figures are included at the end of this note.
(2) Transport Project Drivers
A list of key city centre transport project drivers are listed and discussed below:
• Crowd Management and Events Closures o Partial closure of Westgate St, Castle St, North Rd and Bus Station for events – likely to increase in the future. • Transport Objectives and considerations o Cardiff Bay link o Active Travel o Bus Network improvements o Rail network - Metro o Local Access and Taxi Operation o Freight Access o Wayfinding o Vulnerable users • Central Square o The developments surrounding Central Square will inform the city centre and wider transport strategy. o The developments include the position, scope and function of the bus station, and surrounding development opportunities and ‘unlocking’ the land value in the area.
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o There are numerous landowner stakeholders in the area including Cardiff Council, Network Rail, and private owners. • Westgate Street o Since the closure of High Street Westgate Street is an important bus corridor for arriving and existing bus to/from the bus station. o Furthermore there are other transport demands including bus passengers, deliveries, local car parks, residents, taxis and through traffic. o There are significant air quality issues on Westgate Street and traffic needs to reduce in order to bring air quality down under legal and safe EU limits. • Callaghan Square o There is a significant area of land available on and around Callaghan Square which would be suitable for development. o There are multiple land owners including Cardiff Council, Welsh Government and private owners. o The nature and function of Callaghan Square, and in particular its ability to help ‘gravitate’ the city south of the existing railway line makes it an important opportunity. • Cardiff Arena o Cardiff Council and Welsh Government have aspirations to build a new Cardiff Arena. o The scope, location and nature of the arena will play a key part in informing the most appropriate city centre transport strategy.
(3) Network Intelligence
In order to help inform, test and monitor city centre transport strategy AECOM has collected and analysed empirical data. This provides a robust evidence base. Wherever possible we have looked to minimise data collection and survey costs by making use of existing Cardiff Council data collection assets and processes.
• Traffic data o Junction counts: Numerous junction counts have been undertaken across the city centre recording the numbers of vehicles and their behaviour. This information helps tell us how close to capacity junctions are operating, and how they will operate should changes be made. An example of turning movements and junction counts is provided in Figure 1. o ANPR: We have overseen two city centre ANPR (Automatic Number Plate Surveys) across the city centre in 2009 and 2011. The ANPR information tells us where people are going within the city centre, and informs how people might re-route should infrastructure changes be made (e.g. closing a road). For example of all the traffic entering the city centre via North Road, 39% leave the city centre within 30 minutes via Cowbridge Road East. This is a significant number of through movements within the city centre. A summary output from some ANPR analysis is shown in Figure 2. o Taxi ranks: Through a study to determine whether the current hackney carriage license cap was appropriate, we collected taxi rank supply and demand data for each rank across the city centre. This told us whether the level of taxi supply was serving the required passenger demand. Teh study concluded that the current license cap wasn’t having a detrimental impact on passengers. A summary of taxi supply, and passenger demand throughout the day across the whole city centre is shown in Figure 3. o Bus routes: By undertaking on board bus journey time surveys and recording the types of delays throughout the course of a buses journey, we have been able to identify the main issues with reliability, and importantly identify targeted solutions to improve it. o Bus station: We surveyed bus station movements over the course of 12 hours by recording the arrival and departure times of all services arriving and departing from stands, the numbers of boarding and alighting passengers, and the stand/layover
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position they went to. This has provided very important information, and been used to help identify and test future bus station designs and operating scenarios. A profile of number of stands occupied within the bus station over the course of a day is provided in Figure 4.
• Survey data o Bus passengers: We have identified where bus passengers are alighting and boarding buses throughout the city centre. This has helped inform bus stop design and strategy. In particular most bus passengers alight at the northern end of the city, and then pick up their bus from its departure point within the bus station (20%). An example of bus passenger demand information is provided in Figure 5. o Taxi attitudes: As part of the taxi study above we surveyed members of the public to identify their attitude towards the hackney carriage and private hire industry within Cardiff. • Air Quality o Diffusion tubes: As part of the air quality issues on Westgate Street we have been monitoring air quality across the City Centre, and on Westgate Street by recording readings from diffusion tubes each month, as shown in Figure 6. This has helped us identify the air quality across the city centre, and in particular has highlighted issues both on Westgate Street and outside including Castle Street and Bute Terrace.
• Other sources o CCTV, UTC, AVL. These three forms of data are routinely and automatically collected by the Council and provide a low cost way to study existing behaviour. CCTV provides videos up to a month in arrears at sites across the city centre, UTC data provides signal timing information, and AVL provides on-board bus data including speed, promptness, and dwell times at bus stops. An example of ITC signal times is shown in Figure 7.
(3) Models
To help inform and test city centre strategy we have built, maintained and utilised a range of city centre transport models. These models can be categorised into three key areas as follows and summarised in Figure 8:
1. Spreadsheet models; 2. Junction models 3. Microsimulation models
Spreadsheet models Spreadsheet models typically provide a ‘high level’ model to help understand the impact /operation at an aggregated level. The models are quick to run and provide an indication as to whether certain strategies will work. Two spreadsheet models are described below:
• City centre bus operations model: The bus operations spreadsheet model contains frequency, route, and bus stop usage for each and every service that operates within the city centre. The information is summarised in a easy to understand graphical form, allowing individual routes to be studied as well as the compound impact of all services showing how many bus services use which links etc. The spreadsheet is very useful to help model different routing scenarios, identifying at a high level whether there is sufficient capacity on links and stops to cater for the demand.
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• Bus station stand allocation model: The bus station stand allocation model is used to help determine the stand capacity within a bus station under various stand allocation, timetable and layout scenarios. The model provides a high level indication of likely bus station capacity under different operating scenarios.
Junction Models • LINSIG: Junction models, using LINSIG, have allowed us to test the capacity of junctions under different designs and levels of traffic. We have developed LINSIG models for almost every junction within the city centre, and used them to help inform design, and develop appropriate mitigation strategies across the network.
Microsimulation Models • VISSIM o City models: We have developed a number of microsimulation models around the city centre using VISSIM. VISSIM models the movement of individual vehicles and their interaction with each other and the surrounding road and network to provide a very accurate prediction of how the network will operate. VISSIM also has a powerful graphical front end which allows proposed schemes to be easily shown to non-technical stakeholders to allow them to see how the schemes might operate. An example of 3d output is provided in Figure 9. We have developed VISSIM models for Westgate Street, St Davids, Callaghan Square, Tyndall Street, North Road, Knox Road and the internal bus station. o Linkages to SCOOT: More recently we have linked the VISSIM model to an offline version of Cardiff’s traffic signal control system, SCOOT. This allows us to accurately model how the signals react to traffic within the city centre, and importantly test low cost improvements and strategies within the traffic signal control system. o Linkages to air quality: We have also successfully linked the VISSIM models to emissions models, able to help predict the air quality as a result of different schemes and strategies. o Innovation: We have developed innovative methods to build and apply the model and have presented the work at a number of national and international conferences.
(4) Bus Station Design and Assessment
As part of the planning of the future bus station we have been involved in a number of bus station concept designs and assessments across the city centre. In particular focus has been applied to locations immediately north and south of the bus station. These are discussed in more detail below:
• North of the train station: We have considered a number of bus station options over various ‘parcels’ of land to the north of the bus station. In particular we have looked at smaller bus station footprints over what is the current site, to the east over the existing NCP car park and Marland House (see Figure 10). For each of these options we have studied the physical design, and importantly the buses that would serve it, and the ‘complimentary measures’ required around the city centre to make it work. This might include additional bus priority measures and additional stands across the city centre. • South of the train station: Over the existing network rail car park we have studied various bus station designs and strategies. These provide an opportunity to be the ‘cataylst’ to help regenerate the land to the south of the railway line. An example of some bus station designs to the south of the station is provided in Figure 11. • Temporary operation: if a new bus station is built it is likely to require the existing bus station to close for some time, and for a temporary bus station facility to be put in place. Working with bus operators and the council we have identified a draft temporary closure strategy, shown in Figure 12. Further discussions with bus operators would be required to finalise these plans.
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(5) Conclusions
The summary above of the current position informing the city centre transport strategy leads to the following key conclusions:
• Key drivers: The bus station is a key transportation driver, influenced by air quality issues on Westgate Street, developments on Central Square and Callaghan Square, wider transport objectives and the impact of event day road closures. • Network Intelligence: The transport data and network intelligence we have collected has provided a solid evidence base to inform strategy. For it to be used again it will need reviewing to determine its current suitability. We will look to use existing, routinely collected data and intelligence wherever possible. • Transport Models: Existing transport models are prepared and have been used in the past to test successfully the benefits of schemes around the city centre and in the bus station. To test future strategy the models will need to be reviewed to determine their current suitability, however this is likely to just include updating flows and demand, not creating new models from scratch. • Bus station: the feasibility of a number of bus station designs and strategies have been drafted in collaboration with bus operators, including a temporary closure scenario. Once the preferred bus station location is identified the existing range of designs will be able to be help inform the final bus station footprint and operation.
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Figure 1: Turning Counts
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Figure 2: ANPR
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Figure 3: Taxi Rank Data
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Figure 4: Bus station information
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Figure 5: Bus Passenger Information
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Figure 6: Air Quality Data
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Figure 7: UTC Signal Data
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Figure 8: Model Coverage
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Figure 9: Visualisation
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Figure 10: Marland House Bus Station
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Figure 11: South of Railway Bus Station
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Figure 12: Temporary Bus Station
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Central Square Re-development: Transport Requirements and Considerations – DRAFT 1A
AECOM Central Square Re-development: Transport Requirements and Considerations – DRAFT 1A 2
Executive summary Since 2009 there has been an agreement between Cardiff Council and the Welsh Assembly Government (WAG) to work in partnership to develop Cardiff as a Sustainable Travel City. The Sustainable Travel City programme focuses on the key priorities of widening travel choices, management of demand and network management. As this partnership develops, some measures have already been implemented, whilst further measures are still required to complete the strategy. The order in which the schemes get brought forward is critical as doing something in one part of the city centre will have an impact on another. This new partnership supplements Cardiff Council‟s existing Integrated Transport Strategy which has been developed in conjunction with WAG. A key part of this strategy has been to develop Line 1 of the high quality public transport corridor between Cardiff Bay, the City Centre and the residential areas to the north.
Cardiff Council has plans to transform the Central Square area. It will become a landmark gateway to Cardiff with enhanced public realm and re-developed infrastructure. In particular:
- Re-designed and re-developed Central Square / Wood Street area;
- Enhanced urban realm improving pedestrian provision and links to/from the city centre, train station and bus station;
- Re-developed bus station with improved passenger provision and facilities; and
- Greater development opportunities to support economic growth, and a financially viable bus station.
- Create development opportunities to maximise the interface between transport facilities and businesses operating in the area.
This is currently being formally progressed through the WelTAG process and associated consultation. Central Square acts as a key interchange point between the railway station, the bus station, taxis and drop off and pick up for rail and bus passengers. There are therefore many stakeholders who need to be consulted before a solution can be developed that suits all users and interested parties. Currently the bus station operates in an inefficient manner compared to other major cities. By redesigning the bus interchange facilities, the bus station could be run in a more efficient way. This would reduce the footprint required for the bus station and allow the Council to maximise the potential for the site. The development opportunities would allow for the whole area to operate with multi-use, complimentary land uses. The redevelopment will create a safer environment for all users and have disabled users at the heart. Even though a significant amount of money has been spent freshening up the existing bus station facility, adherent to current requirements for all users will require a more substantial investment in the facilities. As Cardiff‟s public transport usage increases in the future, the demand for bus, rail, taxi and drop off facilities in Central Square will increase, which the new facilities will have to be able to cope with.
Central Square acts as a gateway to many people entering the city, so the design of the public realm needs to be of top quality to ensure that it is worthy of Cardiff‟s position as the capital city of Wales. With the recent opening of the expanded St David‟s shopping centre, the centre of gravity of the city centre has shifted so any redevelopment of Central Square has to take this revised focus into consideration. With more efficient bus station operation, it is anticipated that a new facility will be required to have between 13 and 18 stands depending on the layout and type of operation that is selected. The key conclusion from this report is that the wide ranging development and transport requirements need to be more formally established between stakeholders in order to deliver a comprehensive implementation strategy for the wider network and central square.
AECOM Central Square Re-development: Transport Requirements and Considerations – DRAFT 1A 3
1. Introduction As a partnership agreement with the Welsh Assembly Government, Cardiff‟s Sustainable Travel City initiative has been ongoing since March 2009. During this time schemes have been implemented to deliver the city‟s vision, targeting all modes of sustainable travel using a variety of interventions. The next programme of work for the sustainable travel city initiative is critical. It will involve establishing an implementation strategy for improvements to central square, including the associated phasing of works to deliver it. This includes works in the area, and critically complimentary schemes on the wider network to support it through construction and into operation. The purpose of this document is to formalise the transport vision for the Central Square area, and outline the transport requirements and considerations for the forthcoming work. Necessary complimentary schemes to support the changes are presented. This document should be taken in context with the ongoing WelTAG assessment for central square, and ongoing consultation. The content of this document is supported by a comprehensive basis of evidence established over a number of years. This includes a detailed understanding of the transport operation, the traffic and transport issues, and outputs from future forecasts and scenario modelling. References to this supporting evidence are provided in Appendix A. Section 2 outlines the vision for Cardiff City Centre and section 3 summarises the schemes already delivered to achieve this vision. Section 4 presents the vision for the Central Square area and Section 5 summarises the impact and transport considerations of the changes at Central Square. Section 6 sets out key tasks required to deliver a more comprehensive implementation strategy.
AECOM Central Square Re-development: Transport Requirements and Considerations – DRAFT 1A 4
2. Vision for Cardiff City Centre Cardiff‟s Vision for Transport to 2021 is for a world class, integrated transport system that offers safe, efficient, and sustainable travel for all, and where public transport, walking and cycling provide real and desirable alternatives to car travel. Cardiff is aiming for a transport system with:
- Safe, convenient and attractive routes for pedestrians and cyclists, to make walking and cycling an attractive alternative to the car for short journeys;
- Clean, reliable and convenient buses that meet local needs and are able to move around more freely than the private car, in order to make buses an attractive alternative to the car;
- Fast, reliable and efficient rail services, particularly for commuters within and into Cardiff, and freight;
- Where there is a need, new and innovative forms of public transport and for these to become real alternatives to the car;
- Freer-flowing and well-maintained roads for personal travel and freight that keep heavy traffic away from the City Centre and residential areas, and which provide more space for public transport, pedestrians and cyclists; and
- Improved international and domestic links by air and sea.
The Sustainable Travel City programme seeks to provide a further impetus to the Council‟s sustainability agenda and focuses on the key priorities of:
- Widening Travel Choices – ensuring that a range of practical and attractive travel options are available for most trips and that people know about them;
- Management of Demand – introducing a range of measures to reduce the demand for travel overall, and particularly by car, where appropriate;
- Network Management – using a range of measures to make best use of the existing network and improve facilities and accessibility for all modes of travel.
3. Delivered Schemes To improve information for bus users in the city centre, a comprehensive bus mapping exercise has been undertaken to ensure passengers know where they need to go to get on their bus. The work involved:
- New bus stop designation system;
- “Where to board your bus” destination finder posters and leaflets; and
- Bus Station Route and Destination Finders.
To improve connectivity across the city centre, the following measures have been introduced:
- FreeB city centre shuttle bus;
- Replaced by transport for those with mobility issues
To improve the pedestrian, cyclist and bus user environment and experience in the city centre, a variety of physical improvement measures have been implemented. Following the demolition of the original bus station terminal building, the advance works in early 2009 focused on:
- The re-opening of Stand B of the bus station;
- The creation of 4 additional bus stops on the northern section of Churchill Way;
- An improved streetscape environment on the lower end of St Mary Street including improved pedestrian linkages between the Central Square area and the St David‟s shopping centr e.
AECOM Central Square Re-development: Transport Requirements and Considerations – DRAFT 1A 5
The first main phase of works:
- Removed the temporary lane restriction on Penarth Road under the railway bridge;
- Improved pedestrian and cycle linkages between Cardiff Castle and the Queen Street with the introduction of a new crossing on Duke Street;
- Introduced bus pre-signals on the North Road at the Boulevard de Nantes junction to increase the reliability of bus journey times on this corridor.
In the run up to the opening of the enlarged St David‟s shopping centre, the following projects were completed:
- New car park management signage was installed for the city centre car parks; and
- Permanent Park & Ride facilities to the east and west of the city at Pentwyn and the Cardiff City Stadium.
To facilitate the pedestrianisation of High Street / top end of St Mary Street, the bus pre-signals at the top of Westgate Street were removed to facilitate the increased number of buses turning right into Castle Street. Following the closure of High Street to through traffic, the following improvements were undertaken adjacent to Cardiff Castle:
- An anti-clockwise bus lane on Kingsway / Duke Street / Castle Street; - A new improved crossing to connect Cardiff Castle with High Street; and - Improved facilities at the Westgate Street / Castle Street junction.
The second phase of works around Churchill Way concentrated on delivering:
- More pedestrian and cycle friendly facilities at the Churchill Way / Guildford Street and Station Terrace / North Edward Street junctions;
- Additional bus stops on Guildford Street; and
- A contra-flow cycle lane on Guildford Crescent to replace on-street parking.
4. Central Square Vision The Central Square area will be transformed. It will become a landmark gateway to Cardiff with enhanced public realm and re-developed infrastructure. In particular:
- Re-designed and re-developed Central Square / Wood Street area;
- Enhanced urban realm improving pedestrian provision and links to/from the city centre, train station and bus station;
- Re-developed bus station with improved passenger provision and facilities;
- A financially viable bus station; and
- Create development opportunities to maximise the interface between transport facilities and businesses operating in the area to promote growth.
As part of the central square WelTAG process the following draft Transport Planning Objectives (TPOs) have been identified:
- TPO 1 Ensure interchange within a 5 minute walk of each transport mode;
- TPO 2 Ensure disabled drop-off/ pick-up facilities are available within a maximum of 25 – 50m of both the bus and railway stations;
- TPO 3 Increase the number of people travelling to work by sustainable transport modes to 48% by the end of 2013;
- TPO 4 Reduce traffic flows within the city centre cordon;
- TPO 5 Provide positive steps to avoid the need for the declaration of an Air Quality Management Area on Westgate Street; and
AECOM Central Square Re-development: Transport Requirements and Considerations – DRAFT 1A 6
- TPO 6 Ensure key pedestrian desire lines both to and from the bus station are free from conflict.
A key requirement of the Central Square Vision is that the capacity of the bus station area should be sufficient to serve the existing bus demand of local services. Furthermore the new design and implementation strategy should be able to accommodate suitable growth in services. An accommodation of 15% growth is assumed but needs to be more formally established with stakeholders.
5. Impact and Requirements for Central Square Area and Wider Network Implementing the Central Square Vision will obviously impact on the existing Central Square area and wider network. The following sections summarise the current operation of the Central Square area and wider network, and how the changes to Central Square will impact on the transport operation. The key considerations of mitigating and enabling these impacts are identified and will feed into the final implementation strategy.
BUS STATION AND CENTRAL SQUARE AREA
Existing Operation of Central Square Area Bus Station Stands - 22 stands
- 19 stands: surveyed maximum number of stands occupied
- 12 stands: surveyed average number of stands occupied
- 12 minutes: surveyed average afternoon peak bus service dwell time.
- Saw-tooth „Drive in Drive Out‟ (DIDO) design.
- 8 DIDO stops on Wood Street.
Layover
- 11 layover stands
- 8 stands, surveyed maximum number of stands occupied
- 5 stands: surveyed average number of stands occupied
- 26 minutes: surveyed average bus service layover time.
- „Reverse In Drive Out‟ (RIDO) stand design.
Services
- 1,091 Weekday services in to bus station.
- 84 services per hour into bus station in the PM peak.
- 59 bus services per hour serving stops on Wood Street area.
- 41% of bus services that enter the city centre in a weekday serve the bus station.
- 75% of buses in the bus station are local services, 22% regional services, 3% national services.
Operators
- 11 Bus operators.
- Cardiff Bus and Stagecoach highest users of bus station with 51% and 21% of services respectively.
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Current issues
- The bus station has more stands than guidelines would recommend for the existing demand. The existing number of stands allows for a bus service increase of 214%, assuming dwell times were reduced to those of the guidelines.
- High dwell times suggest that layover is taking place on stands within the bus station.
- Pedestrians are required to cross between parked and moving buses, has long pedestrian distances between stands, and make reversing necessary if stands become congested or a vehicle breaks down.
- Bus passenger provision and environment is poor, although recent maintenance upgrades to the station have improved this.
- There is poor pedestrian connectivity to the rest of city centre.
- Unsightly design (Bus station and surrounding area).
Impact of Vision on Central Square Area In order to achieve the Central Square Vision, regardless of the final layout, there will be a significant impact on the operation of the bus station and surrounding area. It is likely that in order to achieve the vision the footprint of the existing bus station will be reduced and will no longer be able to operate as it is currently.
Redevelopment of the Central Square area provides an opportunity to make improvements in terms of:
- Passenger infrastructure;
- Pedestrian and passenger environment;
- Safety and security.
- Stand operation;
- Layover operation;
- Bus service timetabling;
- Bus routing;
- Number of stands;
- Layover spaces;
- Allowed movements;
- Delivery vehicle operation;
- Taxi operation;
- Pick up / drop off for the public; and
- Event day operation.
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Requirements in Central Square Area to Deliver Vision
MULTIPLE ISLAND DRIVE THROUGH Assuming a reduced footprint bus station and existing bus service demand the operation of the central square area will need to be improved. In order to achieve the vision the following key considerations will apply. Critical to this will be gaining the support of all stakeholders, and most importantly bus operators. Bus station design
There are two principle bus station designs: Drive In Drive Out (DIDO) and Drive In Reverse Out (DIRO). Pros and Cons of both designs exist and are well documented. In summary DIDO provides improved bus operation since more services can use one stand, and DIRO provides an improved passenger environment and requires a reduced footprint. The safety of each design is a matter of opinion although there are significant safety issues that need to be overcome with reversing buses. Throughout the UK there is a mixture of DIDO and DIRO bus station designs, and in most cases the design requirements come from the local needs and requirements of the area, infrastructure, operations and stakeholders. The design in Cardiff is no exception and all stakeholders need to be involved to establish the most suitable design. Especially bus operators. This is currently being addressed through the WelTAG process.
The choice of bus station layout will have an impact on the operation of the nearby highway SINGLE ISLAND DRIVE THROUGH/ROUND network. The bus station design will need to take into account the capacity of the adjacent highway network. The operation of the bus station can also impact on the local highway if the station layout is poorly designed for the number of vehicles that are to use it. Pedestrian and cycle provision
The Central Square area will ideally provide an enhanced pedestrian environment allowing greater links between the train station, the bus station and the city centre. Also links to the south of the city. There is an opportunity to allow mixed use and shared space areas; re-prioritising the land-use over to pedestrians and their surrounding environment. However this needs to be considered more fully, in particular how this could impact on bus operations and other forms of traffic. Equality and environmental impact assessments will be required for the area. Cycle facilities that fit into the quality of the design will need to be considered. Central Square / Wood Street are currently key cycle routes. Bus station operations
The current bus station serves multiple bus operations. Including pick up, drop off and layover. More efficient bus stations segregate these activities. The central square area should ideally adopt this approach making use of separate drop-off and pick-up areas, and nearby layover DRIVE IN REVERSE OUT away from active stops. This will make bus operation more efficient and enable best use from the surrounding network. Establishing suitable layover provision and operation is a critical element of the bus station design, and close consultation with bus operators is required. Bus operation requirements will be different for different operators and types of service (e.g. local, regional and national). These different needs should be considered. Dynamic Stand Allocation (DSA) provides opportunities for improved bus operation, but can have a detrimental effect on the bus passenger experience. Operation is also impacted by the type of bus (i.e. bendy buses, long wheel base buses and double deckers). Bus stands located on the public highway (i.e. outside the bus station) would not offer any revenue and need to be considered in the overall financial viability. Bus stand provision, timetabling and dwell times
The Central square area currently has 30 bus stands, 22 in the bus station and 8 on Wood Street, and layover facilities for 11 buses. Assuming there is no timetable or bus service alterations analysis has shown that with existing bus volumes this could probably be accommodated in 20 stands plus layover. Existing dwell times (including manoeuvre time) are
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significantly higher than guidelines. Experience at other bus stations suggests that a DIDO arrangement should allow for dwell times of 5 minutes, existing dwell times are significantly higher than this. A reduction in dwell times would allow existing bus volumes to be accommodated in 13 stands plus layover. In a DIRO arrangement, a dwell time (including manoeuvre time) of 7.5 minutes is more appropriate which would result in requiring 18 stands in total). In both the DIDO and DIRO arrangement more efficient timetabling and operation is required to operate within the stated number of stands. Additional stands would be required if:
- Growth in the number of bus services using the Central Square area was required
- Separate provision for community bus services.
- Complete separation of local, regional and national services
These considerations need to be more formally explored in order to determine the detailed stand requirement. In particular in relation to the issues with bus station operation discussed above. Restricted vehicle movements
In order to facilitate improved bus station operations and maintain the integrity of the key bus routes on the network, it will be necessary to restrict certain movements for general traffic. It is anticipated that existing banned movements will remain (i.e. North/South), and other movements could be given further disincentives or banned completely (e.g. West/East). The impact these banned movements will impose on the local area and wider network needs to be considered. Local access and taxi operation
Despite restricting vehicle movements as above, local access arrangements need to be established. The development land use and number of car parking spaces and access to these needs to be identified as well as the operation of service and loading vehicles. Adequate level of taxi and pick-up and drop-off facilities will be required adjacent to the rail station and bus station. Current surveys show that up to 50 vehicles can be waiting at the station at any one time and their impact on the wider network. The taxi rank location will need to be accessible from and to key parts of the city centre. The access arrangements for disabled transport users undertaking part of their journey by car should be considered. Bus and wayfinding information
Accurate and accessible bus and wayfinding information improves bus passenger experience. Suitable information is currently provided via information booths, leaflets, posters, the internet and RTPI. However as the population evolves more existing and potential bus users will be familiar and comfortable with technology. In particular its application to transport information. It is anticipated there will be far greater use of handheld devices to inform travel choice and this will need to be facilitated. Crowd management and events/special closures
Improvements to the Central Square area will be compatible with crowd management operations on event days. Ideally the bus station will still be operational on event days, although this will need to be established through the course of its design. Canopies are currently erected to facilitate rail passengers. The urban realm from Central Square to the Millennium Stadium will need to facilitate crowd movements and allow the expeditious movement of the population. The bus operation on event days and other closures (e.g. closure of Lower St Mary Street on Friday and Saturday evenings) will need to be established.
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WIDER NETWORK Existing Operation of Wider Network
The wider network supports:
- walking and cycling modes;
- bus priority;
- delivery vehicles and taxis; and
- local (car park) and through traffic;
The transport network has previously accommodated these in equal priority, but has recently provided greater priority to pedestrians and buses. Bus services operate a range of routes throughout the city centre. Many routes use Westgate Street southbound, and access the bus station / Wood Street stops. This is currently the main focal point of city centre bus routes. Evidence has shown that many bus passengers that use Westgate Street stops have come from the city centre / St David‟s shopping centre area. Bus operators undertake layover on the wider city centre network, in particular on
- Wood Street;
- Westgate Street; and
- Customhouse Street/Canal Street.
Current issues
- Longer layover reduces the capacity of stops. Layover can be reduced by improving the journey reliability of services on key corridors into the city centre. Currently all bus corridors that serve the city centre exhibit constraints and impose additional delay and variability to bus journey times.
- Bus passenger provision on Westgate Street is poor. Westgate Street‟s narrow footway is insufficient to accommodate this demand and pedestrian overcrowding is prevalent. The environment is in contrast to the parallel pedestrianised High Street and a strong discontinuity exists in the urban realm between the two areas.
- Surveys show 30% of bus delay in the city centre occurs at traffic signals.
- Key network constraints include Bute Terrace / St David‟s during peak shopping times and Station Terrace / Fitzalan Place during peak commuting times.
Impact of Vision on Wider Network
Redevelopment of the Central Square area will change the operation of the wider highway network. The extent of these changes is largely dependent on the final land uses, layout and changes to the existing bus station which is still to be determined.
Across the city centre it is reasonable to assume that the redevelopment of central square will change the operation of buses, specifically:
- Bus stop provision;
- Layover provision;
- Bus routes; and
- Passenger demand
Changes to land use and the highway network in the central square area has the potential to impact on general traffic, specifically on Westgate Street and Wood Street but also across the city centre. With the increased growth the central square area will bring and re-positioning of the „city centre‟ further south as a result of the extension to St David‟s shopping centre, it is anticipated more
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bus services will use the anticlockwise direction. In particular buses serving the east of the city to Newport Road. This will provide greater bus movements on this section of road, and greater demand at stops on Bute Terrace and Churchill Way. The construction works at Central Square area will impose significant network constraints. Vehicle movements will be greatly restricted and the bus station will be reduced in size to enable the works to take place. This will impact on all areas of the bus network. It is important that improvements elsewhere in the city centre need to be in place prior to any commencement of works at central square that will impact buses.
Requirements Across Wider Network to Deliver Vision The following complementary schemes would be required to either facilitate the redevelopment of Central Square or compliment the Sustainable Travel City measures that have already been put in place:
Westgate Street
A broad range of operation makes Westgate Street unique within Cardiff and causes operational issues. Westgate Street is the focal point for bus routes which generates high bus passenger demand and pedestrian overcrowding. The operation of Westgate Street is key in accommodating future Central Square aspirations. The impact of the Central square vision on pedestrian, bus and general traffic is required to ensure that Westgate Street operates efficiently. A number of options have been shown to work and can be incorporated into network designs in the Central Square area.
Custom House Street / Bute Terrace
Consideration of the impact of the Central Square vision on the movement of buses on the southern side of the “Bus Box” is required. A bus gate will be incorporated on Custom House Street. This will allow the buses going through the busy Bute Street / Bute Terrace junction to be better managed. A reallocation of roadspace on Bute Terrace is also required to ensure buses are not impeded by St David‟s car park traffic. This will also provide benefits to Line 1. Churchill Way south
To ensure buses receive priority on the southern section of Churchill Way a northbound bus lane will replace the current parking adjacent to Cardiff International Arena. This will also provide benefits to Line 1.
Churchill Way north
To facilitate the increased requirement for bus services in the Churchill Way area, options have been identified to allow further bus facilities to be incorporated for stops and layover. This will meet the increased demand for St David‟s, and strengthen the transport interchange with the busy Queen Street train station. During the construction phases of the Central Square area Churchill Way north will provide provision for greater bus usage. Greyfriars Road
Bus stops on Greyfriars Road are currently operating well within their capacity. If greater layover and driver changeover is required outside of the Central Square area as a result of the final Central Square layout, then Greyfriars Road will provide a suitable location. In particular for buses entering the city centre from the north and east. During the construction phases of the Central Square area Greyfirars Road will provide provision for greater bus usage.
Fitzalan Place Now that the Churchill Way / Guildford Street junction has improved pedestrian and cyclist facilities in that location, the increased bus numbers using Churchill Way will mean that measures like no-car lanes should be investigated in this area to ensure the reliability of bus journey times are not affected. Such measures may have a knock on effect on the operation of
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neighbouring roads like Fitzalan Place and Newport Road. Bus Corridors
Improved journey time reliability on key bus corridors will reduce the need for layover in the city centre. Transport funding has been approved for bus corridor improvements to the north and west of the city. The schemes implemented should reduce the need for layover. Bus priority signalling
To accompany infrastructure improvements to bus priority and provision, traffic signalling improvements should be made. This will be by means of greater bus priority and bus progression through the network, and considering locations where greater restrictions to general traffic could be made on the entry to the city centre.
6. Further Work The programme and priorities for further work should be led by the required phasing of construction. In particular the provision of adequate improvements to facilitate the transport network during the construction period. There are a number of design issues still to be resolved, rangin g from the scale and nature of development, through to the transport and bus station operation. These largely depend on each other in terms of deciding a suitable full design. These conflicting requirements need to be resolved in order to understand the key transport issues and future programme. This will involve cooperation between all key stakeholders and partners. Following this a more detailed transport implementation strategy can be completed, and an implementation programme identified. Existing strategy documents should be reviewed and updated where necessary, Including:
- Bus operations strategy
- Event day strategy
- Parking and loading access strategy
- Signalling strategy
- Parking strategy
- Updated cycling strategy
Critical to this whole process is the involvement of key stakeholders. These include, but are not limited to:
- Welsh Assembly Government
- Council Members
- Council Officers
- Emergency services and disability groups
- Bus operators
- Rail operators / Network Rail
- Taxi operators
- Cycling groups
- Local businesses / traders
- Resident groups
- Local experts
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Appendix A: References List of reports
- Cardiff city centre bus station modelling: Option modelling results issue 1
- Stand A Transport Assessment
- Operational issues on Westgate Street
- Other technical notes
List of data sources
- Bus station stop and dwell time survey;
- Wood Street junctions traffic surveys;
- Westgate Street junctions and through traffic surveys;
- City centre wide OD cordon survey;
- Kerbside activity surveys;
- Bus user interview surveys;
- Bus station service and passenger survey
List of models
- Bus Station / stop utilisation model;
- City Centre bus usage model;
- LINSIG junction models;
- Wider area VISSIM models.